Thats the big difference between the codes approach to expansion, NRL sits and waits to see what happens, AFL is on the front foot with a list of demands and already setting money aside for investment to make it a success if it happens.
I see what you are saying and yes, that's certainly been the case with many NRL administrations since SL. However, I like the approach Abdo and V'landys are taking. They are not blowing millions on expansion (because they'd be bagged if they did so and crucified by the clubs). But they are still looking to expand in a financially responsible way.
The way things are at the moment, the NRL has options in Perth and Brisbane beating down the door for a spot in the league. The AFL has Tassie beating down the door. I know which position I'd rather be in. The AFL have done their dash with Lions, Suns, Swans and GWS in their non-heartlands and it really hasn't made a difference. All they are left with is Tassie & maybe Canberra. As the NRL now looks to spread out nationally, they will pick up more and more sponsorships and probably broadcast deals. The AFL have peaked, we are only just getting started.