It would be better to make the Queensland Cup and NSW Cup fully professional. Make the NSW Cup a true statewide competition to provide better pathways for players from the country. You could even add teams from South Australia, Western Australia and Victoria. This system would create better pathways across the entire country and help expand the game into Adelaide and Perth. What you're advocating will limit the professional side of the game to the 17 professional clubs and kill player development.
Your point about making Tier 2 professional is a long term goal
But today it needs to be part-time, because that is what is financial
Also everyone has to buildup together
And today you are competing with NRLW for funds and TV coverage
Qld Cup is basically setup almost right though I think Darwin should join
But key things holding it back start with making sure all Tier 2 clubs are basically financially equal. This can only be done by breaking the NRL 17-36 feeder setups. This can be sorted by establishing NRL Reserve Grade.
Finishing the expansion of the NRLW will sort out the financials and how TV wants to operate
In parrallel it then moves to addressing Tier 2 structures. Setting a initial goal of covering 50% average wage means things like transport can be fully covered, which helps remote teams like Perth & Adelaide or in NZ Wellington & Christchurch
Setting the bar at 50% or part-time means you need $1 mil per club for a $40k average wage for 25 players. Today grants will need to increase to support this and a 12 team structure, thats why its a first step
This will need something $10-15 mil for each State League. And as our NZ friends have said they need this before NZ2
But on top of all this is still need to get more done at grass roots levels from A grade country through to local schools etc