i think the bye was going to be the problem, from what i've read i don't think many in the FFA and A-league teams wanted a bye during the season
Or any other league. It is no coincidence that European football has mainly stayed with even numbers in division sizes. Only once has it happened deliberately that we've had odd numbers of participants within a division:
The Prem level had 21 in 1987/88 with the Champ level having 23 that year - but that was because they decided to gradually reduce the top flight from 22 to 20, rather than relegate two additional teams in a single season. The first year they had only two promotions (costing Oldham entry to the top flight - though everyone knew in advance so Oldham weren't really robbed), whereas the second they had four relegations... amusingly enough Chelsea picked up the extra relegation spot!
The other 3 times had were accidents:
- The regional division 3 (as it was then) North had 21 in 1931/32 - due to Wigan Borough's demise the before the season began and they weren't replaced until the following season.
- The 4th level had 23 teams for 1991/92 and 1992/93... but only because Aldershot went belly-up and had their results voided (after 36 games of a 46 game season) in 1991/92 and Maidstone United were declared bankrupt and expelled in 1992/93. They started each season with even numbers.