We still seems to be discussing how we turn Shute Shield into the fabled 3rd Tier. I think that it needs to be seperate.
Shute Shield, Premier Rugby, Dent Cup, and whatever the other comps are called to be run, and completed while Super Rugby home & away season is running.
From there I see two options -
1. A truely representative comp where the players are selected from geographical areas into about 8 sides nationally. Perhaps currently will have WA, Vic, ACT, SA&NT, Country QLD, Country NSW, City NSW, & City QLD.
The super players should be 'encouraged' to play in the sides that represent their 'heritage'. E.g. Godwin - WA, Beau Robinson - Country NSW, Taps - Victoria. No you can't force them but players at that level should be open to some sort of encouragement from the powers that be.
2. Go down the path that others have proposed as then taking the top club from Melbourne, ACT & Perth into a comp with the top 3/2 from Sydney & Brisbane. Perhaps there could be some sort of 'relegation' playoff between 3rd in Sydney & 3rd in Brisbane to see who gets to have 3 teams in the comp.
No matter which options there will be teams that are going to get flogged for at least the first few years. But this has to be a long term view. When kids see they have a pathway for higher honors and a mechanism for being for being seen by Super Clubs they will start playing rugby in their local area and things will improve. It won't happen overnight but it will happen.