OPINION
MATTHEWS, Justice.
I. FACTS AND PROCEEDINGS BELOW
In 1983, two state agencies, the Department of Education (DOE) and the Adult Corrections Agency, joined in an effort to provide educational programs to prisoners in various state correctional facilities. DOE issued a request for proposals (RFP) on July 5, 1983, which invited interested persons to submit proposals for the provision of education programs within each facility. Those interested...
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