Journal of Policy Analysis and Management, Vol. 24, No. 3, 543–558 (2005) © 2005 by the Association for Public Policy Analysis and Management Published by Wiley Periodicals, Inc. Published online in Wiley InterScience (www.interscience.wiley.com) DOI: 10.1002/pam.20114 Manuscript received July 2004; review complete September 2004; revision complete October 2004; revision review complete Decembe...