Yes, it's a state thing. Getting city people aligned is much easier because the area is much smaller in total area, as well as the parcels of land are smaller. Once you get into the open land outside of the city, the parcels of land become larger with smaller number of owners that are very loath to allow the state to "come and take it". You might get one person to agree, but then the surrounding owners say no, and the route has to change yet again.