Currently, the RFU is both trying to build/maintain the Professional game whilst concurrently investing in the grass roots game and they're seemingly failing in both.
The pandemic certainly hasn't help their finances with empty stadia, but they are a basket case of mismanagement (both literally and financially). They seemingly spend vast swathes of cash on stupid things; tens if not hundreds of thousands on their 'Ambassadors' or whatever they were called; whom each a very healthy expenses allowance (to cover them and a Partner) simply to attend games and the odd meeting. A good number of technology purchases are via their commercial sponsors at inflated costs - At one point they had something like 1200 active mobile phone contracts with O2, but less than 600 full-time employees. Go figure.
From a strategy standpoint, it's confused. Most Unions focus on investing in their National Teams on the basis that if success breeds success, then make the national team as successful as possible to drive interest and participation at lower levels.
The RFU are trying to invest heavily in the national teams as well as we the Grassroots and in many ways are not allowing the potential of either to reach - hence Bucks RFU's letter.