First off, thanks for trying your best to volunteer for the Scouts. Sorry if this sounds harsh, but it seems like the time and energy you're spending on starting a new unit could be more productively spent on supporting an existing unit in your area. In the situation you're in, you have structural obstacles to overcome, requirements for two-deep leadership, all the fundraising and admin stuff that goes with a new unit, etc. Only a few boys in a unit is going to be a challenge for them too, especially if one or two don't show up regularly, etc. Those families are expecting a good Scouting experience now. Why make yourselves wait? Wouldn't it be better for everyone if you had a heart-to-heart conversation with those boys and their families, then try to find a troop together that does things the boys wants to do? If they joined an existing unit, they'd have a chance at a good experience right away. As a new volunteer, the unit (including all the other Scouts) could benefit from your enthusiasm for the outdoors. Seems like that's a win, win, win.