toward the end of the twentieth century, the US government wanted to save money by closing a small portion of its military installations throughout the United States. While many people agreed that saving money was a desirable goal, areas potentially affected by selecting to close soon reacted negatively. Congress finally selected a panel of people whose task was to develop a list of installations to close, with the legislation specifying that Congress could not alter the list. Since the goal was to save money, why was this problem so hard to solve?