Ddn't City get the bulk of the WTS as well? And the best of the club players? And guys like Kerevi and Kuridrani who weren't signed this year but will be next?
Yeah, City got the bulk of EPS / WTS, but as I said, injuries played a bigger part for Country than City. Rod Davies was another who would have been with Country. So while City always had the better roster, Country's got more affected by the large amount of injuries that affected the Reds squad by the end.
Quirk should have gone with City, but I suspect one of Quirk, Schatz or Browning would've been forced to Country.
The QRU policy was all players that had some relationship Country would go there, then they would balance the teams. As it turned out, there were so many players missing that they didn't really balance the teams, and City then got some of the best club players as well (like Kotze, Gunn, etc).
All this is moot in the end, because as you said City did end up comparatively stacked to Country, but it wasn't entirely by design.
I actually think that Queensland really should have had 3 teams - Country, North Brisbane and South Brisbane, but we would've likely have seen all three struggle like most of the NSW teams.