IMO, the ARU had the right idea with the NRC but they have gone about it the wrong way. The NRC is a competition that they made from scratch, consisting of made up teams that did not have a fan base. What they needed to do is tap into the tribalism of the Shute Shield (Sydney) and Hospital Cup (Brisbane), by using existing teams from those competitions and supplementing them with combination teams to make a 10 team two conference competition organised along similar lines to Super Rugby, for example
NSW Conference: The Top Four Shute Shield teams plus a Sydney Combined team drawn from the players in the seven remaining Shute Shield sides
QLD Conference: The Top Four Hospital Cup teams plus a Brisbane Combined team drawn from the players in the remaining five Hospital Cup sides.
The teams in each conference play the other teams in their own conference home and away (8 matches) , and play four of the five teams in the other conference, two home and two away (4 matches). Two teams in each conference qualify for the semi-finals which are played across the conferences. Its not perfect, but it would be be a start, and it certain wouild be cheaper to run.