I see there being 5 steps to developing the international game and creating a 'strategy'.
1) Lay your cards out now for the next 10 years, in terms of elite fixtures. 4N, RLWC, Ashes, Euro comp, Pacific Cups etc. State when the fixtures are gonna be. This allows sponsors/tv deals will take interest if they can invest in something over a sustained period.
2) Every club in top tiers in NRL/SL to have an adopted country. I understand that some already do. Warrington had 2 Serbs with them over the summer who I've heard could be heading to Crusaders. Why not make this part of the conditions of accepting a place in SL/NRL. So Widnes and Warrington could team up, send two development officers out to Serbia during the summer when schools are out, in return X Serbian youngsters train with the respective 1st teams/Academies.
3) Create 2 mid season breaks for international fixtures. One during ANZAC window and one mid summer. This three week window in summer would give ENG/NZ to play eachother, PNG/Tonga/Samoa/Fiji down under. Scotland/France/Wales/Serbia/Italy/Spain etc in Europe. Meanwhile Origin would be played in this window in Aus.
4) Change international selection criteria. You can't play for a smaller nation and then go an play for one of the 'Big 3'. Players could however firstly play for Aus, and once they're dropped whatever carry on playing for Fiji, but would never be able to return for Aus. See Aidan Guerra and Anthony Milford - stars of RLWC2013 for different countries, now going to play for a different country. Also allow other internationals to play SOO, If Aus born but Samoa elected you can still play in SOO.
5) Create a Scottish and Irish Academy in UK like there is for North East, and Midlands for u15-u20s. And open age sides targeting League 1 entry in next 10 years from those two countries. Another NZ franchise, PNG, Fiji, Samoa, Tonga, Perth sides to be entered into NRL over same period.