1. Paper prepared for presentation at "Regionalism: Promise and Problems," a symposium held at the State University of New York at Buffalo School of Law, March 6, 1999 and sponsored by the State University of New York at Buffalo School of Law.

2. The phenomenon of decentralization is widely documented. See, for example, Cervero and Wu (1997), Giuliano and Small (1991), Gordon and Richardson (1997), McDonald and Prather (1994), McMillen and McDonald (1998), Mieszkowski and Mills (1993).

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