The general strategy you are saying about tiered nodes makes sense. However, one of the major advantages of SCP over previous Byzantine agreement protocols is that you don't need all existing Level-2 nodes to agree. Thus, where previous Byzantine agreement protocols actually have to run the reconfiguration itself through Byzantine agreement, SCP allows nodes unilaterally to configure their quorum slices. Moreover, for a given set of quorum slice choices, it provides optimal safety--meaning the only circumstances in which SCP could be unsafe are those in which no other protocol could have guaranteed safety.
In general, providing this choice makes a lot of sense because of Stellar's anchor model. In particular, people should configure slices based at least in part on depository trust. At the end of the day, if I'm going to take a bunch of Stellar USD and redeem them for bank notes at Bank of America, I should make sure that BofA is in my quorum slices.
In response to your previous point about new geography, in generally people will join a network to enjoy the network affects. So if region A has a strong Stellar network and region B wants to join, region A probably will not initially place all that much trust/dependence in region B, while region B will want to ensure region A signs off on all settled transactions. That's of course different from region B trusting region A for safety (which they should not do), but it does mean depending on region A for liveness.
A rough analogy would be deploying the internet. If region A has a strong internet and region B wants to join the internet, well, region B doesn't technically have to connect to region A, but most people will still agree that region A has the real internet and that region B isn't really internet-connected when it's hosts cannot hear from region A.