of the framers of the constitution was to provide for maximum local self-government with a minimum of local government units and tax-levying jurisdictions. The minutes of the constitutional convention indicate that counties were not used as a form of local government for various reasons. The failure of some local economies to generate enough revenue to support separate counties was an important issue, as was the desire to use a model that would reflect the unique character of Alaska, provide for maximum local input, and avoid a body of county case law already in existence. Instead, Alaska adopted boroughs as a form of regional government. This regionalization tried to avoid having a number of independent, limited-purpose governments with confusing boundaries and inefficient governmental operations. The territorial service districts had amounted to this much, but were seen by many as an important foundation for the government to provide services without becoming all-powerful and unnecessarily intrusive, an argument which surfaced time and time again during various attempts by the legislature to create organized boroughs out of portions of the unorganized borough. Alaska adopted the borough structure by statute in 1961, and envisioned boroughs to serve as an "all-purpose" form of local government, to avoid the perceived problems of county government in the lower 48 states as well as Hawaii. According to Article X of the Alaska Constitution, areas of the state unable to support borough government were to be served by several unorganized boroughs, which were to be mechanisms for the state to regionalize services; however, separate unorganized boroughs were never created. The entire state was defined as one vast unorganized borough by the Borough Act of 1961, and over the ensuing years, Alaska's organized boroughs were carved out of it. Alaska's first organized borough, and the only one incorporated immediately after passage of the 1961 legislation, was the Bristol Bay Borough. The pressure from residents of other areas of the state to form boroughs led to the Mandatory Borough Act of 1963, which called for all election districts in the state over a certain minimum population to incorporate as boroughs by January 1, 1964. A resolution of the State of Alaska's Local Boundary Commission introduced in January 2009 spells this out in greater detail: ''WHEREAS, the 1963 Alaska State Legislature passed, and Governor Egan signed into law, the "Mandatory Borough Act" (Chapter 52, SLA 1963), dictating that certain regions of Alaska -