Well, its not about willing. Its more about possibility.

How you can imagine that? For example, server was created one week before other. Its roughly 2-4 levels and maybe 2k power difference which in game is almost certain victory against same player.

Merging is possibly when both have more or less same conditions. For example, cap level with small difference in creation time. And both doesnt have other way to solve problem. At the moment creating new servers works.