Mr Finlayson appeared to offer to conduct some of the negotiations with separate hapu, saying while he could not predetermine what a final settlement would look like, "it could include hapu-specific redress."
"The outcome depends on the interests and aspirations of Ngapuhi themselves."
The negotiations have been delayed by a standoff between Tuhoronuku IMA and a group of hapu, Kotahitanga, who are contesting the mandate.
But whatever recommendations the tribunal makes on the matter, they won't be binding.
Mr Finlayson said the North was one of the most economically deprived regions in in New Zealand.
"We know that more Ngapuhi live outside their rohe than within it because of the lack of opportunity there."
Terms of negotiation set out the rules of engagement for the settlement negotiations, and the parties' position on some issues.