The northamerica file has this note in it:
# From Paul Eggert (2007-08-17):
# ...
# Other than Indianapolis, the Indiana place names are so nondescript
# that they would be ambiguous if we left them at the 'America' level.
# So we reluctantly put them all in a subdirectory 'America/Indiana'.
I have gone through the mailing list archives from around this time, and also the 8/2005 timeframe (when the Indiana changes were starting to become clear), but I can't find any discussion about this, and Google is failing me.
Does anyone remember when the pros and cons of using three levels for names was discussed?
I just want to read up on some of that background.
Thanks.