Takes up the problem of rail redevelopment as it is impeded and confined by the need to pass through multiple jurisdictions. Because federal and even state authority is broadly delegated, almost all localities have multiple centers of authority and a thicket of complicated, sometimes contradictory regulations, restrictions, and requirements. Intergovernmental cooperation is the exception rather than the rule. Discusses by way of example the more than ninety municipalities that make up metropolitan St. Louis, each with its own agencies, commissions, and other sites of authority.