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Initial revision
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\section* {Acknowledgements}
The authors would like to thank
Vinton G.~Cerf of the Corporation for National Research Initiatives,
David J.~Farber of the University of Delaware,
Einar A.~Stefferud of Network Management Associates,
Stephen S.~Wolff of the National Science Foundation,
and the anonymous referrees.
Their insightful comments have resulted in a much clearer paper.
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