Well we don't spend as much money as them. Why would our peak be as high as theirs? The Panthers spend so much outside the cap they brought back a coach with a win rate lower than 50%, who had missed the finals seven times in 12 years, just so they could re-sign his son. They spend a phenomenal amount of money on rugby league:
https://www.penrithpanthers.com.au/news/2022/05/02/panthers-reveal-the-price-of-success/
This includes a $22M HQ facility:
https://www.penrithpanthers.com.au/news/2016/03/30/panthers-open-$22-million-academy/
Meanwhile we don't even own our training ground. You're comparing apples with oranges. However in good news we upped our football related spend from $7.5M to $11.8M last year (compared to Penrith's $17M).
The thing is, this spending needs to be sustained, like Penrith has been able to do. Here's the Eels' football-related expenses in recent years:
2016: $9.1M
2017: $6.3M
2018: $8.3M
2019: $10.0M
2020: $5.9M
2021: $7.5M
2022: $11.8M
https://www.parraleagues.com.au/annual-report/