You are exactly right about same teams in Atlanta winning all the time. It seems to me that there is less participation at my NTRP than in years past in USTA Atlanta. I don't think their leadership cares or has a clue.
In Minneapolis there are 24 4.5 level men's teams, in Atlanta, there are 12 4.5 men's team this summer. Atlanta does have ALTA, but that's only mixed in the summer. If I'm USTA Georgia, I would look at stats like this and say to myself, "perhaps I need to figure out why participation is down and what do I need to do to fix it." The rating system and sandbagging has driven away participation.