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The article highlights the main points of transition to the second stage of decentralization in Ukraine. It is emphasized that the state regional policy of Ukraine can not be reduced to the reform of the administrative and territorial system only. However, it is currently impossible to achieve economic growth and development of the state as a whole without reforming the territorial organization of government and systematic understanding of the place of communities in regional development. The article studies the evolution of voluntary merger of territorial communities. At the transition to the second stage of decentralization, which suggests formation of a subregional administrative and territorial system, it is proposed to consider merger of territorial communities based on the principle of their capacity, consolidating or reformatting them if necessary. This will help to achieve community competitiveness and economic growth.