Create an RPC service that can be used by the NetworkController to make RPC requests. This service would be responsible for intelligently retrying failed requests, and for avoid undue network load using exponential backoff, jitter, and circuit breaker patterns. This would be in accordance with the External API Integrations ADR: https://github.com/MetaMask/decisions/blob/main/decisions/core/0002-external-api-integrations.md

This would live alongside the NetworkController, not within it. It would be a separate package export. Whether it's in its own package or not can be a decision for the author, that is less important.