Pablo,
I don't think population is relevant, "rugby population" is relevant. I'd say Canberra has a similar or greater "rugby population".
I think the VRU did set rules along those lines a couple of years back but the majority of the comp just couldn't meet them. The rules were you had to have 3 teams, a Colts, and two playing fields (if I'm not mistaken).
But many teams had no Colts, one club didn't have 3 grades (others arguably didn't), and one club only had 1 field. A one size fits all model doesn't work sadly. The being said I think giving clubs a goal that's realistic to them is much more sensible.
For example conditions you might set could be:
- Powerhouse/Box Hill must field a Colts sides by 2015, which will probably be possible with their raise in Jnr numbers as well as if they linked into local schools/got creative.
- Melb Uni must have something resembling a junior program by 2015 (ie at least U6/8/10 sides). Which sounds silly at surface level but the Unis in Perth and Qld do it, in the end it's just the clubs name.
These are just examples, I'm sure you'd have other ones or reasons why these may be a bit too keen.
The reason why a lot of these are hard to achieve is playing numbers, which are rising due to the Rebels. The other way to raise numbers is more schools and clubs playing the game.
There has to be at least 5-10 more schools in Greater Melbourne that could sustain rugby programs with at least an U16s and 18s. As far as clubs go I think satelite junior clubs linked to senior clubs are the way to go.
For example Powerhouse juniors play in Hobson Bay, they could have a Jnr club at their senior location AND at Hobson Bay. If either club struggles for numbers in any age group they can merge their teams (it's only 30ish mins drive) and when they hit 18 PH will have twice the Jnrs going onto their Colts/Senior programs.