Thats a bit rough, 9's only started this year and it was a resounding success, the Grand Final was the highest rating NRL match of all time across five city markets. But I take your point about creating more 'event' games.
Not having a go really, just kind of examining it from an entertainment perspective.
9s will live and die by coverage and hosting. I know there was talk of 10 wanting the rights and Fox saying they had an ironclad deal. But getting the rights on F2A in 2015 means more $$$ next time.
The Season Openers - they need to look to the US and see how they treat these matches as an event in their own right.
We really haven't worked out a strategy for the holiday matches -- it's imperative that the Big 5 + Roosters get 2 holidays matches each likewise with Brisbane & Melbourne. Given that the AFL have allowed some minor teams to dominate these days the NRL can develop a strategy so the biggest teams play on the biggest days.
They don't seem to know what to do with the All Stars now. In the pre-season it's competing against the 9s to some degree and it can overshadow the openers. They'd be better off coming up with a loosely structure pre-season cup. But if they want to make the All Stars a bigger event it belongs during the big event season - the US pro-bowl has been played prior to the Super Bowl, the All Stars could do the same and start drawing 2-3 million+ prelim finals size audiences. Indigenous vs Islanders, they're the 2 biggest minorities in the league, even without the Grand Final players it could be an Origin-scale match.
And of course the internationals which let's face it, are all over the place.
Get their house in order and they will get more $$$