The most dramatic option would replace the permit system with the common laws of trespass.

But the Government acknowledges that the vastness of Aboriginal lands and associated coastline would present difficulties for enforcement.

Another option involves providing open access to communal or public space while maintaining the permit-based system of restricted access to other areas.

The laws of trespass would apply to private residences and appropriate public buildings, and sacred sites in townships would be protected.

The fourth approach involves expanding the categories of people eligible to enter Aboriginal land without having to ask permission.

It could mean that journalists would be allowed free entry to Aboriginal land for legitimate business, but certain people - serious offenders, for instance - would be barred.

Another plan is to reverse the permission-based system to a liberal system with specific exclusions. Under this plan access to Aboriginal land would not require a permit unless a particular area was designated as restricted. Under this scenario, Aboriginal landowners would need to show cause why areas needed to be restricted.

Every year about 20,000 permits are issued in the Northern Territory.

In the discussion paper, Mr Brough says the permit system has operated to maintain or even increase "remoteness - both economically and socially".

"It has hindered effective engagement between Aboriginal people and the Australian economy," he says. "This has prevented Aboriginal people from benefiting fully from their land rights. It has detracted from self-reliance and contributed to Aboriginal disadvantage."