There are more than 20 definitions of infill in state law and policy. It creates a needle that's almost impossible to thread.

And away they're going. The grandstands of Churchill Downs will probably always fill with what bourbon-soaked pundit P.J. O'Rourke described as the "tremendous squash and jostle" of seersucker suits and saturnine headwear every May. And yet, out West no fewer than four of California's once-proud of racetracks have entered some form of bankruptcy, redevelopment, or uncertainty. With attendance and handle down at California tracks – as at tracks across the country –