The wheels of bureaucracy are certainly a problem. The largest peer on our local exchange couldn't even get Akamai to complete a peering turn up because whoever was working on the ticket on the Akamai side got stuck on trying to set up the wrong location. And then months pass, it never got resolved, and then they decided to pull the cache. Akamai had one hand failing to set up new peers and the other hand saying why aren't there more peers, and the two hands never know what the other is doing.

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