“…In practice, most changes at local government level that have been put forward in Estonia by the central government are about territorial reform rather than administrative or administrative-territorial reform. From the late 1990s, every new regional minister developed their own view on how the subnational level of government must be rearranged (Aru, 1998;Loodus, 2001;Õunapuu, 2003;Reimaa, 2007;Kiisler, 2009). These plans from the central government, however, have remained plans.…”