LocationsHow UNDP supports communities in the voluntary amalgamation process
A joint vision: more efficient governance of neighboring communities
April 15, 2025
Sequences from the vision-building exercise for the newly amalgamated administrative-territorial unit, conducted with representatives of the municipalities of Leova, Tochile-Răducani, Sîrma, and Sărata-Răzeși.
In several localities across the Republic of Moldova, the voluntary amalgamation process has been initiated. This is part of the Public Administration Reform Strategy for 2023–2030. Voluntary amalgamation represents a potential solution for enhancing the efficiency of local governance in neighboring communities, in a context marked by territorial fragmentation, depopulation, and limited resources. More than half of the 896 municipalities in the country have fewer than 1,500 inhabitants, which results in small budgets, insufficient staff, and major challenges in delivering basic public services to citizens.
Faced with these realities, more and more communities are realizing that they can no longer address today’s challenges on their own. Voluntary amalgamation has become an opportunity for development - a bold but necessary decision for the sustainable future of local communities. As this is a new experience for Moldova, the Government and the State Chancellery are supporting the process by providing technical, financial, and methodological assistance to the communities that choose this path.
The amalgamation process involves far more than administrative merging of two or more localities. It brings transformative changes to community life - from how local administration operates, to how services are delivered, how budgets are managed, and how communication with citizens is carried out. To facilitate this transition, UNDP Moldova provides direct support to communities that decide in favor of voluntary amalgamation. One of UNDP’s key initiatives is the participatory model of "developing a joint vision", a process that brings local teams together to openly and collaboratively decide what they want for their future, what the priorities are, and how they will work together within the new administrative structure.
In Leova, mayor Alexandru Bujorean and his team emphasized that amalgamation is not just an administrative reform, but an opportunity to rethink local development. “It is our chance to build a municipality capable of attracting European funding, modernising infrastructure, and offering young people reasons to stay in the community.”
The vision building toolkit has already been applied in three clusters of localities that have initiated the voluntary amalgamation process:
- Leova/Sîrma/Tochile-Răducani/Sărata-Răzeși cluster (Leova district)
- Roșcani/Țelița/Calfa/Gura Bîcului cluster (Anenii Noi district)
- Taraclia/Baimaclia cluster (Căușeni district)
From data to a common direction
It all starts with data and information collection and analysis: how many staff each municipality has, what services are provided in each locality, the applicable tariffs, how public assets are managed, what are the revenues and expenditures of local budgets, what are the levels of local taxes and fees.
In the second stage, working sessions are organized around five key dimensions. Each workshop begins with an overview of the current situation, presented by UNDP experts, followed by group work in 2–3 teams involving mayors, local councilors, secretaries, accountants, and other local officials. Each workshop focuses on a specific topic, with a dedicated task - from designing the organizational structure of the amalgamated administrative-territorial unit (ATU) to drafting proposals for optimizing expenditures and increasing local revenues.
The solutions identified by the groups are presented in plenary, discussed, and refined through a collaborative process, where all participants contribute to shaping common directions. As a result, each workshop helps build a clear vision for the respective dimension, which will guide the transition to the new administrative structure.
In the final stage, all the ideas, proposals, and conclusions from the workshops are consolidated. The UNDP team drafts a joint vision document for the amalgamated administrative-territorial unit, which is then presented to and validated by local stakeholders.
This joint vision is not a generic document. It is the outcome of a participatory process grounded in data analysis and working sessions with mayors, local councillors, local staff, and active community members. It addresses five key dimensions:
- institutional structure and human resources
- public services
- local public institutions (such as kindergartens and libraries)
- public assets
- public finances and investment projects
A co-creation and collaboration exercise
The process of building a joint vision is, at its core, an exercise in dialogue and collaboration. It is not easy to bring together teams from three or four different municipalities, each with its own realities and priorities. But experience shows that when people are heard and actively involved, realistic and collectively owned solutions can emerge.
“As a result of the vision-building exercise, we succeeded in defining clear directions and shared objectives for the development of our localities. The agreed vision includes the development of a unified public service system, improved infrastructure, and the creation of a favorable environment for the economic and social development of the new amalgamated ATU. We learned how to work together as a team, align our actions, and think in the same direction, guided by our shared interests,” says Constantin Moraru, mayor of Roșcani village.
UNDP’s support goes beyond drafting a document. It is about fostering a culture of strategic planning, participation, and transparency. The methodology proposed by UNDP Moldova offers a practical and adaptable framework that focuses on local realities and the voices of those directly involved in community administration. From data collection to the validation of the final vision, each step is important in the process of collaboration and planning.
Building a shared vision is not just a technical exercise - it is also an opportunity to rethink the future of local communities together. Through participation, analysis, and dialogue, the localities that choose to amalgamate are pooling their resources and defining a common identity and a clear development path, ensuring a sustainable and resilient future focused on the well-being of citizens.
Tools for informed decision-making
In addition to the direct support provided to local authorities, UNDP has contributed to the development of useful tools for all localities interested in the voluntary amalgamation. The online simulator for voluntary amalgamation – simulator.gov.md – is an interactive tool designed to assist local public authorities in the Republic of Moldova evaluate their available options. It allows:
- check compliance with legal conditions and criteria for voluntary amalgamation;
- identify the potential administrative centre of the amalgamated unit;
- estimate financial incentives from the Localities Amalgamation Fund
By facilitating access to relevant data and analysis, the simulator contributes to increased transparency and efficiency in the decision-making process, supporting local authorities in taking informed decisions regarding territorial reorganization.
