I might be wrong but I don't see this being true. I play in gold and it's with level 4-5 summoners. I never come across players with level 1 cards there. There are lots of tournaments and DEC to be earned at those levels and having some tournaments just for the lowest level makes sense to me. Gives them a chance to learn the game and win a few prizes to get higher. just my thoughts on it.
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Of course more players will have higher level cards in gold. But what about those that don't? Punish them for being good in the game? I agree something needs to be changed but ladder leagues don't have much to do with tournament leagues. I easily reach Gold I each season but don't have enough cards to compete seriously in silver tournaments so I tend to play only Novice and Bronze ones.