The Raiders situation is unique. The Raiders are the only organisation in southern NSW, there is no other team/leagues club to partner with.
What most Sydney teams do is partner with a significant local leagues club in their district and share the costs. It makes sense... they promote rugby league in their own backyards, but don't face the full costs of running a team in NSW Cup.
What the NSWRL is saying is that the Raiders should go invest in an overcrowded Sydney market (benefit: Sydney clubs in the relevant district) OR face the full costs of running a team out of Canberra (ie putting them at direct financial disadvantage compared to Sydney NRL teams). Because that's the only other option. The Raiders run all the major leagues clubs in its own district. There is no one to share the costs with.
It can be done in Brisbane, with Souths Logan. Brisbane and Gold Coast have multiple links to clubs in Q Cup in SE Qld, but the assistance they can provide to those clubs is spread very thin. Souths Logan need the help; not only that, the Raiders own a sports club in the Logan district. It is actually quite sensible. Not only do Souths Logan benefit (they'd fall over without the Raiders, as mentioned), but the Raiders benefit from linking to a strong junior area.
It is hardly like the Raiders don't support junior development in southern NSW. The Raiders do a whole lot more than most Sydney clubs would do - because they are a development club. Lots of investment in the Canberrra Raiders Cup competition (nothing on this scale would be supported by any Sydney club), as well as support for development on the far south coast, the Monaro, the Riverina.
What's been done makes a lot of sense. And now, the NSWRL will see Souths Logan close its doors (there is no alternative up there... the two NRL teams in SE Qld are already over committed to links with local clubs). The NSWRL wants to force the Raiders face costs the Sydney clubs don't face in running a full second tier team (you know, the ones who killed Premier League for the same reason, cause they didn't want to run full reserve grade sides). The NSWRL wants to cut off a junior development opportunity for Canberra - a team heavily dependent on developing juniors - and its efforts won't readily be taken up by anyone else in Qld. I am continually surprised at the incompetence of the NSWRL, and the sooner they can't take any decisions in relation to the running of the game, the better.