You don't seem to get it.
If you want all NSW 2yolds to race at Menangle whenever the Club wish to programme races to suit them and the TAB then the answer is simple!
Make the experience at the least revenue neutral by subsidising heavy float rebates, similar to Penrith a few years ago, where it was calculated on a radius from the track.
Let's just think for a minute.
If you can win a trial at,say, Maitland, but not run time, why would you then be prepared to outlay huge costs just TO MAKE UP NUMBERS.
Being able to place a horse in a suitable race that, at the worst you can run a tote, surely shows that your first priority is your owner, not the club nor the TAB even more with 2yo.