the nfl is attractive because it has many of the best athletes in the world playing a fast paced game that when it is on, it is basically just action.
Canadian Football League (CFL) is materially less popular on a relative basis in Canada mainly because 1) the structure of the game is inferior to the NFL game and 2) the calibre of players are second rate versus the NFL.
i personally think the NFL consultants would say "you have too many teams for your talent base, cut teams or import talent - the latter requires money you don't presently have - so its probably the former. less teams of high quality will improve the calibre of the competition overall which should help you draw in more fans, making more money, eventually enabling you to expand again. once you have the right product, then you work on the fan engagement that draws and keeps fans"
I think the most intelligent second tier below super, is a second XV at each super rugby club that plays a domestic home and away season to save on costs of travel and other overhead associated with staff and facilities. Call it something else (in canada we have the CHL, OHL and WHL) which are all feeder clubs to NHL teams for the most part and increasingly some of these clubs are located in the same city as their NHL affilliate). these clubs are more advanced than a second super tier so they stand on their own a bit more
great melbourne club players get signed up to the Melbourne Rising and eventually to the Rebels and hopefully the Wallabies with each level providing an increasingly professional set up.
i suppose a national club comp could work but sounds like perth probably gets cut out - financial reasons alone would make them a difficult sell to include in an amateur competition....eventually the path here in my mind would be you have super club comp and the best funded clubs play in the Super Club Comp and other clubs play in the local competition
you're going to create haves and have nots with this structure, but its probably already there to be honest.