GYA Capdeville racing is based upon club owned boats at events with no entry fees. I believe some clubs also reimburse or cover travel and lodging costs for their sailors at Capdeville events. That could be a factor into why GYA participation has not been as strong as hoped for as Peter noted at regional, continental, and world championship class events not affiliated with the GYA and/or the Capdeville series. Best way to remedy that could be to have a forward thinking strategy that encourages more private ownership of Vipers at GYA clubs. Skin in the game financially at the owner level can be a motivator to travel.
Good luck to the class to make it work to serve all interests.