Nor do legislators or administrators create law in a vacuum.

By borrowing to increase agriculture subsidies or to lower taxes, legislators create visible winners and grateful voters.

Panicky legislators created the disparity in 1986 and 1988 after crack, the smokable, cheaper form of cocaine, appeared on the national scene.

Also at the last minute, legislators created a number of new judicial positions, many for patronage appointments.

In other words, legislators and boards create the problem and then pay educators less in order to solve it.

Responding to that concern, legislators in Albany created a school construction authority to build or rehabilitate hundreds of schools in the city.

Mr. Koch threatened to make the legislators accountable for the budget deficit they were creating.

In December 2001 legislators created a simplified tax system for agriculture.

The other basic scandal is the way legislators create their own districts.

The governor and the legislators must create incentives for municipalities to develop affordable housing.