Problem 1: Base Realignment and Closure Commission (BRAC) Toward the end of the twentieth century, the U.S. government wanted to save money by closing a small portion of its domestic military installations and bases. While many people agreed that saving money was a desirable goal, people in areas potentially affected by a base that was closing soon reacted negatively. Congress finally selected a panel whose task was to develop a list of installations and bases to close, with the legislation specifying that Congress could not alter the list. Question: Since the goal was to save money, why was this problem so hard to solve?.