Modern governments universally attempt to influence economic and social conditions,1 but in so doing, they are said to encounter a paradox: the more that modem governments try to control, the more interdependent and out of control they become. Speaking of the pitfalls that occur when program formulas are tied to unpredictable variables such as inflation and employment, Caiden noted, "Seeking to control the economy, the budget has become its prisoner instead."2 In analyzing tax expenditures and loans, Schick observed that as governments "strive to increase their control of private finance, their control of public finance is weakened."3