I don't see how any of this can work. I think there's a fair chance that those clubs will simply walk away with their assets, so they won't have those and they'll be trying to run the same number of racedays on the remaining 28 tracks using a failed tiered stakes structure which will be even less sustainable than it is now.
I dealt with John a bit in the late 80s and had a lot of respect for him and some degree of hope about this review but the more I consider it, he seems to have developed a level of perspicacity similar to Winnie's.