We have some deep historic issues we have never tried to fix, nor by many [often most] even acknowledge they were/ are an issue, and the chickens have come home to roost.
At the core, the base of the Rugby pyramid is the need for a large number of quality juniors, supported by high quality coaching. With the high quality coaching well spread and in many areas.
The now generally accepted view of Super Rugby [although its take a long time] is Super Rugby, has many flaws, not the least of which are the small number of teams and short season
Hop in Dr Who's Tardis, and go back to the say mid 90's to say mid 00's our national teams had it to themselves, today Netball, Basketball, League [in the SP], Football, Swimming, New forms of cricket, 'national women's sides in cricket and football. All these compete with rugby for media space, national loyalty, sponsorships and people willing to watch.
Over decades the importance of our national teams has over ridden all other decisions. The need for a National Domestic Competition ignored, and more importantly second and third tier competitions ignored, and also bled for Super Rugby.
Sport at its heart, needs a broad and well trained base, our junior competitions are pathic when compared to others.
Rugby, has an aging support base, and mostly male,
Rugby's engagement with the young is beyond poor, and in large part due to how poor junior competitions are, further added to by lack of meaningful domestic matches at division 1 professional, with second and third tier competitions sliding further behind.
Reading the Phil Waugh's article from June in the Fin Review to me he is not the person, he is to close to the past and those admins he has worked with.
IMO rugby needs someone from either AFL or football who understand how to run and develop junior competitions, as the pyramid base is essential to rugbies future.