The average person thinks of government as having a monolithic character. If she does not know better, she believes that different government agencies are merely the Vishnu-like arms of one great, unified body. But the opposite is true.
Government is, in fact, a cluster of little bureaucracies.
Each governmental agency, and each department inside that agency, and each division that department, has its own agenda. Call it the Will to Power. Call it the Imp of the Perverse. That is why the notion of joint use is exciting. The downtown San Jose library is one project that stretches across the Balkans of non-cooperation, joining together the City of San Jose Redevelopment Agency and San Jose State University.