 We have also seen that Mill thinks that charity breeds dependence, rather than autonomy. This is one reason that he defends the adoption of Poor Laws that provide, among other things, work for the able-bodied indigent (PPE II.xii.2). Mill also thinks that government should step in where market forces are unlikely to provide what people need or want (PPE V.xi.8). In this way, he thinks that it is an important function for the state, whether central or local, to create and maintain various aspects of community infrastructure, including such things as a common defense, roads, sanitation, police, and correctional facilities (PPE V.vii.1; CRG 541). He also thinks regulation of working conditions (hours, wages, and benefits) is permissible, because the provision of improved working conditions typically has the structure of a public or collective good for workers, each of whom stands to gain a competitive advantage by conceding a little more to capital than his peers (PPE V.xi.12). If left unregulated, each has incentive to concede more to capital than his rivals, with the result that all workers are made worse-off. State intervention and regulation, Mill thinks, is the best solution to this collective action problem. He also thinks that there are other goods for which market provision will lead to underproduction, presumably because of positive externalities, which is why he thinks that the state should subsidize scientific research and the arts (PPE V.xi.15).