To promote increased use of port facilities in a major coastal city, a state government has decided to construct a state-of-the-art lighthouse at a projected cost of $10 million. the state proposes to pay half this cost and asks the city to raise the additional funds. rather than raise its $5 million in funds via an increase in city taxes and fees, however, the city's government asks major businesses in and near the port area to contribute voluntarily to the project. the city is likely to face problems in raising the funds because