Nrl and clubs really need to address crowds... Maybe evening creating a NRL membership, in where by you can become a member for 10 games and you can go to any nrl matches
IMO marketing, travel packages, gameday prices, food and beverage are the main issues.
There is a perception in the general public that its expensive to go to the footy. The only way to break that is to lower admission and food & beverage prices then make it the focus of a well organized mass media marketing campaign via TV, radio and newspapers.
I would focus week to week marketing on the demographics who are more likely to attend on each day that footy is played. make sunday arvo the family game with free entry for kids and ensure access to the field of play after fulltime. Run an advert on FTV and STV in the week leading up to the sunday game each round, focused on the matchup and kids free etc.....
For friday and Saturday night, focus on ticket deals like discounted group tickets for mates. Include a pie and beer in price of admission. Make this the social game to capture the young and outgoing types.
If i can come up with that in 5 minutes surely the marketing manager on a 6 figure salary can implement similar or better ideas, anything less is a fail for that role.
Finally as you have said an NRL membership with varying levels/cost for the amount of games to attend. Memberships still need work, 3 years ago the roosters GA membership cost $99 for 11/12 games now its the same cost for 4 games. And regardless of which major stadium the tennants of moore park and homebush should have bolt on options for away access. I know the homebush tennants have this to am extent now but its still not prolific enough and if the roosters had the option to add say 2 or 3 games away access at homebush in addition to home games i would sign up.
The last problem is stadia and infastructure, we know what is happening with that issue, just the waiting game now.