Why not have the city and county merge into Greater St. Louis. Have one Mayor for county/city. For every 100,000 people you have 1 county/city council member. Then for every (present day) city neighborhood and (present day county) municipality (would need to create a few in the unincorporated areas) have an alderman based on x population. So the mayor would be like the president of the US, council members would be like the senate and alderman be like the representatives. One fire department, one police department, one court system.