Promotion and relegation will remain in place for the next four seasons but then potential new clubs are likely to come from London, Wales or France.
After that the RFL will only consider admitting new teams on a three-yearly franchise system based on clubs' infrastructure, finance and results.
Toulouse say they want to join Perpignan, who will join the elite division next February, and an application from a Welsh club to be based in Bridgend will be considered by the RFL Council in July.
But RFL executive chairman Richard Lewis insists ambitious non-Super League clubs will still be able to reach the top and says the National League clubs have given their backing to the blueprint.
Lewis also stressed that plans for expansion were unlikely to take place until the current television deal with BSkyB expires at the end of 2008.
He added that all 12 Super League clubs will undergo an assessment in 2006 and it was hoped that the six clubs who currently fail to achieve a turnover of £3m would soon hit the target.
"If we don't believe it is sustainable and we don't believe that enough players will come through to give us 14 clubs, we won't do it," he added.
