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well my opinion is that money speaks, and IMO the easiest and best way to set up a comp would be to license a franchise to a certain area. So lets say the ARU is in control and they say we want to have 2 teams in Brisbane, one on the south side and one on the north side, consortiums will come forward but there will be prerequisites of access to a training field and facilities, a 5'000 capacity ground, $500'000 in reserves and a sponsorship package, but a clause which states that the board for the new team requires a representative from each club in the said region to have a member present.
From there the best package based on factors including players, training facilities, corporate plan and funding will be chosen, we could see some of the wealthier clubs back themselves, but there could also be the chance that wealthy benefactors come to the party and form a agreement with clubs to fund the team but use the clubs facilities.
In the Perth Spirit case, we could see the WARU provide the support, similarly in ACT and VRU, but in Brisbane and Sydney i imagine we would see the wealthier clubs will formulate there own bids and in most cases allign themselves with a consortium of some kind.
As long as the process is fair and even, it will be a case of the best package winning, if a team isnt wealthier enough or lacked the ability to put together a bid, then tough luck, with the regional franchising it also means that the ARU can license a bid for Western Sydney, if Penrity/Parra are unable to support it then the NSWRU could step it, althernatively the ARU could step in for the benefit of the game.