So let's draw up some groups and we'll look at it from a Bosnian perspective. We'll ignore the 13th spot for now (of course we shouldn't but oh well).
Bosnia starts up in round 2.
I arbitrarily have advanced Finland, Estonia, Cyprus, Latvia, Moldova, Macedonia, Wales, Iceland from the first round.
Bosnia gets drawn into a group with Scotland and Armenia. They breeze through and make the final round.
Arbitrarily these 18 make it (for the heck of it i'll have a couple mild upsets):
Switzerland, Israel, Ireland, Belgium, Czech, Bosnia--------Belarus, Ukraine, Hungary, Bulgaria, Romania, Georgia-------Albania, Northern Ireland, Austria, Poland, Armenia, and Iceland. (Sorry Finland Scotland, Wales, et al)
Those teams comprise pots 4, 5, and 6 as they are broken up. Note that Poland is in pot 6 with this realistic scenario.
I will now draw groups for the heck of it. Top 2 qualify. Perhaps the 2 best 3rd-place teams playoff for spot 13.
Group A
Italy,France,Slovakia,Belgium,Hungary,Poland
Group B
Netherlands,Croatia,Turkey,Bosnia,Romania,Austria
Group C
Spain,Russia,Slovenia,Ireland,Belarus,Armenia
Group D
Germany,Montenegro,Sweden,Switzerland,Bulgaria,Northern Ireland
Group E
Portugal,Greece,Serbia,Israel,Georgia,Albania
Group F
England,Norway,Denmark,Czech,Ukraine,Iceland
Is this really any fairer for a Bosnia, never mind a Poland?
While there are the minnow matches in Europe that fact is that the quality of national sides in Europe can change dramatically from cycle to cycle. Adding that extra level doesn't seem quite right.
Even if you did something more targeted, like say make 6 groups of 7 teams (which is more games btw) and just eliminated 11 teams via 2-match legs that means 31 byes and the other 22 play. That would be:
Albania (59), Scotland (61), Northern Ireland (62), Austria (66), Poland (69), Armenia (70), Finland (75), Estonia (79), Cyprus (80), Latvia (83), Moldova (85)
versus
Macedonia (96),Azerbaijan (111),Faroe Islands (112),Wales (112),Liechtenstein (118),Iceland (121),Kazakhstan (126),Luxembourg (128),Malta (173),Andorra (203),San Marino (203)
If you've seen how Iceland is doing it hardly seems fair to them to have them, say, play Poland in a 2-leg playoff just to make the main draw.
-QG