They should allow the cap to roll over, and change it so that teams have to spend 95% of total cap over any 3 period.
You get the same result, under the current system, with an 11m cap, over any three year period a club would spend a minimum of $31,350,000 (3x $10,450,000m)
By allowing them to spend under the cap and rolling it over, they'll still need to spend $31,350,000 over any three year period, so the player base doesnt lose a cent, but they can build cap to take big swings at the top talent
It'd never get through though, because it's pretty much going to take money out of the middle and lower class players and put it more in the hands of the stars... however it would dramatically help with parity and talent distribution. The system now doesnt allow enough wriggle room for clubs to pull themselves out of the gutter.
They either have to do what penrith did, and strike oil with a group of incredible juniors, or do what the dogs/knights have done, and pay huge overs for someone like Burton and hope he's a generational player who can drag them into a better situation.