“The state could build prisons, but not just anywhere. The state could borrow money, but not always openly. The state could round up persons who correspond demographically to those squeezed out of restructured labor markets, but not at the same rate everywhere. After twenty years, $5 billion in capital outlays, and the accumulation of 161,394 prisoners (as of April 2004),26 the CDC has become the state’s largest department, with a budget exceeding 8 percent of the annual general fund—roughly equal to general fund appropriations for postsecondary education. The rapid growth of the”