Rethinking Romania’s Territorial Organization through Graph Theory: A Multi-Level and Network Governance Model

. The paper proposes a model of administrative-territorial reform for Romania, aiming to reduce territorial fragmentation and increase the financial sustainability of public administration. The model is built on the principles of multi-level and networked governance and introduces a new approach, based on the separation of the hierarchy of settlements from that of administrative-territorial units (ATU). Within this framework, the ATUs are configured as networks of settlements and not as isolated entities. The reorganization retains a three-tier administrative system and reduces the number of counties from 42 to 10 and local ATUs from over 3,200 to about 1,000. Achieving economies of scale through the up-scaling process is the basis of financial sustainability. The organization is formalized by graph theory, in which the ATUs are represented as interconnected nodes through vertical relations of subordination and feedback and horizontal relations of collaboration. The model complies with the provisions of the Romanian Constitution and with the European standards on territorial governance. The article presents both a theoretical framework and a concrete model of Romania's territorial organization. Future research will include GIS simulations and proposals for amalgamation criteria and choice of administrative seats.