I agree with Canberra with a few matches away. My preference would be nine in Canberra and one each in Albury and Wagga.There is nothing to link Darwin and Canberra together other than being territories.
Give Canberra its own team, possibly with Albury getting 1-3 matches.
There would be 6 or 7 cities ahead of Darwin in the pecking order - most of whom shouldn't get new/an additional team.
The NT definitely couldn't sustain 11 home games. The only alternative I could see would be the previously mentioned "northern" team shared between Darwin, Alice, Cairns and Townsville, but it would be very nomadic and hard to pick a central base.