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[PunnnnnnK]

I dont think a merge would make the server more active at all, the same goes for a mod change.
The main problem is the small playerbase nowadays in ET. There are barely any new players in the game and the old ones stick to those servers that they have been playing on during the last years.
This makes it very hard to impossible to populate an inactive or a new server. But since TWC is a big clan and has a few pretty active servers I think you should focus more on the fun part instead of trying to force activity on the other servers. Keep a small somewhat active group of admins and regulars and make them to a fun place for people who are playing there occasionally when ND is too crowded/full or when people want to play another gamemode than usually.