Given his close ties to Manly I am not surprised at all that he wants to see the status quo of small suburban clubs maintained. Maybe it was the rest of the NSWRL/ ARL board that commissioned the Bradley Report and were planning to act on it before SL got in the way? Having said that he seemed a pretty committed rationalist in his day when he said:
One of the things that allowed SL to happen was the clubs only being signed to one year contracts to the league. There is suggestion this was in place as the ARL had plans to drop clubs down and therefore couldn't be held to account if they had longer licenses. This was alongside criteria for licenses introduced in 1995 that made it very difficult for some Sydney clubs to continue in the top tier. They were clearly positioning to cull.
It has been known for 30 years that Sydney really cant sustain a large number of clubs in a national competition. That rationalisation has been happening sporadicaly for a long term and there is no doubt it will happen again at some point in the future.
From the NSWRL commissioned Bradley Report
1992: "...to reduce the number of clubs in Sydney, will be very hard for the League to implement given the long playing traditions of some of those clubs. In the long term, however, it is likely that Sydney is not going to be able to support eleven clubs as it does at present. Therefore in the long term this is the only viable solution. Sydney based clubs are going to have to move to new areas, merge or be relegated from the League. This is going to be a painful process. In the long term I believe that the ARL should be looking to reduce the number of clubs in the National Competition to fourteen, thus allowing clubs to play two complete rounds. This will mean, assuming that only four new clubs are admitted from areas outside Sydney, that there will be only five clubs based in Sydney."
This was reiterated by Manly themselves during the SL pre war period when in 1995 they sent a letter to the ARL:
The committee did consider the letter at its meeting of 14 March 1995. The meeting (at which John Quayle was present) unanimously agreed that the "future structure of the Winfield Cup competition should contain fewer Sydney clubs". The committee also expressed the view that "the Board should convene as soon as possible to demonstrate leadership on the issue of fewer Sydney clubs".[
citation needed]
The Premiership Policy Committee decided to push forward with a plan to reduce the number of Sydney teams before any player, coach or club had moved to Super League. The ARL had handed out loyalty agreements for the clubs to sign, then immediately went about a plan to get rid of clubs.
Source:
https://en.wikipedia.org/wiki/Super_League_war#Bradley_Report