I think it's pretty understandable that crowds are down slightly this year. The weather in Sydney has been absolutely diabolical. Anyone who thinks weather won't have an effect on crowds is kidding themselves. Several clubs have had a shit time with the weather in one way or another (QLD cyclone and floods leaving people with bigger problems than footy, Manly/Cronulla crowds being hampered by rain).
It's also been the most uneven comp in years. There are several strong teams, and a load of teams who's fans will have little hope that their team can achieve much. Penrith, Parra, Raiders, Sharks for a start, possibly Roosters and Souths? It also leads to games that are seen as a foregone conclusion. Throw in injuries to key players, some turgid games and weekend after weekend of rain in Sydney and I think we're doing well to be as close as we are.