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Oh, perhaps because of the obvious backlash response if the U.S. stopped building hospitals and schools in an area because an insurgent blew up a car there? Also, at it implies they were probably trying to bribe areas into behaving well (you get $5 if you bring your grades up from a C to an A, but the kid who always gets A's gets nothing).
Having read the memo it sounds to me like Rumsfeld was trying to get out in front of Mr. James Baker and his report later this week.
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