Distribution of benefits and costs The Assembly, the legislature of the fictional country of Manufa, is considering legislation that will generate benefits of $15 million and costs of $11 million. For perspective, Manufa's population is 60 million. Passing the legislation is ), and if everyone in Manufa shares equally in both its benefits and its costs, the Assembly will vote the legislation. If the costs of the legislation are concentrated among a few people instead of widespread among the population, those who benefit will be willing to spend up to lobbying the Assembly against the legislation.