To me the first thing that should change is rather than focusing on how to bring down chapters we should be focusing on how to further improve and promote the affiliate network, its as simple as saying Affcom can provide x,y,z to help support the expansion of chapters, it also has a,b,c to assist user groups to expand...
Well, yes - and (at least so far as I can tell from my point of view) there is a huge shortage of support for user groups and smaller chapters.
However, there are some chapters that genuinely don't exist any more and there is not much point having organisations that have effectively shut up shop listed as Wikimedia chapters.