Sacramento would become a city of more than 1 million residents under a city-county merger proposed by a special commission. The plan presented to the Sacramento City Council and the county Board of Supervisors advocates a two-tiered metropolitan government that would be unique in the United States, if accepted by residents. The proposal would require state legislation before it could be placed on the ballot. The merged city and county of Sacramento would be governed by an 11-member Council of Supervisors headed by an independently elected mayor, who would be advised by an appointed chief administrative officer. Supporters of the plan say it could bring Sacramento $27.2 million more annually in tax revenues and savings through consolidating city and county departments.