I think there used to be, not sure if this is the case, where there was a clause, where if the breach was within a certain % of the cap limit, it would be deemed as a minor breach, and therefore, a fine is sufficient.
There was a case a few seasons back where several clubs exceeded the cap, but it was deemed a minor breach, and fines were handed out.
If that is the case, maybe the RFL need to be a bit more transparent, to explain to everyone, to avoid tongues wagging and fingers pointing