Green Machine, you must be the only person in the Western World who hadn't heard of Brisbane's exclusivity clause - a deal struck with News Ltd before reunification talks were completed.
News wanted a 12 team comp - and the ARL wanted it's 20 team comp. Compromise: 20 teams in 1998, whittled down to 14 by 2000. By then, the Crushers had already died.
The ARL couldn't 'force' a merger. Besides, it was the NRL partnership that controlled that. The Gold Coast was gone, as a token ARL death to balance the News Ltd kill off of Perth, Adelaide and Hunter (although they got Melbourne). The Coast was in the firing line because of the exclusivity clause that Brisbane had.
The proposed East Coast Tigers was blocked because of this. But it was a definite proposal - they were going to play out of Suncorp. Besides, Balmain were fighting for their lives, and entertained merger discussions with Manly, Easts and Parra as well. balmain would have moved anywhere to survive. Souths too - they proposed a merger with Adelaide at one stage - again knocked on the head. News wanted Souths out. Norths went bust. Wests were about to fold, but accepted a JV with Balmain (and reaped the rewardsin October this year). Illawarra merged with Saints. The NRL forced Norths into a meger with manly so the new stadium at Gosford could be used. Brisbane, Auckland, Melbourne and Newcastle were guaranteed a 5 year contract, as were the Wests Tigers and the Dragons.