why doesn't this work?

Bug, or design intent?

(define-module (make-foo bar)
  (define-structure foo (export ...)
    (open scheme)
    (for-syntax (open scheme bar))    ;**
    ...)
  foo)

Instead of quoting the for-syntax clauses in A-PACKAGE, and then
passing a new A-PACKAGE form to EVAL in the reflective tower maker in
env/init-defpackage.scm, why not have A-PACKAGE expand to a recursive
invocation of itself if there are any for-syntax clauses, and use the
reflective tower maker only if there are no clauses?  (And maybe use a
separate procedure that in env/init-defpackage.scm does nothing but in
alt/init-defpackage.scm signals an error, for the case where there are
for-syntax clauses.)