The ones at the top that you should be aiming at are the ones at the very top. World Rugby, in other words. Wayne Smith hits the nail right on the head in an article in The Weekend Oz. Worth a read.
Yes, there is more that RA could do. But the game is unpopular here compared to others for a huge number of reasons, and, as I have pointed out many times, the majority of those are totally outside the sphere of influence of RA. Like them or loathe them, even if they were twice as effective as they are, we would still be heading downwards.
World Rugby, on the other hand, could do a lot to help the game here, and, by extension, in other markets where it is under pressure.