179 The Merger Negotiations Initiated by Municipal Councils Five case studies MIHKEL LAAN, KERSTEN KATTAI, RIVO NOORKÕIV, GEORG SOOTLA Introduction The outcome of the administrative reform of 2017 was largely shaped by the voluntary stage of municipal mergers. In simple terms, this meant that during the first stage of the reform (before the deadline of 31 December 2016, as provided by law) the coun- cils of municipalities that did not meet the minimum population size criterion selected their preferred negotiating partner(s) with whom they would form a new municipality. The only substantive restriction was the requirement of sharing an administrative boundary.