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In Korea, there are many trying to consolidate between and among cities and counties, however, only two cases are success. Although most self organizing consolidation efforts failed, many local governments still have working for consolidation. The purpose of this paper to explore why does this idea of city-county consolidation persist on many local government decision agendas despite of high failure rate? and nevertheless, why numerous efforts of consolidation didn't accomplish the success. What factors influence the passage of referenda. For finding this questions,this papers examined the USA city-consolidation cases, and we focused on theoretical model and framework to understand of this real world situations. Leland and Thurmaier's two stage city-county consolidation model(C3 model) and institutional collective action framework suggest that there are too many veto point and high transaction cost to comprehensive consolidation. Therefore we can try to adopt alternative mechanism like as ILA and partnership instead of city-county consolidation which have high social conflict cost as well as high failure rate.