I believe it was NZ ref Paddy O'Brien who was the first IRB Referee's manager. He was quite dictatorial and outspoken and later went into politics after being removed by IRB. However, the damage was already done because the precedent of prioritising some laws and ignoring others was set.
I think the idea was to harmonise how the game was refereed for the 2007 World Cup. What followed was individual unions and competitions having referee managers who have employed the same style so confusing the way some laws are refereed. Rather than harmonisation we now have lots of enforced interpretations, which World Rugby ignores.
WR should get someone like Nigel Owens, who has a feel for the game and a track record as a good ref, to help as a consultant to sort out the mess. If WR were fit for purpose they should revise the lawbook to make it simpler and ensure the laws are applied the same way (as written) worldwide. Then referees, players, coaches, comentators and fans would know what's going on.