Nerd
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Please note: Tigers, Bears and Sharks fans this post will p1ss you off. I get that.
The solution is pretty obvious if you want a 16 team comp and yet expansion. Forget PNG, forget Adelaide, forget a 2nd NZ team. I would argue Sydney has 8.5 teams not 9 teams and that it could sustain 6 teams comfortable into the future.
If you want an expanded 16 team comp, it should look this way:
Sydney Teams
Parramatta (representing the city of Parramatta)
Penrith (representing the city of Penrith & mountains)
Rabbits (Central)
Bulldogs (Belmore, Liverpool & Western corridor)
Roosters (Easts)
0.5 Manly (North)
0.5 Dragons (South)
Regional NSW
Canberra
Newcastle
0.5 Manly (Central Coast)
0.5 Dragons (Illawarra)
National Teams
West Tigers (Perth)
Cowboys
Broncos
Sharks (Brisbane)
Titans
Warriors
Storm
You give huge incentive to relocate. $10 million plus over 5 years salary increase grants and cap exceptions, 150% 1st year, 140% 2nd year, etc... to ensure immediate success of relocated teams. You allow these teams to front load contracts, whatever it takes to ensure their success.
Sydney teams give up their home game to Sharks and Tigers to play in their heartlands until deemed unnecessary.
You have a 16 team comp with a new team in Perth and Brisbane which really should have happened by now.
Relocating the Sharks to Brisbane would be a dismal failure. If they can't stay in the NRL because of financial problems just let them drop back to being a NSW cup team. If you want a second team to work in Brisbane it would need to be home grown.