Before the commission made any recommendation for change, it had to be satisfied a new structure would promote good local government, Mr Riezebos said.
A single Northland Council would share power with seven elected boards. The boundaries of the council wards and the community boards would be structured to protect the voices of diverse communities.
Service centres would be based in nine towns - Kaitaia, Rawene, Kaeo, Kerikeri, Kaikohe, Kawakawa, Ruakaka, Mangawhai, Dargaville - and in Whangarei city.
A Maori board and Maori advisory committee would help the new Northland Council meet its obligations to provide opportunities for Maori to contribute to decision-making.
Similar arrangements existed at Greater Wellington Regional Council and Hawke's Bay Regional Council, Mr Riezebos said.
Northland Council, including community boards, would have 52 elected representatives, one for every 2974 people. Current arrangements have four councils and 61 elected members, or one for every 2615 people.
The Whangarei District Council has rejected the proposal and is surveying residents before making its submission. The Northland Economic Action Group wants a single local government authority.