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From what I can tell, the local government has to provide an infrastructure of laws that permits trade, prevents fraud and (this is the most important part) that is respected by the government itself, that is, that won't be broken just because someone finds it convenient at some point.
I think, but I'm not sure, that this means a system of deeds and titles to prove ownership, so that the concept of ownership settles in. If people are to improve their land, they need to know that it won't merely be taken over after the next change in leadership.
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