There are lots empty teams in some low countries, why will a new league be open then. and some countries that have few managers like two - three have to be close to ensure fast and good load of servers in the game.
Actually most of those "new" leagues ran quite empty after some seasons...maybe that's the reason, why there is long time from last reopening- just no point.
@YY - this will happen if/when more managers join that country. The system is designed so new divisions are added when a league becomes very popular. Tell your friends to join!