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It is broken though.
The rules of the salary cap disincentivise clubs investing in juniors, which leads to a handful of the clubs doing the lion's share of junior development.
Sounds right on the surface of things but not right in reality.
The salary cap has very little impact on development at all. The size of the junior base dictates that so much more. Clubs like Penrith, their development is focused on their junior area. The Roosters, also put a lot into their junior development but also put alot into junior development in other ares such as the central coast.
Every team is keen to have local juniors in their top 17, they realise this increases their fan base and gets people to the game. But the money involved dictates that they all try and get the best players from where ever they can