I became highly aware of this when I first started showing Japanese and European dignitaries around the Bay Area.
Whenever we saw some unusual event such as a boat accidentally discharging sewage into the Bay my visitors would ask why the authorities didn't stop that behavior.
To put it simply 'no one is in charge'.
This is because America was settled by frontiersman who created government on an ad hoc basis. We did not have a King who was expanding his empire and expanding his control. These were independent and autonomous people. When they needed water they formed a water district. When they needed fire protection they formed a fire protection district. The same was true for judicial entities and schools. Over time some of these were consolidated but only a few.
America, uniquely in the world is a multilayered highly centralized system of governance.
In my opinion, this is one of the reasons we have so much commerce and innovation. No one is watching to stop the outlaws who create innovation in society.