In hindsight (20/20 I know), maybe going to 18 teams by adding the Warriors & Cowboys was the best option for 1995, with another expansion in the late 1990s/early 2000s, but in the meantime having some carrots there for relocations. (Including all possible resources for the Bears to successfully complete their move to Gosford, as an example of relocation done with good support).
That way, by the time that the late 1990s/early 2000s expansion happens, one/some of the possible expansion locations may already have been taken by a relocation.