I)aPld, E. Aster, b t i t u t e aP Inter nati~rnsl Sturlles, TIniwrsiltx o f Ca- lif srn&s, Berkelay,

F f r s t wereion of a doaulnent prepsreh far t h e Confsrsnae on A n s l y t i a a l lib- t h d u in Fol i t i cnP Scimencss at %ha U~~lve r s l fp of Uaneeota, Ihy 1966

Prcliminaryr no% to be quo tad ~ t i t h o u t pennZnsion of t he author.

By struutural theory 1 ma? t b p r o ~ e r t i a s af a y a t ~ m a of ohoioe d t b h whiah choice t a n plaoe. Morna%ive theory prwidea the measrinljer of auoh syntmd of uhoiaea in mom1 t a m e wMls behavioral theories e x p l a h whiuh oh6ioea are salscted wlthin the a p t i m presented. No aontemporary work can leave nut any of these diawrasims, eapeof a l l y when it fa reaogniasd thaC narm&ive tkseriea a s ardinnrily tran~latc l f f j n t a the Iatte~ two aategorie~ e i t h e r in terms ~f papdUtiaal YOTUB", trihioh are aeen as appropriate t o a o h i m h g mrellg fdentified goale, or in t e r n af galftiarrl aoclwlfzation, 5. l ~ . , the illatitutional4zstiion of partiwlar normative behaviors whhh the m y people mt. objeot Ja t o develop atmatural theories f&t, wid bu tZx r i u r m ~ t Z v a miil behavioral mas later. Phi0 pattorn sf *ranwen d6velaperrt1*, X e t me make elear, ie a matter of a o n ~ e n i s n c e ~ m t fdeolagy. ft znay be just as uaeful cto be& with m y of tPlst other ~ e ; t e g a r i e s . The only p o h t on Mhiah X would h e i s t ie t h a t a l l three dimenuions are neceaaary for a general theory.

T h i s l l s W U ~ t u r ~ l ~ pfnt ef depwture is to my a n & useful, In studying

- madernlastion and I t s ' ' ezpesbenta l" side might Pleat be described in term of sone of the central yro'blenrr on which m y r a a s m . h ia n m r.rmasntra.t;ed rvhich w i l l help explain both my interest in aamparative t h e o r y and the rassonn for the wdae of' cestajsl developaental ca2egorisa. Thene hsv5 two objeots. F b a t they enable caoperative :wrk of the? Political hdepnf~ation Project ws ammd diverse polit ioal ayatma van.50~ a tagoo of mdernization and hiluatr ial- l a a t i o n * &ratmil, thu iuudela w e eroeasfvoly daaor;ly+tiiva bu.b carr proddo a banis far la mare ~ e n e r a l ~trmaiurnl theory. It i~ the latter concern w&h dl1 pireoccupy ua here.

bne f ~ h r carnmsnt. The k t e r e e t of t h e members of t h i s projeclt i n footmas& on omplar: aS pra%lcma gener~~tea when nackctica POP@ from a condition of relafive scarci ty t o a con&iti.on of relative wealth. mile t h e r e mm m y polit ical thearies a o n c s m d with some sapact 00 the former, not only does the l a t t e r rernEl3.n something d 8 pueole, but f e w are c m a e m d #ith their aantraatm. Bar axe we de~tling ~ 6 t h an iaolsted o~ a e p a a t e a e t of phmamarra but ra ther a continuous prooess, oaourriw unwenly perhapn within partbulm eooietiea, oar m, and even more dramatiaally perhaps between developing areas and highly developed mea* Tho proceaa cgn be identified in terma cf thee historlaaZ atwee. The first l a madernbaation. By this I nrsm that

I ~ c m t x r i e a without m Zndustrfal infraetruotu- can develop numy aP the rolem

i - 3 -

oreated Ln m Fnduattial se-tt- nnd arcM:e which 8 supporting infreretructua muat be areate& in p a t bx p o l i t i o a l rneana, Seaon~lly, there i a indumtrialiaatim i t r ~e l f in whiah the eqmaion of produotive anterprlbs ia ELIT l . n t e e ~ . a t i q fsofor in WOCIS'L l i f e , ~r95ting both a ammd for skAlls hnd eduaathn, as wall as alloca-&ive md dietflbutive mechRlliama. I n b u a t r h l l e e t t i h n , h t h l i s l d e w praducea c o r t a l n struct.rzreb a d organizetion mifomnities tbt mduae the fmportrmce of ~ u o h oldor cr f teria aa between p~ivate and publfc oamerahip. The dimtinction is lee6 and l e s ~ aignifkcent, while pro'blerna of bureawratio d e c i r i i m - e , optimum utgarri~atiun a i m , and the u t i l i a a t f oa of reaourcea affloiently are c m o n concerna of grmhg importance in a11 industrial ayatema. Final ly , w a m entering in %ha United Statiea, &t might be called poatinduatrirrl society, where the dAatinguiafiia(3; feature i8 the generation and uf%lizat ion of new i n f o m ~ % i e i n a't an inaremingly high rate. 1

Beme, the span of eysteme uadergoing development oaa be a w n in t emo o;P a o o n t h w n in which the normal traditianal modern dlabotony fa dilvrded into stodernizatfm: hdwit r ia l iza t lon , and poat iodustr i s l i zat ian , eaoh of wuoh gosea c m t h o r i t i ~ d p o l i t i c a l prohlemn. It ia wainst t h i a pstterna that we w o u l d Uka t o evaluate the ponalb i l i t i ea of diPferent p o l i t i c a l ayatems.

It in now neoeaasry t a l n d i a s t e so- of the "sg.atemun problem a poli ty f a ~ s a in the vzmloua atagea suggeoted. 30r p r e suah prablema mere- teohniernlr. ratherr ' they have importmt normative implicatianm bath far Zha fit- of aim rmn saeiety and othera, and I wou%& inmiat m %he point that $he s s d w of the ~nethode'lagioal w o r k f a l l m aa it were , norm~tivsly. To put the matter 19 e3seaEcal smae, we w a r ~ t t o knm what are the Mibeat" poli.t.lml ayaSema available for each stage a f the m r d l pattern of b e l o p n e n t which, In i t a auboategorfee, rewesenta %oaarnf sstion" , "hdrzatrlsLisstiaaI1~ d the "yoat-induetria1 auoia ty . "

Moat a b p l y stated, the greater iAe degree af mo&ernisat5on, the glceater the complexity of olaaa and atstun ecmfli,ct, d t h the farmer producing pattern aii solidarity snd the latter ~ d 6 - tkia w i t h s o l i ~ r i t y thmwh the frsatim- alfzat ioa of &f l l i e t ian around etafua clua tarn. The relatianahlpa ht~pem oleaa and atstus refleaf the uneven qwli ty o f modemisation and p m l a a a 'lsaass far coalitioner batween a lasa laad atstum 02unfssa paaaesair4g implfaa.kian Tar v a r i a u a

Thia Lmpoaes. vezy speaisl problema incPuding the flmsritoaracgn. problem posed by Eichael Tomg, In wMch talent , ablilitg, and informational creativity form the new Bwia f o r sll ordering of sorteDj, u d in which, on the one band, a funoticmal eXite l a praduoed and, on the other, aoclet;J. ceetr out nsuperflnoua men. '*

- 2 -

ty-pea af oodlio.rt. 9wh mdititxia, by o m b i w ~t;atus leadsrs wi%h . ernerghag &Lrelm groupings, p e r a t e popular p o l i t i o a l power. Idoremer, it f~

eleo puestble Oo Iden t i f y nuoh ambkruztions of new e+h%ue grouphgs and their own crrcrs-mtt* a l l h s a aa when those hue8 on old fsnril iea, but poesesslag Elghly modil;ncll fechnioal sk211sl j ~ i n with emr~2ng working OZWB groupl~ge~ for avouedl~r sevolutionasy purpoaee. Ta put the matter differently, modernleation producea a pattern of a m in dish certain problems, which can only be demcrlbe as 19th aentury fn their eifeatn, om?Ane with the moat ap t.n date 20th aentury me@, thereby Ucraseltng the peesuree on s gavammt aMcB see@ t a a-b with them,

In my opemiw aaument f have h b ~ pnfna t o eepnrste m a d r r r i s r 4 i a ~ Proa industr ia l i~at ion as s proaees. Hodernisation fa the more gemral ome. InUustrla3isation is the leers general condition which definee the -whole, In other words, while m&emiastion Ss Been xe a more ganeral process t h indwtpislizatfdn, ita charaaferiatioa h v e been defined by the latter. 14 is therefore quite puarribla tu 1 h v u n~wrlarr~-rllwtius~ w i t b u t being inaustrid eyetern and the oonfl iat pmducea in t h e absence of an industrial infmatmtursl t o organize and i n t e r n t o tho vasfolls ~sctor-a of t b aammu9mlt.y

. aa it modernizes glaoee tho problem 3qilrsroly an gavemeat. Eenca, the followiw pmpo~;i t lonl The closer t o the s t y e & by ta rnoderqLsing county , . the greater t h e poliLYical prcrblan of controllinti; and intsgrstiw t h e process. If: t h i a aseu-ption is correct, then %he trp-fki*s.+=o - in&uatr is l .5ast ion itself requirea a p o l i t i o a l oyotcm rrSn5ch

is exoeptianally irmll organized and can maintain a high degree of oontml. (An adctitf~ml assumption, which I wi l l not dineu~n ha re , ia that a f t e r th tramition* ~ @ C R U B R of tk special cb r ac t c r i s t i c s of iniiustrialiaed aoeietiea inn1 u- tho mantSacturfng, diasewim tion, and app lka t ion of new b o w l e d g e a% ma m r inomtising rate, the control ~ c h ~ n F 8 m B might be MghU decentralized; mhln m y ~ B B , %ha jndus t r la l Wrae t ruc tu re i t s e l f c~rriex w i t h it certain org.aniaing chsracterintica which reduce the heed f o r d i r e c t government control, althaugh it incrcssee tho rrediatlng: md caordinxtfw pole o f gwernmente.]

Let me fndiaate a b w fur+her qml i f lunt iona Invalved in t h l a approach, Tf the mneal e ida o f the aualpis bsrivesl from chmges in modemisstian ref leoted in overlkpping pra'blem of atratf f i c s t l on, the f unctianal s ide is refbated In how gbvsrnmat %a a concrete llnlt re+dpon& bb fhQclie changes, Far these f have ~urgpu fad a aerles of f u n o t i o m l and ~fruct t t ra l re~uloitaa of government. On t ha i n p u t siae tbeae are Illfornation ma a funcfion and aoo~untabllity as a atruaturs, and on the output aide these are eoerdon ss a funotioa and authori tat ive fiecbion-m;nkine a8 a atructure. ( A n wnlmstive ~ e t of aontfngeIt fnnctiona and atrucfiures have a l ~ a been

. mrked out, but theae nee4 n o t detain us ?tt present.)

The p o l i t i c a l aystsro (wki~b I define in B e r m of s relationafilp between two concrete L r n i t a , emtety and gwernmnnt) ra~pcanfls to anrtajfi pYBRRlmWB n1

moderni~lation, or at least regiatera aame of ita effects such as ahoas re f l ea fad in the emergenae af olaas and status cunt'llcta wblch n o t only represent srlalers

I t o redreas an8 power, but also t o key confli~ts of MUBS and hferest. 3mb vduss inalude bel lefs about %be proprieties of rank in the semisty m well em h t a r e a t e about whoas vie* mhall provall wad wha* p u p b a g s ehotrZd be p s r t Z o t i l q ly &rPvWltap;led* Zn other W O T ~ , d a c e such oonflfata g i ~ e rise t o powerful bellefa d vslues aucrh that they define Iegltkacy, we @an 5ay thtat these become e n h d with much wider m o r a l i a s u ~ s %ban mnre orb.lnary proprieties. If these moral ie~uea renoh sueh proportiora that they proddnce d e m b for B n m bas$s of legitimac;r(an& perhsps embody a dlf'rerent kind of inbividazl identity thm al.FeaW prevalliw In ~oeiety, such aa. ra "new 3mdet nann or parkapa the elimili~tfon of a presumably n l b r one, atrob as s a e + o o l a ~ i s l l a t mental i ty) I t m e m e that the le&tlreacy of a gwemment ia quaetfoned w i t h the p o s s i b i l i t y of s o w e f r o m one type Ccr another rncmlag rapidly, Suob ealuas seal with nm-emplricsl ends bn whkoh a h u h cmipnent of synbolie and meanFngful ~ ~ t f s f e c t i a n f a ~ssc lc fated even wish orbj3larSr wta . The spread of auah normative oonsideratiana 13 deooribed ae the apgl ioe t t io~~ of empirioal m ~ s a s germ,nw t o nun-aupidcal wnh w2riuL w e o r ~ t oall cons-tory ~ a l u e a .

Eat all i ~ l e u e ~ generate corcaumatary v ~ l u e s , howmar, Orc;Unsrg demands, gaaerated t h o u & a m t a m of modemieation, b ~ a l v e the nloarpetitiar of such m u p a ss I d e r a a t groups, ~ tpeo ls l Fhl;ersata, anCl bod5os orgmiaad fa both more t raditPnnel a d more modem eeotors o f the aoclety. Such ampetition of internet iaw1ves emplriad meam gern;ane t a m p l r i c n l ends. This we call instrurrwntal values, &st odLnaxy demands are of this naCuxe. {There them become intereetiag, hewever, i~ whan a r d i n a q iseuecr aze Been in o, wider id001 ogy witb a hortatory or utq i sn objeotive whioh am'hadie a. aynthesie a f omawnmatory snit hstmmelatal values. Bacrples o f nuuh powerful q m t h e a i n are thn Cs%halieisn of mdAev~1 Europe, Proteetatisla during the lsta rdormetion rtnd the hAuntrlalLbtxtian of the Teate Japanese nationalism with its hig5 compone~t of politioa3 religion, or aozntnuniem arffh its e l m t i o n a f the community to a aaored vdue .

We can now s m a r i e e thd points nlreRdy made, As modenisatfon increases th mlmaer~~1lit;y of the gbpulstien, one reaponae ia for gmrrtrnent to maintain effeotive oantral by orest irg a blend of oaneumrrtory ;cad instrumental values arowoCf, the farmatioa of a new soaiefy gemsd to a, Jump over time (a Imp farwarb) i3atio Zar3lustriai i s m t i m a . %%a aamplex of c o n s u w r a t a q arrd iwtrumsmtrrl values is oaa importagt dimanaim for analysis.

If the two mrfeiblea, c~rtrsummatary an& ipetrmatal values, a r e Impadad, h a other ~ ~ f e % l a s nsed: t o bn iden t f f ied ma of equsl impbzltaaoe. These are afruPtuw1 ~e%agoxiea aml lud U w m k c l u a l &rd, pyrsmidal eu%horfmby, *ah h d i e d s

hs petfezm a f au*harlfy. E l e r a m h i o ~ l ~uthar i ty 143 that auaihofitg which is

analogam t c B oom-d n p t e m fm. wMcb tha gapernmer.t (8 aomcrete ~ t ) hars nn'4p nml1 rmannt~h l l i t y to the publto, w?Ale with pgramick2 eyetems* on the croatirary, W t s o f & 0 ~ 0 ~ t a b i l i ; % y hsve met&-autoaoma~w decisfolcsnakhg PoweEsr Baruplea would include ?he states of ta fodspti l syatam ( t o oite only me posrsible came), If my corrtoafiba ie correct, thAt BR r n o d e ~ ~ ~ t l m pmaeeds, the canvplerity of the preceee oreate8 a need for more aad mare hierarclhbal &u-bhosify iP order to ewtrol the prooasa. Ae 3 have suggonted, this ie ~nrtlg due t o the b e q u l i t 2 e s fn s aptam [re fbated in o l ~ a s m d statua soUdari-kiee and conflleta) which can be tutyloited by p d i t i a a l entrepmeura aa& whioh generate p025fical pievanofis, ~ M l e heightened pa l i t loa l oampetitfon areatea those eetmxgementa wMch px4epa.m the g r a n d for c.mrlare of paxt ioa l a wmmnroa.t,ory v d u e ~ of @%%her the '+left" (era in ~ u h ) ur tbe '*xbghtu (a6 In Peron'e A r p t i n a ) . If s gwesnmnt whioh is hleramhioa2 in i%a authority and canslueclstory in it6 valuea canes t o p m r snd areatee a ponerful syntheaie of aonsummatary meanings in ins tmaants1 acts, thla then l a ane chsreoteslatio re8pones t o the problem of modernization, namely the fomrmtion of what I have call@d. mobi;Lilt~ti-p systeme. 3 w h mobilisation sy~tema hgvs a Ilm;lteb, 'tnit impartat role reach5ne; t h e i r vpSimum effeotivmss %n the treaeition from oountrien moving from high rnodardnr~tion to early indura-trialiaatfon (an fn the cane of Russia in 1117 and Yugosl~vi~ and Chins t o b y . ) Bowavex, as a wstern, it has very lbi-hed u t i l f i t y for frmsfomlng . traditional t o early 5 % ~ c l o d e r a i z i ~ ~ 8 5 0 i e t i ~ ~ as Ghana, or Quinea, or &It,

The s l tern~t ivo rrrcael ir whish pyrmd- authority and inatrumtlnfal vs lues p r e n i l i r 9, cornnun one d~xr lng pedods of modemiastion psr t ic r i la r lg i n k t i n Arnar3.ln~. It L-R e ~ r t d n er?dBnda problems, hawwer. Pymadda1 authQrSty, by perrritin~: prsvn l l ing d;lfferenoea in the a m i t y t a smtdn themselves through tLs c o ~ p a t l t i v e confliot of internat gmupe, results in an allooation of ssmwds in t h e system sacording to the s t r q t b and p- ~iatenoe ef orgasisad. cectom of the aocle ty . l e well, where there is a high degree of i r ;s tr tmsntnlism what can be deeortbd as a Iqgstnblers ohoiae* ~t i tua t ion prevails, The result i r p great hespusl i fy and very li%fle oomitolent to thn systoa BB E whale. At beet, governmeat'a role I s reertricted to medlatky: between oompeting power blocs, end If suPfio1enfY.y restrioted in whqt Jf an do by high degrees of 8cocuntsbility, the relsult w i l l ba ''stsgnatioa. It 3 u h eystern8 can work we11 cmly when one of two conditions a m greeentl where the sy~tem "&acsn&dH from a prevdolu3 cnndikion of htchty annmwnmatnrq. v ~ l t ~ a r r [md where A T a w Berwdm* had been defined in eihical term^) so waR the oasa In the United S%atsa wlth fts Rew England cnmunit ies vihieh had Lnatitutianalized the values of corporate refsponn3I-d l l t y mo &f ecrtively that thAy a p e a d throughout the syetcm t a sat am ~ i l e s t monitors i n inutrwwta l behavlar$ or M e sy~Leim

,oat? work if i-t, ahma any rsxooptfonally high r a t e of p a w t h nnd a corresppndkgly tAgh Mps~-offr t , (h axar~ple 2s ~enemela) . O t h e d s e , the

rwenciliatlon system w i l l 'likely result merely in the riae of suoh Ineqrlity aad ita aanaomitmt oamptLiaa in gwenunent that i f produoe~: little o c d t m e n t . t o the aocist$ on the peat of-ita mmbera or ita p p ~ e r r m n t .

Rmca, a osntrsl coaoarn 3a my book the F-o>itfee crf b&i-nSaatiPn2 i a wilth the political probleme which beoome intense an2 critical ~iiban a c o u n t q xemhea a late stage af rnodernieati on, juet prior to indwtrialization and the ocmditions for a mobilieatim sy8tem inorease. On the other hand, aa induatrialisation proceeds, the oondAtians of R reaanallisl t ion ayetern are produced in whieh the relevant ~Ondi t ionf l of sudcess just de~cribad w e l ike ly to be present especially if the ' 9 e w Jeruonlem* w w crea ted by a p r e v i o u ~ mobilization syetem. ?&, in ddACion, fnduetrlaliaat%on baa produced tho prontiaa 05 a high r a t e nf p s p o f f ,

the s e a a t may be ra, we11 functioniry. reoonciliation ;aptem whlch, alth~aph i t may or figly not be ndemoora%io" in t he s o m e of rapmaantative g a v e m n t , muZd nevez theless 'be charaateriaed by %he ~ccountsbility bf its government and .ths inorwesing prtmug of i t a hstrumentd values.

Te can disgram the model. in the following ternel

Value T m e

Fheocmkia Types

O r Reoonciliaticm

Instmental U T l t a r y aligarahiez Type a or

These, in brlef, a r e the arguments whlch X have put forward previously, and f woulb s o w l i k e to address nynell t o aomo of the more directly gavsrntaenttrl ssgeats of thfo pmceea.

L e Onvid IT. Apter, The Politics of Ploderni~ation~ (Chicago, TJniyoraitj of' ~hicego Preaa, 1965).

1 have eugqq~ted %$st. 8 $ ~ b i U s a t i b n 8j'~tem @ h m reht i ' l t eb 16w a ~ ~ ~ u P . f a ' b i l P t y whicti Lef knsa the baoio of tho hloraxahlaal oxgmiaa;t im eP goverpment. C C ~ T T , T Y ~ B R ~ ~ ~ r e o w i l i a t i o n npteans ghoa relatively low hierrno* or high accountst:ility vi th accomtability t m a obacrete farm v5e-a-vda political psrtiec, the milftary, civil servants, Bminesa enterpflsea, trade unions, internsti anal technical ko$ias, averseas missions, e to. However, a R

modernization incressoo, the problma of coordfd3aticm and cont ro l grow graaCur for both types of s p t e m a an tieaoribed above. h Bdbftfon, we need t o aZd s more interea t* p~ssibill ty, namely, that eaoh type f R lsores~lingly vulne2erble f;o the ather. csn be described FLR a apeaial f'w%thinpu+," fn the csse o f the r%aoncilfa%iun a p S m aurilng mdderniaafk~n ( just ~t.8 the threat of a r w o n c i l i a t i o n rs;pa$en reprssents a "treifhinput'' Ln the mqe aP the rnoblliaatian aystera &ing indt~etrfal?.%a*Pon). -

In order to k d l e such probleme, bath fypea of systems sea6 to maarbifbe %be infomation at their c?iaposa2 and inarewe the efiiaierxsy of thetr ae&sfm+ -ng. It is a: thin p o h t that we o m introduce certain general. propositiotla about the poUticp1 moaemiz~tim. A t any point in % b e tha totaZ anount of 3JdormsZion avxilaale 2-n a system Zs the product c r i consumnatory value8 ( n m a t i v e prefal-mcer;] , ine t rmente l valuea (in€ emats] and teahnical knmledge.

1. Itbdemlaa-tion .fmcrsaeea the G o t a l aztouat of infomstfm avdlable in 'both the hstrumerital md teclhn5.asl spehros.

2. The lower t h e & p e e of h % e r ~ c h y , tho mere ~ f i c ~ t lit 3.8 f azl fhs government 6 0 scS ca i d o i - x ~ s t i o n unlaas there 3.a a e h degree of cenoon~un f r o m nu8t s o o o w + a h f l i t y u n i t u .

3. The higher the begree of hlerraroh:r, the easier it is f o r govexwen% t o act upon the ?nfarmabion at its biaposal.

4. In orde r +,o ensme Treadnm ql" action, h i e r s r c N o a l govsmmants tend to amploy cncllrclnn bl or r lo r to cnntrol o r s n n ~ m a t o r y and j n w t r u m ~ n 5 a l w ~ l a l e ~ &ile mulnr izbg dochical ia='orms tim.

In other m-:-11t3, both gatem ma rvlP1 attempt to increase their deciafcm m a l d q eff act5vms3s thowh t h e application of aoercicm. In the aase of the m o b i l i a a t i o n m y a t - r r . , such ccarc ion %ends t o be more o l c e at. It applioe kr terms of the wctl-r~tSon it reoeives and fn part iculsr is most aoercXve in the sphere of oonsutntnstary vaima. T:omatively it restricta p o ~ l t ~ b a l values to a highly symB6l%c s e t of consummntaxy "%emplates~ creatPw a special language.

I !15& degree of aymbolic coarcicn in prepaxed for vislaters ofl this o d e . 'Pbsy I may be east out of the aomuni tg or put $0 death f o r +ialertioiia of symbol. The .

polit ical "~dtohes" tend t o be publ ic ly burned, especially those which are

1 representativles of s a e t o f counts-legitimacy c a m w ~ t o ~ y values. Imtrmantal , valuoa are, on fhs vthsr hu~iL, morv esally containaU bg polioe a m r o l e , or, a o m a i

, Ig, within s p o l i t i c a l pxrty [the u b c a l l e d single p a r t 3 sgstem behng one dwioe. cvloyec?) .

Of courae, i n a roaonailiation system politioal leadera a lso desire t o use coercion, but there a r e several l i m f t ~ an itn spplicmti~n~ impoead by tha diversity md strength of its aaaount&bilfty groups. Boevertheles~, the tendency a x i d s hscauae, Fn t he ab~enoq of csa~rc lon, t h n r a io l f ke ly to be a p a a t deal af corrupfian, and &al ike of the g a v a m n n t , ss rrrell , en - ether foms of reeenf- men* wMch when converted f r m - internat confX1c-k into v s l u s o ~ n f l i o t preparee the groundwork fox either a p c p u l k t mobilization system, or zome other alternattve i n s l u a a %&ewer of pnvrer by groupo with a high coemiva pa ten t i a l whlle possaaing hmtrumental values best represented in the military. Cases in p o i n t have been Burma, Pak5~ta.n~ the Sudan, and m e t mcently, Wigelrla.

Be can now restate Raao of these Concernn in terms of aeversl. funationall and structural categories, relating them t o the analysis of information as s Iuuatianal input m d coercion ae a funoticr-ad output of garrepnmeat. In the disougeian which f allow8 it z50dd 'be paasibla t o eee the relatianshfp between tha gmeral models f l 0 ~ ~ C i o ~ [rnbb&I%~ation m d reooncilisf ion) mnd t k s i r resgcmaeer t o the preeaurea of modernization. r

The, prapoaftion whioh T put f o m s r C in Tbe Pal i t l ea of Modernization is that there - i o t a an hverao reant ionship b e t a ~ ~ n p o l i t f o a l coene-ion w.d infometion. Inoruehaing ~ c a r c i o n dl1 result in 'loeeaa ia i n f ~ ) ~ m ~ t i a n . 3uah losses are not necasearfPy 2iimot and b r s d i s t e , nor are they a11 of the same type. Loseres in ~ b m a t i n n from Increased coercion w e l ike ly t o wcur 5t1 the fol luwhg order1 highmat in t h ~ sphere o-P counter-legitimacy consummatory values* and Ifiw*nt in tsohaiaal in fomat ion rcoultfnfi from bdtwtrialiplatiwn I t ~ ~ o l i . In er&dtian, inatr'~rmmta2 carrPliot i n Ifktplg t o ba d i e p i a a d and inareaa5mgly cwmarted f r o m i n t a r a e f amf l i o t to vdue c o n l l i ~ t . In other workb, %his hpLiea a ttrrPbsfap g~soeas, ths lose of M o m b e . tion about. counter values and the Fnareaaing political sigdificnncs of w h ~ t would otherwian remain in t h e o a t e e r y a f interest 02aiaaa. FBia i m the partiwUrmr problel~i of tho moBillzation syatam.

The problem 1s tha rovsrae in the reeunuilisticm ayeterm. Thus, informa+ian =%kt i n a t n u ~ a n t d a m f l i o t i5 likely to be very high-ao high h d s e 8 that It am- not bs ecrasnad 6nd d u s t a d . In addltim, the content af the iniamet5on i r a

- 8 -

l iko l~v t o be ao confk?%nff that a government i a at a lose abou% hcm beaf:h a02 on it. Vlth I t s nph~re of action l h f t e d by dluerae acrcounta%.bilitp groups, g o v e m e n t i s liErslg. t o f R Q ~ 5 donation of cumpromlee decision, me o a w e for tha t stagnetion. T h i ~ areates groups; for the paquliat cogsummatory valuee w h i ~ h rbputhtc grrvamment Or act 88 B. regenemtlve mwement e g B j m B t the gwernment. If coercion can be ~ p p l f e d ageimt representativee of this moral force, it only rainforcee i t a olaims and @vee i t d d e r l e g i t h o y , ip9 can dbgxwn theee tencknc l r re an fal1o;vaa

I

I - Information G = Coercion

Ke om nuw r n s t s t e these aeartmptione W the form of' aeveral hftpothstioal prapoattianw l

1- That a11 gwnrrrmenta engaging in modernisstion BBOW a trandenoy t o inorewe cce~crion In order to nukutrr-iaa t h e effLciency of decisicm--l

2 Tha-b *ha point ~ 6 ; w h l c l r t U a Lmdency temlna-tes ie mare Qoeraion clause8 tlunh l o s ~ e s i r t MormaGion that effective decisiolzcmkhg f8 reduaedj

3. That chm~ges ir, t h o relationship betwean coeroion and Monnaficm produces chEuyges irr the tspe of g o v e m e n t involved, not only in terms d r n o b i l i z a t l ~ aad r ~ o n c l l l s f i o n sgstema, but also i n t o two intermedaa%e tmes involving hieraxchfoeil a u t h o r i t y an& in~ltruraentsl valuee or pg?.ami&l author i ty snd eor~ucjmator:; v~lues (the latter change ocouring mch less frequently than tLa former).

We aati i%agxam these p o i n t s aa follows:

Eigh

Degree of Ai mrarohy M a ~ m m

The tendencry L E wouzd illustrate tho need for gre.rtex f n f ~ n n r r t i o n on tbe gar+ 62 a mobili~ation a p t e n , and the tendenoy L 3 would indicate the need f a r paater coercion an ths pnr t of the reconci l ia t ion eyetern.

mere are s e v u r a l reanoaa Y h y theao tendenodee w e Ei i f l i f icant , q d t e &aide from their theoretical i n t e r e s t . As a pr~cr t i ca l p o i n t , paxticulaxly far countries h the early stagi3a bf modemiznt lon , mobilis~t.tf6n nptempt, auah a8 Dbana, Guinea, or Xrili, which showed a high d e s e s of f i i e r a o h y through the mechanism o f the n-le par ty stsbe with vmguzrd b ~ t r l u m e n t , aid not agply much crtaroidn Ln the rlrat a t a g e oY t h e i r regimes. Xoreovor, having replace2 o o l o n i s l l y sponsored rsoanoiliation sgotens, at lenat in the 1 ~ s t stage of colonFaliam, they mxs sxce~tionallg high information oyctemn. flmt?ver, a8 the pressure t o puraua mpid modernization oreated problsma of o r g m i z a t i o n an3 clisoipline, the coercion out- p u t s r a r~ id ly incrcaaed m d the process ~f & d e l l n r n e Inf~xmation rnepifoa6ad itself i n set-era myo. In the Ghanaian case, the conversion from A to E occurred 3hrawh 8 militaxg coup dtetat, . r~bi le in iili snd Suinea it results in bureaucratic fomaPimn and the Jry ing up-of so 'wcra of a c t l v f t g an& ent'l~ueiaan,

In tta case of A r ~ n n r c i l l i a t i o n myotcm, tho profrlanr WRS too rnuch inf 'ornatian. 'I%P f a i lu re of thn f eder3-1 ~overnment o f Uigerin, to act on Information received vrsa a result of tho excesrjive d e p c o of r e g i o n a l and. looal wccomta*ility rnskLq neceasergr act ion impossible. The recent militwg t&.aover h a senultad in tho , fo rms t ion of a more hierarchica1. syskrr, t,han pr~vsilad amlier with comesponding i n c r e ~ ~ c ? ~ in coeroion. l n f o r m n t i w r a previously e%*t%ila.ble %hrongh the r e a o n c f l b t i o n system is a t i l l a~atlsble f a r the new rE;r?;hie while the conrolrve ~pportunttiea nerk ly prezent can araate more effective deni~ion-&Ang.

1 oite these caaes beaa~ae t h e i r t5earetical f amulationa were workea out w e l l before the actual chnngos fiz goverment in bath Rlgaris and Ghana ooourred, snd Chey are psrfectly explioable br the moilel. The new regimes ahere fn tho f o l l o a chaxacterintiao r the2 have rncdAw;r IJorru .uky and medium coeroion and conform to the trpe I have c ~ l l e d mllltaqr o l ~ a r c h i a o . Thia ~luater, nhfch i n a l u b a t w o o t h e r a u b t y p a e t h o neo-nercantiliof and modertrielng autocracy-- om be desari'bed with ABCD below as follow^

rrn~b

hdsm

Low Amount

The reasonlw ~vhioh mdsrlias both the concrete csscs ?nd the theory itself ~m be described in a nwnbor uf p m p ~ ~ i t i o n ~ emerging from t h i e iamulat3,on.

1. Incraaeing the degree af hieretrahy narrora the c b a l e of deoisioremsksra and tmhrws t h e ~ u r r i b ~ r of potential ~.caountab i l i t j r elites.

2. The g r e a t e r +he degree o f hierarchy, the nore cronamtrafod t h patver o f

the duci nicn-rnzker.

4. The coeraion ir? applfed nainlgt against po ten t ia l acsountabillty elites,

5 . Tn the d e p e t c ,which potential aoaountability aolitem are eliminate& the greater w i l l becone o c m p tit ion 50 r power brstrresn rem$.nI.m daciaian-makara, and the p e a t e r the need for usniguleti\= akf l le on the par t of the central leademhip.

6. The greater the l o o s of aacounCbbillty elites, and the greater the corn,rreti- ticn between r e ~ a k b g deaiaion-cqkers, t h o center tEe lose af re llable infoxma%i an.

7. The ~ r e z r t e r the lasa o f infomxtion, t he greator t h e naail f o r a ro~? . l la+ iv~ coarciw force cucb ~3 bn =my OZ policd unit.

8. The greater the rn1irn.cn on coercicm, the more significant the role of the ? m y mil police r ~ l d t h ~ greitcrr t h e nriea $0 control them.

1. Increaoina h+emrcEiy - louer nccotm+,tbi,i'lity.

2. C o v r ~ r aecount~ '3i l i ty - greater coercion 3. Greeter c w r c i o n - lol:fcr i n f o r m t i o n

4 . h v e r i d a r n q t i o n - grente~ caorcfon

5. Oreeter coerc! cn - f n c r s r c - l q hierarchy 3

So f'sr I have 8:-itc-d a o m ~ ? - p u a % ~ l d outconne of t h e re lmt ion~hips pasite4 and IndLcnted hovs I would -xiiect; thnm t o 7,mxk in terms of chrrngeo bet~rrsert p a l i t i c d ays t~c is u d o r g o i r g mc\dt.:~r,LzatLon. Tho queet ion is vrhcstker or n o t s m h oategoriee hxve e.-erhental val i 1d.i ty. ThnS they 1~3v-e wcpbicrt l olgnLffcance which can be i l l u s tra$ed by the UP of. i c l ~ r e v t l i o n i a t or ~ l n s c r i p f ive data I hnva no doubt. Even *I..+ 1?rief uee of i l lw ;;i ' ;rr,tiuno such as Cham ard nfgerik m i l d indicate bow even.ts in .t.hoee countries cot16 bn -mqlyzed t o yfa l& I ~ l ~ h 3 y intarnat- t h e ~ r e E f d . remlL,s , But ~ u r stand.~1'53 in 'ht low run uhould be mone demmdfng,

%he d t u r t i o n would would argue t ha t the

h~ dif f ' r r ~ n t for highly induatriaLiaed sao ie t iaa where I gr~ater the degree of in&8trial%za.%b~n, the gxea%ab' fhs

need fir i n f o m n t i o n ; ? - e ~ c e Y the low term tentlency f lp t o m b tl ayatm. - 11 -

The question of n p c r s t ; i o n ~ l i ~ o t i o n u l t im te ly v n l l a n v ~ ~ v e around qmt.5- f ica t fon of useful indicator vcsrisblca w h i c h u t w d aa prototyplclsl for tkm anal;rtioal rr.odnla in a c a r p r a t i v e c o n t e x t . Is othor ~l:orils, the t e a t of a t b e ~ r e t i ~ a l ayatm wouM lie in conyutstion of i n d i c n t o r data s h o w b g sys terns t endonolee b ~ a e d an qta.znti tative me~aurements. guch inrli cqtor data should r e f l e c t ref/iti onships betveen four ~tructural categories, hierarchy and aocountabi l l ty , and ooercian and Informt ion .

I csnnnot;, unfortunately, offer a o T u t i o n s to this problem. A number o f people are presently world% on J u ~ t these iesues. Bowever, it might bs useful to ahow In nht tirechion OUT senrch b s mo~ed.

F b s t , we are t ry j in~ t o translate the et ructmal modele rleeoribtbed above into n implif t e a cornmicat ions models. For v a r i o u s reaoons (relating to the post4.h sf certain elite pattema during modemieation) it l a p6asiblcs to consider three win kin& of mles as the sauroea of inputa of Mormet ion to goireralutm t. These three r o l e s are! pqlitical entreprene~a who p m ~ I d e informat ion about conaumn'uorjl vwlueo; goPltisaJ b r o k a r ~ vrho pmvide inform ti^# about i~lstrument~l vslu6ac and c u o e r r o l e 3pI!~r,inliwt:: i ~ h a pmvldn S.rrahioa1 i n f o r m t i o n about i n d u s t r f n l i zatian and if 3 s o c i ~ l consequences, '?ha thee tgpea of so l e a then m e rezponaible far each of the %brae tgpsa ai messages whlcrh i ' o m the irmformnt.ioa inputs of gevemsment. How the gavernment d@- oottea these messages nnd R ~ ~ R C ~ C B me&% t o them can be svrrluated in teme of thmir aoneumatorg, f n n t m m o n t a l , or toohr.ioal rnean*~ and govarnman* policy waluated 3x1 tem.s of ooercjlvs eu%puts (measured bath in begrlecr or kind). For w p l s , in the extreme oses ai a mabilization ayatem it 38 posaible that meaaqae involvl~lf; coun.ter-leqitiinacy a a m t o r y vsluee are never received by government becauao of coesoion applied pmvioualy, whl la keg iwtmmental values nre also Pgnorecl. The likelihood oi their beoombg translated into ccmsumrratory onea grows. Under s w h airaumtsnoen, coercive outputs ere l i k e l y to be d5raeted to the elimination of a l l political sntrepreneura autaide of governnent , end ~ l l po l i t i ca l brokers who sen& con- f l i a t rneesagea,

Or, in s racanciliafion sgetem E t i a paesible that tbe Fxlstnrmwrtal meeaqea aent by dhs poLlt icsl brokers are v e r g 6Aversa and that the o o a surrrm~tary m e s s s e a sent and received i r i r lSonte that any deoreaae fn aacounG abi l i ty is auk of t h o quaation. Under ouoh circumstances not only i a gavernmen-li l i a b l e t o be unable t o mkn effeotiva decisionu, but th carear rolo speoialiste who send technFc~1 information zre likely to m a h teohnloal W~rmatLm a b s s b for comm-at o q w l w s in a new f o r m of vfaaisntf i laN l@gitim;rtzy i n ~camdebnats w i t h the public desire to modemlee.

m- first ogaratioml %a& than is to dei'ine %he relevant ~ l u s f ~ r s

their ''mea~agea,'~ Ekardalng t h e go-rementa l r2ecoUng yroceea 3.8 the next . atep in order t o BBE tile p o e a i b i l i t g of oobroive output wai1obl.c in the government. T n oan Lta~ram t h i e re la t ionsh ip ss f o l l ~ a t

[~eas@li~es) C o n f l i c t iln ) 1. Political Entreyronoure) 1. C n n ~ ~ ~ v r ~ x t o r y 1

tha aoaiety 1

2. Pol i t ica l Broker8 1 1

i ) t 2. ~mtrurrantal >+ 1

during modernization] 3. Carmar R o l a ~ Oaaupanta ) 1

a. p o l l t i a a l ~n$srasfa) I

0 weptaent;~P Decmdinp, Outputs

Allomtion of 1. Coercfon

decoded msssagaa 2, Decisfona

L t cPiU be readily observed tbat t i n model fcrllom along the Unes 4 sugge~ted by Deutach, Xq.aton and others . In the S f m t oass Isak of sn explicit thearetical c p t m clirecita thm uaer of tkae mcddl ta the rnsaauement of' virtuaY.lg aqr and r i l l l o r n ~ a of puantifiatla br~nva~t10na wbiOb, &brough multivariate an& otthnr f D ~ I ~ I E of s t n t i e t f a n l t r w b @ n t lead t o the %nolation of independent w i a b l w . In the seeand c a s e , tho model i a a so Ugh- general% sed Iom of gonerd ~ayctene azplled by analogy to & polit icid n g s t e m that it lscks sufz ic ien t conten-% f o r e x p l i c i t thaoretlcal puqmea, fmtead, I have Itriac? t a steer between ttcrae ~l te rna t ives t o stifrukte, 3 p r i o l i , certain indepenrlnnt mriableo whtch can l e a d t a change6 in the pnlitF8a2 ~ p s t e m wLi.19 retziniry; sufficient control ao h h t the 4 q e n W t variable, in turm, cz 6 e t r e ~ t e O 38 Fnileyendnnt for the a n a l p i s of mademization Itself.

Tbe aeutech a d k ~ h n model^, u ~ a f u l 3s tksy me, nevertheless re-

4 ~ e a K a r l t Deutsoh, Kames a f Ooaernrnnt (Ken Yorks The Free Presa of Glenoae, I$>>, ami David Ewtaa , A Syatgna h l y a i a of Pql f tSca l L i f e [New York: Job> :Ifley, 155). T h i n eom.en i n not inZenEed aa a -

, criticism of t hese ;varks which represent tm of the met irnnrtm+. ~pprannhnrs t g w d the devc lop~mt of theory in gsliticnl analgais.

lsrgely s i lent about tbe - ic?l~ql rnecllnniam of monoage ncree~ in? u:hich t&-es 2 h c e mvemrrent. The 1:rcsent fo rnu l r l t i un emphnaiaes the conversion of j_nf~m-itioral inputs icto zocroivn cutputc. An nttan~t mill be made to ecroon these in terma af f7.m e d ~ t i c m l i l l m n n ~ i o n s nt the level of eve- m r m t itanlf. Tbene w e : 1) r n l e t i o n n h i p betmen t w o atruoturnl r e ~ n i ~ t t e a

(authoritative decP~iorr-msk'Lng utd noo~untabilit~) in orfier t o deternine the degree of' hierarchy of R ~ ; y s t i 7 m , and 2) the ocreening o? meeaagea in t e m o of t h e i r c o n s ~ t n r y , tmtrumentd and t e chn iod pwilit ies. For the Lst ter , I have developed n set of cor,tine;ent f u n c t i o n s m B ~ t r u ~ t u r e a (~rvh~ch at preaemt represent the lanat, wcll c!enelopefi 8r.t of m a j o r oatepr ies I am u s i n g ) as followsi

D. Integml,icl.ml integer

2. Contiwent str.uct.uros ( i n s z r u n e n t n l inf ormatianal i n p a t s )

n. P o l i t i d reorul tcant

Sorocnfrg for both be% n f s?ceo f.lsco obu l t rmc~ue ly in gommment and repre- oenta t h e trsnslation of :rfomz*,ional b.pu%a goverment, Sudh automatio screening of mssen~es by y n w m r ? r . t i~ f i r ~ t i n tarna of contingent f u n n t i o n e (1 a, t o 1 6.) w U s h ~ f f c ~ t lepktimncy sn4 contingent structrtrns af feo t ing i n ~ t m s n t d action, ( 2 a, t o ? 2. ) 175th t he combinatiw remrd~d ae an a ~ p r a p r i a t e baa18 f o r clec?sInn-c?F,i~ 2nd f rom ld-iich rnlsvant cb~rcfve mnt entent i o i r f e r red .

Such preoocupatians tmm nur at *,ana:f3r, swap f son the a r m r e d m o f poss fb l s Mor-rzztionral i r a n a ~ c t i m s nnrl tb:;q~*!rr?,- t h e t r n n s n c t i m pm cess i t a e l f j away f rorn the a ~ t l c u l f l t i o n or c o d i n g :d. rpsrqF=s and t o ~ v a ~ b tbn ~pubolisrn Q? p o l l t i c a l Ilsr,pq~e m& the mechantam of ~ o n v e r ~ l ~ n in to valued flcuea. E3ch m e of egotan, --bilizetion aF reoonollls t ien, te*& Zsa orente .q apeainl aomunicaf ions network

the p o ' k i t i a ~ l b v n l intu -~rk~ich 8'11 aesr;sges nuat be t raralnted; with the h-ga W i o i e n t l y abutmat fa har,dle the rE oanpanenta, canntmmtory and

In~trumentd [and teahnZoal with thr: la% ter Resn 3s a s ~ ~ b c a i t e g o ~ g of batrtueerrtai). 31 h langmges mmt cont~ln :;ridr, nronr; of nntiguity (undtsrstandfq the politiuaZ

- 14 - nce auc

l-ingul,go i~ I tse l f n s ~ r t of p o I i t i r \ ~ T snfhropoloeg (rioro ac tknn a ga l i t i l cn l ~o e l ~ l o ~ ) nnd raises very importnnt queeti rim conoernhg h w ~ p@lltlcRl l c n ~ ~ - , , , ~ e uifi ~-.dciFC1 n e a n i r g v r r r y or ralafe t o one anothcr.

Thie l a one resesrcri ~ o t o n t i n l o f thc p=ssen t %pprenoh l i n k t w valuen, polftictitl language, =rid i dea logy t o t h e rtnralysier of p o l i t i c a l structwas. Immodi~te ly wn need to kocxte strsteeio Fnfo rma t io~ ix l rolers such aa the " p o l i t f o d et.tre$rensurw, the f lpal3 . t lo~I bro&argt and "career roles", 1 i n M r ~ these .to s o c i n l atruel-me, an the one MQ, -uld, government on t h e other. Such r o l e o r~hioh lead +,a the conver~lon of i n f l o m t i o n a l ing.utc &eclaions and w e r ~ i v e outgtrtn might ~ l n o rserve a R the *trig~t-sring" rof.ea d f e c t i n g how one t,~.o oi system ie t r m a f o r n e d i n t o another.

In these rmarkc I have 7tte~gl;ed to snphnei~e three types af' interent, t h e generz3 one o' 3yatcaa c h ~ n p , the mom apecifio npplicstion 09 types 09 arstorna to .r ptrticular duvalopenbnl objeaOivel mo&exnization, a d the selection of s p r t i a u l a r oombiratian o f ~pproscRee, namely prweas maly~ l i e and Ouncttonnl %n3ly~lla. 'i?le pm"ilaua ai' so tml ly ?vorMng with a co~aplax s e t of w n c r a f ; s :~:/a:ra-agz:cm~ ( sao ia t i en) ma thsfr orft ical subsyotanti (gu ~er ;men t s ) 3rr: ?s-tr~orct i i~~zrf lg oorlpbx. The three general interests In the theors birral sljilera id11 dopead QQ h s ; ~ rwl1 thny c u be t ~ ~ ~ e c l l n t o

v i r .dlcsSor rlrtfn, kt LL l u - . l i t 3 t l v o anO q u u r t i t n t i - ~ e , ard this in turn w f l l aetom5m t 3 e u t i l i t , ~ ai tjle 5mpirical vicir?.;. Urrfartrurately, ws are o t i l l ~t 5 % ~ Segirming of 3 l n n y 2nd lmrd endemor.