M.A.

POLITICAL SCIENCE
COMPARATIVE POLITICS

PAPER - I
SEMESTER – I,

Author

Dr. AMARESWAR MISHRA,

Retired Professor, P. G. Department of Political Science,
Utkal University, Vani Vihar, Bhubaneswar – 751004

DDCE
Education for All

DIRECTORATE OF DISTANCE & CONTINUING EDUCATION

UTKAL UNIVERSITY, BHUBANESWAR – 751 007
Website: www.ddceutkal.org.

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 COMPARATIVE POLITICS- CONCEPTS AND METHODS

Contents:

Unit I
Comparative Politics: Evolution, Nature and Scope

Unit II
Approaches: Behavioraisml, Post-Behavioralism, David Easton’s Systems Approach,
Gabriel Almond’s Structural-Functional Approach, Marxist Approach.

Unit III
Constitutionalism: Concepts, Problems and Limitations
State in Comparative Perspective: Capitalist, Socialist and Post-Colonial Societies

UNIT IV
Political Elite: Elitist Theory of Democracy

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 UNIT – I

COMPARATIVE POLITICS: EVOLUTION, NATURE AND SCOPE

1. Definition of Comparative Politics:

1.0. Objective:
Comparison’ is man’s instinctive tendency which impels him to
appraise his own conduct vis-à-vis those of others. He is ever keen to
know how people around him live, behave and act. This comparative
interest, according to a thinker, arises out of the following fundamental
urges of a man:

(a) To know how others live and act;

(b) To discover similarities and dissimilarities between oneself and others and,
thus, gain an enriched perception of one’s own self; and
(c) To accept what is perceived to be the best in others. In other words a
reformist motivation.”

1.1. Introduction:

Comparative politics is one of the results of the above human urges.

Comparative politics is a branch of general discipline of political science and
it does not constitute a separate field of study. As the name suggests, it is
the study of political phenomena with a comparative approach and
technique. It is a quest to study ‘political reality’ by means of new techniques
and approaches in a way that the entire area of ‘politics’ is covered. As a
result, it is not a study of the ‘government’, but of the ‘governments’ not a
study of ‘political system’, but of the ‘political systems’, and thereby. It has
covered the entire area of the study of political science.

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1.2. Comparative politics involves the study of similarities and difference
among and between political systems. This may sound simple enough, but
since the days of the ancient Greeks and Romans, every comparative
political scientist has had to face with at least two basic questions, what to
compare and how to compare? To answer the first question, it may be said
that comparison is being made of the political phenomena which are mainly
concerned with politics of different countries.

1.2.1 Meaning of Politics:

Politics is a continuous, timeless, ever changing and a universal

activity. The term ‘politics’ has got three connotations namely, political
activity, political process and political power. Political activity connotes a
kind of human activity, “a form of human behavior”. It refers to the making or
taking a political decision in which the political activation is involved. David
Easton treats it as an action or a political interaction for authoritative
allocation of the values for the society. “What distinguishes predominantly
oriented towards the authoritative allocation of values for a society? Harold
Lass well and Robert A. Dahi describe it as “a special case in the exercise of
power’ and Jean Blundell lays emphasis on “decision making”.

Political process in the study of comparative politics includes three

questions, namely, how the demands are formulated and for what sort of
values, how the government is made aware of them how the machinery of
government converts these demands of inputs into policy decisions
applicable to the whole community, and what is the role of agencies who
participate in the political process to implement the governmental decisions.
Besides, political process refers also to the interaction between
governmental and non-governmental agencies as well as between the
governmental agencies and the environment.

Power is taken to denote, the whole spectrum of those external

influences that, by being brought to bear upon an individual, can make him
move in a required direction. Thus, the study of comparative politics is
concerned with the description and analysis of the manner in which power is

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 obtained, exercised and controlled, the purpose for which it is used, the
manner in which the decisions are made, the factors which influences the
making of these decisions, and the context in which those decisions take
place. Thus, politics is not merely a study of state and government; it is a
study of the “exercise of power”. As Curtis Well says, “Politics is organized
dispute about power and its use, involving choice among competing values,
ideas, persons, interests and demands. The study of politics is concerned
with the description and analysis of the manner in which power is obtained,
exercised and controlled, the purpose for which it is used, the manner in
which decisions are made, the factors which influence the making of those
decisions, and the context in which those decisions take place”.

1.3 The Scope & Horizon:

The scope and horizon of comparative politics have been expanded

both horizontally and vertically. However, there are three ways of delimiting
the scope and horizon of comparative politics: by subject matter, by methods
and by approaches. These categories of limitations are interdependent and
can best be regarded as dimensions. The methods and approaches
dimensions are to be dealt with in the next lesson and in the present lesson
only the subject matter is dealt to define the horizon of comparative politics.

1.3.1 The Subject Matter:

The horizon has become so widened that it is difficult to say what the
subject includes and what it does not include. The reason may be that
political science is inseparable from political life and political life is as diverse
as there are divided interests, ideologies and interests. We have at
presented a divided world ruled by diverse states, ideologies and interests. It
is not seeking unity in the study of world system has expanded the scope of
discipline. Secondly, the approaches and analysis of political phenomena in
comparative politics are not unilinear but they are multivariate. Harry
Eckstein has pointed out that comparative politics is a field acutely in dissent
because it is in transition from one style of analysis to another. For just this
reason it is a field in which many different styles of analysis are at present to

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be found. This being the case, we cannot give any account of comparative
politics.

1.3.2 Scholars Views:

Almond and Powell stated in the very first sentences of their book that
during the last decade, that is, in the fifties an intellectual revolution had
been taking place in the study of comparative government. This revolution
was in reality, as Sidney Verba pointed out, a “revolution in comparative
politics”. For a long time, prior to the World War II, the study of political
science was viewed as a study of only the state and government. But in both
1945 period methodological experimentation and studies in depth of the
relation between social structure and process personality formation and
political process and behavior intellectual innovations such as,
psychoanalytic theory, group theory, the politico-development theory and the
politico-sociological theories of Max Weber, Lasswell, Durkheim, Graham
Wallas, Bentley, Pareto etc. brought revolution in the study of politics.
Further, this revolution was accentuated by the intellectual innovation of
studying comparative government in combination with the study of political
theory. Historically, comparative government with the study of political
theory had been closely connected. The theme of the qualities and attributes
of the various forms of polity was a central concern of political theory from
the Greek periods or through the 19 th century. But in the early decades of
the 20th century, the two fields separated with political theory becoming an
essentially, philosophical and normative subject, and comparative
government becoming a formal and descriptive study of the great powers of
Western Europe.
1.3.3Developments that widen the horizon:

Along with this intellectual innovation, three developments int eh

international field also became responsible, as Almond and Powell had
pointed out, for the expansion of the horizon of comparative politics. These
developments were as follows:

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1) The national expansion in the Middle East, Africa and Asia; the
emergence into statehood of a multitude of nations with a bewildering
variety of cultures, social institutions and political characteristics.
2) The loss of dominance of the nations of the Atlantic community, the
diffusion of international power, the influence of the former colonial and
semi-colonial areas, and
3) The emergence of communism as a powerful competitor in the struggle
to sphere the structure of national politics and ot the international
political system.

For the traditional scholars, the geographical and horizontal scope of

comparative governments and laws of the western countries where the
political institutions were quite developed and data were easily available for
the study. The traditional scholars felt that studying politics outside the
nations of the West was a waste of time for non-western political patterns
which were neither natural nor desirable. But in the post-Second World Was
period, these three developments in the international field which gave rise to
the ‘new nations’ of Asia, Africa and Middle East posed inviting research
setting for new generation of scholars. These scholars were to develop a
comparatively based science of politics in the West and in the East, in the
developed and developing countries both. As a result, the geographical
scope of the study of politics began to expand rapidly beyond Europe and
other Western-styled democracies. For some scholars, it was conceived that
the pendium was swimming too for away from the study of politics in
western nations. The interest in non-Western systems in political science
was closely bound up with the crisis in Western Europe, the emergence of
Italian and German totalitarianism the brutalization of Soviet Communism
under Stalin, important upheavals in China and Turkey, rapid development
in Japan and rise of India as a non-alignment nation. Hence, comparative
politics is a study of politics of all the countries developed and developing
western and non-western big and small on a comparative based approach.

All these developments in different political systems throughout the

world expanded the subject matter of comparative politics in four

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dimensions. First, there was the task of understanding new states. There
were many societies where the forms and western states had not grown
from within, but had been improved or chosen by a political act of will. The
match between political and social institutions was imperfect and the newly-
created state was not intelligible except in relation to the political system of a
preexisting social structure, for example, the structure of languages and
castes in India, of tribes in Africa, of Islam in all Muslim countries. Secondly,
there was the transformation of the relations between state and society in
the West. It became difficult to draw a line between state organs and other
public organization, and the growing number of large private organizations
which were associated with public interest because of their strategic
positions in economy and society. Thirdly, there was a changing
environment of the social science. There were the beginnings of modern
sociology, social psychology, social anthropology etc. And the facts of the
case broadened the discipline and involved virtually all the social services in
the study of comparative politics. Finally the progress made in the study of
small groups in different settings and different societies had expanded the
dimensions of the study.

1.3.4Vertical Expansion:

All these dimensions have led to the vertical expansion of the subject
matter of comparative politics. Vertical expansion refers to an attempt to
relate the political process to broad social and economic conditions the
attainment of depth and realism in the study of political system enables us to
locate the dynamic forces of politics wherever they may exist-in social class,
in culture, in economic and social change in the political elites, or in the
international environment. These dynamic forces are studied with the
behavioural approach in which the focus is on the study of the actual
behavior of the incumbents in different political roles rather than on the
content of only legal rules, ideological patterns or institutional functions.
Therefore, the study of infrastructure, social setting, environmental planning,
economic development and international events, all are but related with the

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 political process and comparative politics. “In search for reality” includes the
study of all these which are not necessarily and strictly political.

Thus, the horizon of comparative politics is ever expanding and it is

very difficult to delimit it. The reason is that it deals with political life and in
the contemporary world; virtually every problem that confronts us tends to
be political. All social and economic problems are but the raw-materials for
political action. The Industrial revolution the technological change, the arms
race, the military strategy, cybernetics and software development, all these
have created a lot of problems which go beyond the ability of any individual
or any group of private individuals to solve them. These problems can be
effectively tackled only by the government which has a claim to be based on
legitimacy of authority. As sphere of governmental action touching every
aspect of human life political, economic social and cultural is expanding, so
also the dimension for the study of comparative politics is expanding. And,
now it has been expanded so much that it is very difficult to say what the
subject matter includes and what it does not include. Even some scholars go
to the extent of saying that because of the development of the study of
comparative politics, the discipline of political science has lost its identity.
1.4 Key Words:
1. Political Activity
2. Political Process
3. Political Power
4. Authoritative allocation
5. Vertical expansion.

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 UNIT – II
BEHAVIORALISM

1. INTRODUCTION:
Behavioralism is one of the most modern approaches to the study of political
science. But the development of this approach is spread over the whole of the 20 th
century. It was towards the end of 19 th century that political scientists had realized
the demerits of the traditional approaches. It was as early as 1908 that Graham
Wales and A. F. Bentley strongly advocated on the study of psychology of the
individual is meaningless. Behaviour of the person plays an important role in all
political phenomena. Bentley emphasized on the role of the groups. In other words,
he advocated the study of the behavior of the individual as a member of the groups.
Charles, E. Miriam stressed on the ‘way of functioning’ of the individuals in the polity.
To him, study of political science will be more scientific when one analyses the
behavior of the man instead studying the institution. He presented his views in
various international conferences during 1923 to 1925 which helped in the growth of
behaviouralism.

1.1 BEHAVIOURAL REVOLUTION:

It was after the second World War that Behaviouralism as a revolution
entered into the field of the study of political science. Being influenced
by the sociologists like Max Weber, Talcott Parsons, Robert Merton
and many others; political scientists realized the importance of
resolving social problems. Many scholars like, Lasswell, David Easton,
G. A. Almond, Powell, Herbert Simmon etc; produced many
commendable pieces of research which were based on behavioural
approach. The committees on ‘political behaviour’ and ‘comparative
politics’ instituted by the American Political Association also helped a
lot in bringing about behavioral revolution. These efforts helped
behavioralism to flourish in a short period of time.

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1.2 Meaning of Behavioralism:

Behviouralism emphasizes scientific, objective and value-free study of

the political phenomena as conditioned by the environment, categorically the
behavior of the individuals involved in that phenomena. As such, it stresses
on the role of the behavior of the individual at various levels and the scientific
analysis. Behaviouralism is a reaction against traditional political science
which did not take into account if human behavior as an actor in politics.
Behaviouralism is different from behaviourism. Behaviourism is narrow in its
application. It referes to the response of an organism as aroused by some
stimulus. It does not consider the part played by the feelings , ideas,
prejudices that determine the response of that individual. Behaviouralism, on
the other hand, does take into account the role of the feelings, ideas and
prejudices. David Easton distinguishes between behaviourism and
behaviouralism through a paradigm. The paradigm adopted by behaviourists,
according to him is S- R (Stimulus-Response). But the behavioural lists have
improved it by making it as S-O-R (Stimulus-Organism-Response). David
Easton regards behavioural revolution is an intellectual tendency on the part
of the political scientists to study empirically the political behavior of
individuals.

1.3 Features of Behaviouralism:

Commonly agreed features of Behaviouralism are the following;

1. It is a protest against the abstract nature of the traditional political theory.
Traditional theorists dealt with only the institutions and not the behavior of
the individuals involved. Behaviouralism, on the other hand, studies both
the institutions and the behavior. However, behaviouralism ignores
institutions only to the extent of their theoretical description. When the
institutions provide a hint to the political behavior of the individuals
involved, the institution becomes of importance to the behaviouralists. And
they consider institutions as “patterns of individual behavior that are more
or less regular and uniform. They are treated as sources of influence that
shape political behavior.”

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2. Behaviouralism adopts scientific method in studying political phenomena.
It is more empirical. It comprises of such techniques as observation,
interviews, survey research, case studies, data collection, statistical
analysis, quantification, etc. Model building is another method of the
behaviouralists like Easton’s and Almond’s model of political system and
Cybernetics model of Karl Deutsch.

Features of Behaviouralism:
1. Empirical studies
2. Inter-disciplinary study
3. Scientific Theory building
As such, according to Easton behaviouralism has remarkable features
like:-
1. Regularities
2. Verification
3. New techniques,
4. Quantification
5. Values – Value free
6. Systematization
7. Application of the theory.
8. Integration.

Regularities stand for discernible uniformities in Political behavior

which can be expressed in theory-like statements facilitating explanation and
prediction of political phenomena.

Verification implies acceptance of only that kind of knowledge which

can be empirically tested and verified.

Technique symbolizes emphasis on the adoption of appropriate tools of

data collection and analysis.

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 Quantification stands for the advocacy of rigorous measurement and
data manipulation in political analysis.

Values, according to behaviouralists need to be separated from ‘facts’.

Ethical evaluation is one thing, empirical explanation is another. Objective
scientific enquiry has to be value-free or value-neutral.

Systematisation implies the behaviouralist’s conscious effort to build

causal theories on the basis of logically interrelated structure of concepts and
propositions.

The pure science advocacy is directed toward forging a link between

theoretical understanding of politics and application of theory to practical
problem-solving.

Integration aims at mixing political science with other social sciences. It

marks a conscious move to encourage cross-fertilization ideas across the
boundaries of separate social sciences.

1.4 Achievements of Behaviouralism:

1) Use of such methods as context analysis, case studies, sample survey,
interviews and other sophisticated quantification.
2) Theory building.

1.5 Criticisms:
1) Behaviouralism over emphasizes on techniques.
2) It is criticized as Pseudo-politics – as it aims at upholding only American
institutions as the best in the world.
3) Emphasizes behavioural effect at the cost of institutional effect.
4) Emphasies static rather than current situations.
5) Value – free research, as it argues, is not possible.

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2.0 Post-Behaviouralism:
Introduction: Behaviouralism dominated in the study of political Science for a
decade. However, the behviouralists drifted away from the path they had
chosen for themselves. They got absorbed in finding out new techniques and
methods for its study. In the process they lost the real subject matter. They
got divided into two groups – the Theoretical behaviouralists and the positive
behviouralists. While the former laid emphasis purely on theory building, the
latter concerned themselves with finding out new methods for the study of
political phenomena. Consequently, certain behaviouralists got disillusioned
with behaviouralism towards the close of sixties. The main attack upon
behaviouralism came from David Easton who was one of the leading
behaviouralists. According to him, there is a “post – behavioural revolution”
underway which is born out of deep dissatisfaction with the attempt to covert
political study into a discipline modeled on the methodology of the natural
sciences. In their efforts at research and application of scientific method, the
behaviouraists had gone far away from the realities of social behavior. In this
way, political science again lost touch with the current and contemporary
issues.

2.1 Reasons for the growth of Post-Behaviouralism:

The chief reasons for the growth of post-behaviouralism are- failure of

the behaviouralists in addressing the social problems for their solutions; over-
emphasis on research methods and tools, and consuming more time on
conceptualizing or theory-building.

2.2 Features of Post-Behaviouralism:

Following are the characteristic features of post-behaviouralism-

1. It is a movement of Protest. It is a protest against the wrong direction
which the behaviouralists had given to political science. As such, the post-
behaviourasists stressed on “Relevance and Action”. They held that
political science should be directed towards solving actual problems. So
that it would be more relevant to the society. Political Scientists, according

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 to them, should once again try to view political situation as a whole and in
a right manner. They should deliberate on the basic issues of society like
justice, liberty, equality, democracy etc.

2. Opposition to ‘Value-free’ concept:

David Easton, in his modification says that “value are inextinguishable
parts of the study of politics. Science cannot be and never has been
evaluatively neutral despite protestations to the contrary. Hence to understand
the limits of our knowledge we need to be aware of the value premises on
which it stands and alternatives for which this knowledge could be used”.

3. Future-oriented (Predictability):

Post-behaviouralism wants that the behaviouralists should link their

empirical methods of research and approach for making theories that
could solve present and future social problems. It must thus be future
oriented. According to Easton, “Although the post-behavioural revolution
may have all appearancesof just another reaction to behaviouralism, it is
infact notably different. Behaviouralism was viewed as a threat to status
quo; classicism and traditionalism……… the post –behavioural revolution
is, however, future oriented. It does not seek to return to some golden age
of political research or to conserve to destroy a particular methodological
approach. It seeks rather to proper political science in new direction.”

4. It is an Intellectual tendency:

Post-behaviouralism is both a movement and intellectual tendency. As

a movement of protest, it has its followers among all sections of political
scientists “in all generations from young, graduates to older members of
the profession”. Easton says, it was “a genuine revolution, not a reaction; a
becoming, not a preservation; a reform not a counter reformation.”

It would be wrong to identify post-behaviouralism with any particular

political ideology. The whole improbable diversity-political, methodological

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 and generational – was bound together by one sentiment alone, a deep
discontext with the direction of contemporary political research.

David Easton, as such, speaks of the following as important features of

post-behaviouralism:

1. Importance to substance over technique:

Post-behaviouralists say, it may be good to have sophisticated tools of

investigation, but the more important point is the purpose for which these
tools are being applied. Unless scientific research is relevant and
meaningful for contemporary social problems, it is not worth being
undertaken.

2. Emphasis on social change and not social preservation.

3. Greater focus on Reality.
Political science should address the needs of mankind by identifying
the future social problems and by suggesting solutions to such problems.

4. Recognition of the existing values:

According to post-behaviouralists, unless values are regarded as the
propelling force behind knowledge there is a danger that knowledge would
lose purposes. If knowledge is to be used for right goals, values have to be
restored to the central position. Human values need protection.

5. It is Action-oriented:
Knowledge must be put to work. “To know”, as Easton points out “is to
bear the responsibility for acting, and to act is to engage in restoring society”.
The post-behaviouralists as such, ask for action-science in place of
contemplative-science.

According to post-behaviouralists, once it is recognized that the

intellectuals have a positive role to play in society, and that this role is to try to
determine proper goals for society and make society move in the direction of

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 these goals, it becomes inevitable to politicize the profession-all professional
associations as well as universities thus become not only inseparable but
highly desirable.

2.3 Conclusion:

Post-behaviouralists advocate that political science should be related

to urgent social problems. It should therefore be purposive. Political scientists
should find out solutions to contemporary problems. The research should be
relevant to the understanding of social issues. Political scientists must play
the leading role in acting for the post-behavioural change. To quote Easton,
”the post-behavioural movement in political science is presenting us with a
new image of our discipline and the obligations of our profession.”

3.0 Marxian Approach:

3.1 Introduction:

Karl Marx is in fact the greatest political thinker of all times. No other
political philosopher has aroused greater controversy or exerted more
influence on future generations as Marx. There have been other great thinkers
like Plato, Hobbes or Rousseau but even they could not excite imagination of
worth of millions of people in all the countries of the world. Marx is the only
philosopher who enjoys this distinction. He is intensely hated by millions,
admired by millions, and almost worshipped by millions. His greatness and
influence is quite clear from the fact that great efforts have been made to
refute him. Indeed the whole history of political thought in the twentieth
century is a struggle between the opponents and supporters of Marxism.

3.2 The Approach:

It may be pointed out that Marxian approach to politics means taking
note of not only the writings of Marx, Engels and Lenin but all those of a
galaxy of later writers such as Luxemburg, Trotsky, Gramsci and many others.
Further, an explicitely ‘political’ treatise cannot be found in the whole range of
classical Marxist texts. Miliband rightly points out, “a Marxist politics had to be

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 constructed or reconstructed from the mass of variegated and fragmented
material which forms the corpus of Marxism.”

3.3 Marx on Individual:

The individual, according to Marx, is individual-in-society. Individual
has no meaning without the society. Marx says, “society does not consist of
individuals, but expresses the sum of inter-relations, the relations within which
these individuals stand.” As such, Marx is different from the liberal view which
conceives individual as atomized, insular and self-contained.

3.4 Marx on Society:

All societies, according to Marxists, in history, have been class

societies. The contending classes from ‘freeman and slave, patrician and
plebian, lord and serf, guild-master and journeyman to bourgeoisie and
proletariat in the epoch of capitalism have stood in constant opposition to one
another. All class societies are characterized by domination and conflict which
are based on specific, concrete features of their mode of production. Class
domination has been a historical process signifying a constant attempt on the
part of the dominant classes to maintain and extend their domination on the
society.

3.5 Marx on Politics:

Politics, in Marxian perspective, can be understood only with reference

to the nature of prevailing societal conflict and domination. Politics, as such,
conceived in terms of the ‘specific articulation of class struggles.’ Generally
speaking, in Marxian view politics has a derivative and epiphenomenal
character. The political life processes are considered as part of
‘superstructure’ standing on the economic structure of society. The subsidiary
and derivative character of politics can be well deduced from the following
quotation from the ‘Preface’ to A contribution to the critique of Political
Economy:

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 “In the social production of their existence, men enter into definite, necessary
relations, which are independent of their will, namely, relations of production
corresponding to a determinate stage of development of their material forces
of production. The totality of these relations of production constitutes the
economic structure of society, the real foundation on which their arises a legal
and political superstructure and to which there correspond definite forms of
social consciousness. The mode of production of social consciousness. The
mode of production of material life conditions the social, political and
intellectual life-process in general.”

Hence for Marx, Politics, economics, culture and ideology are all
inseparably intertwined. The ‘forces of production’ at a particular stage of
historical development, are matched by definite ‘relations of production’ that
characterize the society. The relations of production taken together constitute
the economic foundation of the society. The legal and political institutions
(superstructure) stand on this “real foundation” of economic structure.

In the Marxist view, the real nature of politics, has to be understood

from “the hidden basis of the entire social structure.” Ralph Miliband rightly
says that politics is thus ‘a very determined and conditioned activity indeed –
so determined’ and ‘conditioned’ in fact, as to give politics a mostly derivative,
subsidiary, and ‘epiphenomenal’ character.”

3.6 Conclusion:

Marx laid greater emphasis on the materialistic or economic

interpretation of history. According to him, the capitalists by controlling the
means of production and distribution also controlled not only the political but
social and economic structure of the society as well. Especially he stressed
economic aspect of life. According to him, every other activity in the society
revolved round economics. All social and political activities are based on
economic activity.

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 David Easton’s System Approach

4.0 Introduction:

The concept of political system has acquired wide currency because it

directs our attention to the entire scope of political activities within a society.
System approach to political institutions and processes by the behavioural
school has given birth to this new concept. Ever since the Greek
philosophers spoke on Political Science, different institutions and processes
which have in them some similarities explain the political institutions and
processes which have in them some similarities an difference. In the
contemporary world, however, a number of American political scientists have
set-forth the systems approach as the most useful framework in this context.
The credit for applying this approach in Political Science goes to David
Easton, G. A. Almond and Morton A. Kaplan. This approach has served as a
convenient tool for macro analysis of political phenomena. But the exponents
of this approach differ in their visualization of the political phenomena. But,
the exponents of this approach differ in their visualization of the political
system.

4.1 Evolution:

The concept of Systems Theory dates back ti 1920s. Ludwig Von

Bertallanfy is regarded as the earliest exponent of the general systems
theory. He employed this theory for the study of Biology. It is only after the
Second World War, the social scientists demanded for the unification of
sciences for which they took the help of the systems theory. However, when
the general systems theory in its abstract form traced back to natural
sciences like Biology, in its operational form they are found in Anthropology.
Then it was adopted in Sociology and Psychology. It was in the mid sixties
that the systems theory became an important tool in analysis and mode of
inquiry in Political Science. Among political scientists, David Easton ahs been
the first to apply this theory to political analysis. It may be noted that this

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 theoretical developments in Social Anthropology have had a profound impact
on Political Science. The name of two sociologists, Fobert K. Mertaon and
Talcott Parsons are noteworthy in this respect. They had made significant
contribution to systems framework. In Political Science, while David Easton
and G. A. Almond have applied systems analysis to national politics Morton
A. Kaplan has applied it to international politics.

4.2 Meaning of Political System:

In order to understand the concept of political system, we must know

what a system is. According to Ludwig Von, “it is a set of objects together
with relations between the objects and between their attitudes.” Morton A.
Kaplan says, “………it is a set of interrelated variables, as distinguished from
the environment…..” An analysis of these definitions shows that system
embodies the idea of group of objects or elements stating some
characteristics process. Briefly speaking, a system implies the
interdependence of parts and a boundary of one component in a system
change, all other components and there systems as a whole are affected.
Thus, systems mean a group of individuals or things which interact with one
another and the environment around.

There are different types of systems, like solar system, social system,
economic system, cultural system, organic system, mechanical systems etc.
However, there is a different in the elements of other social systems from
those of social system. Save the social system, in all other system, the
elements are totally involved. But in social systems, the individuals are not
totally involved. Only a particular of the individual is involved.

4.3 Pre-requisites:

There are three basic pre-requisites of the general system theory,

namely, (i) concepts of a descriptive nature, (ii) concepts intended to highlight
the factors which regulate and maintain the system and (iii) concepts
concerning the dynamics of the system.

21
 Concepts of a descriptive nature include those concepts which
differentiate between open systems and closed systems or between organic
and non-organic systems. Understanding of the working of the internal
organization of the system, the concept of the boundary, inputs and outputs
also fall under this category. Concepts intended to highlight the factors that
regulate and maintain systems particularly deal with conditions responsible
for regulating sand sustaining the functioning of the systems. These also
involve many process variables like feedbacks, repair and reproduction
entropy. On the other hand, concepts concerning dynamics of the system
refer to the changes which involve fine distinction between nations of
disruption, desolation and breakdown along with the study of such concepts
as systemic crisis, stress, strains and the decay.

Many scholars have tired to give a precise meaning to the concept of

political system. Common to most of their views is the association of political
system with use of legitimate physical coercion in societies. According to Max
Weber, “Political system is a human community that successfully claims the
monopoly of the legitimate use of physical force a within a given territory”.
Weber also says that the legitimate force is the thread that runs through the
action of the political system, giving it its special quality and importance and
its coherence as a system. Laswell and Kaplan consider political system as
shaping and sharing or power with the help of threat or actual use of ‘severe
deprivations’ for non-compliance. Robert Dahi defines political system as
“Any persistent pattern of human relations that involves power, rule or
authority”.

The aforesaid definitions of the political system have been severely

criticized by Almond. According to him: Max Weber only provides a definition
of a state that a political system. Lasswell and Kaplan fail to explain the
concept, “severe deprivation” as such he has failed to distinguish between
the political systems and other systems. To Almost Robert Dahi also has
failed in distinguishing political systems and other systems which also has
failed in distinguishing political systems and other systems which also has

22
 failed in undistinguishing political systems and other systems which also has
failed in distinguishing political systems and other systems which also enjoy
power.

4.4 Easton’s views on Political System:

David Easton defines political system as “Authoritative allocation of

values with threat or actual use of deprivations to make them binding of all”.
An examination of Easton’s definition shows that it implies three things: (i)
allocation of values (ii) allocation as authoritative and (iii) authoritative
allocation is binding on society, which are the chief concern of the political
system. As such, to David Easton, political system means systems of
interaction in any society through which binding or authoritative allocations
are made.

4.5 Almond’s views:

Almond defines political system as, “The system of interaction to be

found in independent societies which perform the functions of integration and
adaptation both internally and externally by means of employment of more or
less, legitimate physical compulsion”. This definition indicates three important
aspects of the political system, namely; (i) a political system is a concrete
whole which influences and is influenced by the environment. It uses
legitimate force as a measure of last resort, (ii) there is no interaction
between roles and play, and (iii) existence of boundaries.
Comprehensiveness means that the political system includes all systems.
Out of these above aspects, we find that the definition of Almond ascribes
three characteristics to the political system: (i) comprehensiveness, (ii)
interdependence and (iii) existence of boundaries. Comprehensiveness
means that the political system includes all types of interactions that take
place among the roles and structures of the systems. Further, political
system includes both formal and informal institutions as well as processes.
Interdependence means close connections between the components or
elements of the political system. A change in one element produces changes

23
 in all other elements. Boundary implies a line of demarcation between the
political systems and other systems. According to Egene Mehan, Almond’s
definition of political systems combines Weber’s definition of the state,
Easton’s conception of authoritative allocation and Talcott Parson’s view of
the functions of political system in the society.

4.6 System and Sub-system:

Before analyzing the features of the political system we must make a

distinction between systems and sub-systems. According to Robert Dahi, one
system can be an element, or subsystem of another system. For example,
earth is a subsystem of the universe. Accordingly, the legislature is a
subsystem of the political system and the political system is a sub-system of
the social system. It should be noted that the systems theory has been
applied to political analysis in three different ways; (i) political system is
viewed as a “guided missile” seeking political goals, (ii) political system is
viewed as “converter” of inputs into outputs and (iii) political system is
considered as “kind of structures” performing particular types of functions.
According to the first concept, political system acts like a guided missile,
which automatically hits the target Its components operate in a way that
automatically adjusts the course of the system in the light of pressures, both
internal and external, towards its goal. In regard to the second concept,
political system essentially functions as a converter. It converts the inputs
into outputs. The third concept refers to the structural function analysis of
Almond. Originally this was developed by Talcott Parsons and Marion Levy.
However, Almond has adopted it in political science. This concept indicates
that the political system is composed of particular for the maintenance of the
system.

4.7 Characteristics of Political System:

The political system has the following characteristics:

1. It has its own boundary.
2. It lives in environment.

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3. The political system is an open and adaptive system.
4. It is self regulatory in character.
5. It is comprehensive in nature.
6. It is composed of certain structures having specific functions.
7. There is interdependence of the parts of the political system.
8. Political system is an ongoing system and dynamic in character.

Political system, according to Easton, is the most inclusive system of

behavior in a society for the authoritative allocation of values. It functions
within certain boundary. It is this boundary that separates the political system
from other social systems. Easton lays down four criteria on the basis of
which the political system can be differentiated from other social systems.
These are: (i) the extent of distinctions of political roles and activities from
other roles and activities, or conversely, the extent to which they are all
embedded in limited in limited structures, such as, the family or kinship
groups, (ii) The extent to which occupants of political roles from a separate
group in the society and possess a sense of internal solidarity and cohesion.
(iii) The extent to which other hierarchies, based upon wealth, prestige or
other non-political criteria and (iv) The extent to which the recruitment
processes and criteria of selection differ for the occupants of political as
contrasted with other roles.

Political system lives in environments. In other words, political life as a

system of behavior is situated in the environment. The environment of the
political system comprises of social land physical surroundings. Environment
of the political system can be categorized into two types: intrasocietal and

25
extra societal. Further, intrasocietal environment may be subdivided into
ecological, biological personality and social environments. Extra societal
environment is also equally subdivided. Intrasocietal environment referes to
the environment that lays out side the national system. It means environment
at the international level. It includes political system of all other countries and
international political organizations like the UN, International Court of Justice,
etc and the international economic, social, cultural and demographic systems.

All political systems are both open and adaptive in character. Since
political systems lives in environment, it is open to influence from the
environment. Political system is always exposed to influence from the intra
and extra societal environments. It is constantly receiving from other systems,
to which it is exposed to a stream of events and influences that shape the
conditions under which its members act. Such influences put pressure on the
functioning of the political systems, which are stresses of the system.
However political systems continue to persist even in the fact of such
stresses. Stress refers to the challenges that disturb the normal functioning of
the political system, sometimes to the extent of its total failure. Sometimes
stress may arise within the political system does not mean that there will be
no change in the system. On the other hand, every political system undergoes
changes. The degree of change determines the persistence or failure of the
system. As long as the political system regulates the stresses, the political
system continues to persist. It does so even through bringing changes within
the system itself. Hence, a changed political system is said to persist.

Political system is a self –regulating system. It can change, correct and

readjust its processes and structures in face of activity which threatens to
disrupt its own functioning. A political system even copes with the
disturbances by seeking to change its environment. Consequently, the
exchanges between its environment and itself are no longer stressful. It may
be noted that a political system has the capacity for creative and constructive
regulation of disturbance. It has, therefore dynamism of its own. It has a
purpose of its own. It continues to move according to its fundamental purpose,
as it is self-regulating. There are a large number of mechanisms in the

26
political system on the basis of which the political system tries to cope with the
environments. It has regulatory mechanisms of its own through which it can
either push back the stresses or allow creeping into the system which may
retard its velocity as well as volumes. There are four broad types of regulatory
mechanism and reduction mechanism.

Political system is comprehensive in character it includes all kinds of

institutions, roles and functions as well as processes which are political in
nature. In other words, both formal and informal structures, processes and
functions concerning political life of a man come under the preview of the
political system. As such, it comprises the executive, legislature, judiciary,
political parties, pressure groups, interest groups, the press, radio, television
elites etc who perform roles relating to the political sphere of mankind.

According to G. A. Almond, all political systems are composed of

certain structures and these structures perform same kind of functions. And
these functions are essential for the survival of the system these structures
are well differentiated and some of such structures combine, a sub-system or
a system emerges. It may be noted that political structures are ‘multi-
functional’ in nature.

Political system performs a number of functions which are required to

keep the system in working order. These are functional requirements of the
system. According to Almond, political systems can be compared in terms of
their structures and functions and accordingly can be classified as traditional,
transitional and developed. Generally, a political system performs, two types
of functions input and output functions. When David Easton divides input
functions into demands and supports. Almond talks of interest articulation and
interest aggregation, though initially he included in it both political socialization
and recruitment and political communication. On the other hand, Easton
refers to policy decisions as output functions, whereas, Almond points out to
rule application and rule-adjudication as the output functions of the political
system.

27
 It is already pointed out that the political system is composed of certain
structures. These are essential elements of the political system. There is
interdependence among these elements or parts. It means whine one part is
affected; disruption in the working of any one part affects the normal
functioning of the entire system. There is close inter-connectedness among
these elements, which make it a system. Ass such, Almond says “political
system is that system of interaction which is found; in all independent
societies, which performs the functions of integration and adoption.

Political system is an ongoing system. It continues to exist as long as it

regulates the stresses successfully. In order to do so, it performs the
capability functions, as Almond redress to. It is the ability of the political
system to sustain in front of the challenges. The capability functions of the
political system are categorized into four types, namely, extractive capability,
regulative capability, distributive capability, symbolic capability and responsive
capability. Through such capabilities the political system maintains itself, if
necessary brings changes in its structures and functions. Hence, the political
system is dynamic.
4.8 Conclusion:

Today the term ‘political system’ has been preferred to the term state
or government because it includes both formal informal political instructions
and processes those continue to exist in a society. Systems approach to
political institutions by the behavioural school has given birth to this new
concept. The credit for applying this approach in Political Science goes to
David Easton, G. A. Almond and Morton A. Kaplan. However, the concept of
systems theory dates back to 1920s when Ludwig Von applied this theory for
the study of Biology. Then the theory was adopted in Anthropology,
Sociology, Psychology and Political Science. Easton happens to be the first
political scientist to employ this theory in explaining political phenomena.
Morton A. Kaplan made this theory more popular in explaining international
issues. According to this theory, political behavior is conveived as a system
and the political system is defined as “Authoritative allocation of values with
threat or actual use of deprivations to make them binding on all”. It is the

28
 system of interactions to be found in independent societies which performs
the functions of integration and adaptation both internally and eternally by
means of employment of, more or less, legitimate physical compulsion. A
political system has three important characteristics, namely,
comprehensiveness, interdependence and existence of boundaries. However
the features of a political system are openness, adaptiveness,
comprehensiveness, self-regulating, ongoing etc. It is composed of a number
of structures which have specific functions. These functions are categorized
as input and output functions. A political system performs these in order to
maintain itself.

References:
1. David Easton , A Framework For Political Analysis
2. Almond and Powell, Comparative Politics: A Development Approach.
3. Rovert Dhal, Modern Political Analysis.
4. David Easton, The Political System
5. G.A. Almond, Comparative Politics: A world view.
6. Charles Worth, Ed, Contemporary Political Analysis.
7. R. H. Chilcote, Theories of Comparative Politics.

4.9 INPUT-OUT ANALYSIS OF DAVID EASTON

4.9.1 Introduction:

David Easton is the first political scientist who introduced the

concept of system to politics, together with a vocabulary of inputs and
outputs, demands and supports and feedback during the early 1950s.
He considered the political system as the basic unit of analysis and
focused on the infra-system behavior of different systems as chief
areas of investigation through the application of system theory.
4.9.2 Easton’s Definition:

Easton defines political system as “a set of interaction,

abstracted from the totally of social behavior, through which values are
authoritatively allocated for a society”. As such, political system is one

29
 among other forms of social systems. It is that part of the social system
through which ‘authoritative allocations of values are made’. Easton’s
systems analysis is also known as input-output analysis, or conversion
process. To him, political system receives inputs from the
environments in form of demands and supports and converts these into
outputs in form of policies or decisions. Input-output analysis considers
the political system as both open and adaptive. The chief focus of this
approach is on the nature of communication and transaction that take
place between the political system and other systems that stands
around it. The political system is exposed to various influences from
other systems and accordingly reacts to such influences. Input-out
theory therefore, systematically, or scientifically makes a study of the
relationship between the political system and its total environment.

It should be noted that it is authoritative allocation as

distinguished from mere allocation that makes it political in nature.
Hence, all the roles and structures that constitute to make authoritative
allocation as distinguished from mere allocation may be said to
constitute the political system. According to Easton, “The Political
system is the most inclusive system of behavior in a society for the
authoritative allocation of values”. Political system functions within a
certain boundary, and it is this boundary which separates political
system from other social systems.

4.9.3 Environment of the Political System:

Political system lives in environment, which means political life

as system of behavior dissertated in environments. The environment of
the political system comprises of social and physical surroundings.
Easton divides environment into two broad categories intra-societal
and extra societal. Intra-societal environment comprises that part of the
social and physical environment that lies outside the boundaries of a
political system and yet within the same society. Intra-societal

30
 environment is further sub-divided into four types – (a) ecological (b)
biological (c) personality and (d) environment.

Ecological environment refers to the physical environment and

non-human organic conditions of human existence. Physical
environment means geographical environments like climate, territory,
topographic features like forests, rivers, mountains and physical
resources, techno-human organic conditions, on the other hand, refer
to the nature, location, and accessibility of good-supply and other flora
and fauna that can be utilized by the members of a political system.
Biological environment includes the genetic and hereditary traits of the
individuals. So far as the political system is concerned, elements of
cooperation and rationality inherited by an individual help the former to
endure. Personality environment refers to the personality of a political
system, and also outside it. Further, the other social systems that
include the cultural, economic, religious, demographic systems etc.
generally influence the functioning of any types of political system.

The extra societal environment, on the other hand, stands not

only outside the political system but also outside the national boundary.
In other words, it is the international environment which includes
political systems of other countries and international organizations like
the U.N., SEATO, NATO, International Court of Justice, and the
International economic, social, cultural and demographic systems as
well.

4.9.4 Regulatory Mechanism:

The political system is always exposed to the aforesaid

environment and therefore it is influenced by the environments. The
political system, according to Easton, is linked with its environment
through the process of inputs and outputs. Influences of these flow into
the political system put stress on the political system. Swerves are the
challenges that disturb the normal functioning of the system,

31
 sometimes to the extent of its total failure. Stress may arise within the
political system through authoritative allocation of values so that the
system continues to persist. The system has its won regulatory
mechanism as it is self-regulatory in character. There are four broad
types of regulatory mechanism, namely, gate keeping, cultural,
communication and reduction mechanisms.

Gate keeping mechanism operates at the boundary of the

political system. It is designed to regulate the flow of wants, or
demands from entering the system and becoming articulated demands.
Cultural mechanism prevents any kind of demands which contradict the
norms, culture, values or practices that are prevailing in a particular
kind society. Through communication mechanism, on the other hand,
the political system establishes certain communication channels
through which demands are persuaded or pressurized to flow through
in the process. The political system also has a number of reduction
processes (mechanism) by which demands may be forced to convert
themselves into specific issues without which they would not be able to
feed to conversion process of the political system in a proper way

4.9.5 Inputs of Political System:

It should be noted that if the stresses are communicated to the

political system in the form of inputs, chiefly, there are two types of
inputs (a) demands and (b) supports. Demands and supports are
received by the system from the environments-both intra-societal and
extra societal.

Demand is an expression of opinion that an authoritative

allocation with regard to particular subject matter should or should not
be made by those responsible for doing so. Demands upon the political
system may be sub-classified into four types like, (a) demands for hour
laws, educational opportunities, transpiration, roads, health facilities,
security etc; (b) demands for the regulation of behavior like provision

32
 for public safety, control over markets, rules pertaining to traffic control,
etc; (c) demands for the participation in political processes-right to vote,
to hold official to organize political association etc. ;(d) Demands for
information and communication, like, demands for the affirmation of
norms, communication of policy intent from and degrees for intensity.
These demands are communicated to the political system through such
agents as religious leaders, elites, caste leaders, political parties,
pressure groups, mass media etc.

Support, on the other hand, means giving obedience and

showing loyalatery to the political system and its processes. There are
also four types of supports that correspond to the demands, namely,
(a) material, (b) obligatory (c) participatory and (d) symbolic supports.
The citizens services at different political institutions. Obligatory
supports include obedience to rules, laws and regulations. While
participatory supports refer to exercise of franchise contesting in the
elections and participation’s decision making processes symbolic
supports include giving attentions to government communication
manifestation of deference, or respect to public authorities, symbols
and ceremonials.

It should be noted that if the political system and the elites acting
in their roles are to process demands effectively, supports must be
received from other social systems, and also from individuals acting in
the political system. Generally speaking, demands affect the policies or
goals of the system, while supports provide the resources which enable
a political system carry out its goals. According to Easton, supports can
be classified into two types (a) specific and (b) diffuse supports.
Support is specific when it is for a particular cause. It is diffuse, when it
is in the form of loyalty, obedience of laws, or payment of taxes.
4.9.6 Outputs of Political Systems:

Outputs, on the other hand, as already stated are the ‘decisions’

and actions of the political system. There are four types of transactions

33
 on the output side, which correspond closely to the supports. These
are extractions, regulations of behavior, allocation of goods and
symbolic outputs. Outputs not only help to determine each succeeding
round of inputs that finds its way into the political system. This process
is described as the feedback loop.

Feedback is an important type of response to suppress stress in

a political system. It is a dynamic process through which information
about the reactions of the people on the decision of the system is
communicated back to it, in such a way, as to affect the subsequent
behavior of the political system. Since a political system, according to
Easton, is primarily interested in persistence, this information is
essential to the authorities who take decisions for the system. David
Easton calls it a ‘Flow model’ of the political system as the political
processes involve a continuous and interlinked flow of behavior.

Easton’s explanations can be put forth in the following diagram.

D Political System
Environment Output

Inputs S Feedback

Environment Environment

The aforesaid model is self explanatory. It is form this diagram we see

that influences from the environments constantly flow into the political
system in form of inputs, which are converted within the system into
outputs in form of policy decisions. The reactions of the society to such
policy-decisions are again transmitted to the political system in form of
inputs through the feedback loop. The whole reactions are again
transmitted to the political system as Easton brings us to the
conclusion that for him, the political system is basically, ‘the input-
output mechanism dealing with political decisions and the activities
associated with these conditions”.

34
4.9.7 Merits of Easton’s Approach:

Easton’s analysis has been accepted as scientific and most

systematic. His method of analysis has the merit of going beyond the
equilibrium approach. It recognizes change and dynamism in the
system. He draws clear distinction between system maintenance and
system persistence, though he concentrates more on the study of
system persistence. He has emphasized on the preservation of
essential variable within their ‘critical ranges’. His conceptual
framework consists of standardized set of concepts. According to Oran
Young, ‘Easton’s analysis” (a) rejection of traditional concepts, (b) use
of new concepts, (c) setting fourth of comprehensive conceptions and
(d) emphasis on inter-disciplinary endeavour in theory construction.

4.9.8 Criticisms:

On the other hand, Easton’s analysis has been criticized on

certain grounds by different scholar. It is rightly said that his theory has
less applicability in a dictatorial model of political system. Orex Young
says that his model does not help us to analyze the problem of
distribution power among men and closes in society. It does not
answer the question posed by Lasswell as to the distribution of power
between whom, where and why. R. H. Chilcote observes that his
analysis can be criticized on three aspects.-
(i) Conceptual prospectors,
(ii) Operational possibilities and
(iii) Ideological orientations.

4.9.9 Conclusion:

However, it must be admitted that Easton’s model of political

system is a major tool of political analyses. It provides us with a broad

35
 framework for analysis of political roles. It has established a systemic
approach to the study of political behavior.

Reference:
1. Ronald H. Chilcote – Theories of Comparative.
2. G. A. Almond, Comparative Politics; A world view
3. Grenstein and Polsby (Eds), A hand Book of Political Scinece.
4. David Easton, A Framework of political Analysis.

5. STRUCTURAL – FUNCTIONAL ANALYSIS OF G. A. ALMOND

5.1 Introduction:

Gabriel Almond and James Coleman are the first scholars to apply the
structural functional theory to the study of political science. This approach
is closely related to the system analysis. It analyses social reality in terms
of structures, processes, mechanisms and functions. The concepts of
structures and functions are central to this analysis which asks three basic
questions – what basic functions are performed in any given system? By
what structures are such functions performed, and under what systems
(conditions) are these functions performed? .The basic assumption of this
approach is that all systems have some structures which can be identified.
And these structures perform certain specific functions within the system.

5.2 Evolution to the Approach:

The approach, in a sense, dates back to the days of Aristotle, who

classified forms of government in terms of their structure. However,
Montesquieu gave it a proper shape during the 18 th century by giving this
theory of separation of powers. His analysis of the structure of government
as comprising of legislature, executive and judiciary was nothing but the
application of functionalism. The Federalist, written by Msdiaon also
referred to this theory, and further suggested an improvement by

36
 incorporating in it the doctrine of checks and balances. But, the old theory
of functional analysis of the structure of government, based on the theory
of separation of powers, identified only three organs. In recent times,
various new factors like adult franchise, mass political practices group etc.
have given birth to a number of new functions like interest articulation,
interest aggregation, and communication. The old functional approach has
failed to explain this said new institutions and processes. This promoted
the modern political thinkers to find out a definite theory to explain the total
functions and structures of a political system. Among them, G. A. Almond,
Coleman, Binder, Apter and Merton are noteworthy. However, Almond
made this analysis more popular in the field of comparative politics.

5.3 Problems before Almond:

Almond and his associates were concerned chiefly with two problems –
(i) they wished to construct a theory which explains how political systems
change from ‘traditional’ to ‘modern’. In other words, they wished to devise
a theory of political development; (ii) Almond wished to classify different
types of political systems and regions according to the said process of
development. Relating to the first problem, there is an assumption that
political change can be seen in terms of development. According to
Almond, there is to logic to the process of development. So that it is
possible to explain and even predict cycles of short rang and long range
changes of the political system to be teleogical, Almond refuses to claim
that he could foresee the final end of the development process. For him,
the development is an open ended process. Consequently, his approach is
eclectic one. According to him, ‘political systems are a class of social
system’. His procedure of analysis was to identify the function of polity in
modern western systems, and then to pursue his analysis of the political
modernization in non-western regions by investigating how these
functions, which are association with distinctive political activities in
Western systems, is performed elsewhere.

37
5.4 Almond’s views on Political System:

According to Almond, Political system is that system of interaction

which is found in all independent societies that performs the functions of
integration and adaptation, both internally and externally by means of
employment or threat of employment of coercion, which is legitimate. He
says that the political system is the legitimate, order-maintaining, or
transforming system in the society. In order to ensure a scientific study of
the political system, Almond applied the structural – functional approach,
which needs a brief discussion at this point of our elaboration.

5.5 Structural Functional Analysis: Its meaning :

Structural – Functional analysis is a form of systematic approach which

looks at political systems as coherent wholes that influence and are
influenced by their environments. The basic principle of this theory is that
every system has some structures, which perform some functions which
are very important for the survival of the system itself. As such, this
approach revolves around the twin concepts of structures and functions.
Before discussion the approach, let us look at the implications of these two
concepts.

5.6 Meaning of Structure:

Structures are those which constitute the political system. According to

Almond, structures have certain important features. First, there is
universality of structures. Secondly, when these structures are well
differentiated in a developed system, it is very difficult to make such
differentiation in under developed system. Along with structural
differentiation, there is functional specificity. Thirdly, structure is composed
of roles. Fourthly, when a few structures are combined, a sub-system, or a
system is emerged. Finally political structures are mostly multifunctional in
character.

38
5.7 Meaning of Function and Functions of Political System:

Functions are the consequences of the activities of the structures.

Robert T. Holt says, only those activities of the system that have relevance
to the system are included in functions. Robert K. Merton opines,
“Function is observed consequences”. According to Marian J. Levy,
function, is a condition or set of affairs that result from the working of the
structures. For Almond, every political system performs certain functions to
maintain its existence. This function is essential to keep them in working
order. In various political systems, these functions may be performed by
different kinds of political structures, or even by non-political structures.
According to Almond, political system can be compared in term of
structures they maintain and the functions which these structures perform.
To him, political systems basically perform two types of functions, namely
(i) input functions and (ii) output functions.

5.8 Input Functions:

Input functions are otherwise known as political or non-governmental

functions. It is the transactions between the environments and the political
system. Contribution of Almond basically lies in enunciating these four
types of input functions. According to him, the input functions are more
important for the political systems of the developing countries. To him,
these functions are universal to all kinds of political systems, although
these vary in the mode, manner, or style or their functioning. Let us
analyze each of these input functions in brief.

All Political systems perform the function of political socialization.

Political socialization is a process through which individuals acquire the
values and norms as well as pattern of behavior that are appropriate for a
political system. All political systems tend to perpetuate their cultures and
structures through time, and that they do this chiefly by means of the
socializing influences of primary and secondary structure though which the
young of the society pass in the process of nitration. According to Almond

39
and Verba, it is, thus, a process by which political cultures are maintained
and changed. It is concerned with the orientation of the individuals towards
political objects. In other words, political socialization is the process of
induction into political culture and it promotes a set of attitudes among the
members of the system. It is through political socialization that political
values and norms are transmitted from generation to generation. It is a
never ending process. The major agents through which political
socialization is carried on include the family, the church, the school, the
peer groups, the political parties, mass media etc.

The process of socialization may be of different types. It may be latent

or manifest, specific or diffuse, particular or general, and affective or
instrumental. It is latent when it is in form of transmission of information. It
is manifest when it takes the form of explicit transmission of information,
values, feelings vis-à-vis the roles, inputs and outputs of the political
system. It is diffuse, particularistic and ascriptive in a traditional society but
as it modernizes itself, the process becomes specific, universalistic and
instrumental.

Political recruitment starts where political socialization leaves off. It is

concerned with the recruitment of citizens into the specialized role of the
political system. In other words, it means the obtaining of political leaders.
It refers to the recruitment of the members of the society out of particular
sub-culture-religious communities and inducting them into the specialized
roles of the political system, training them in appropriate skill, providing
them with the political cognitive map, values, experiences etc. Recruitment
process is influenced both by ascriptive and performance criteria.

Interest Articulation is the process by which individuals and groups

make demands upon the political decision makers. It is the first functional
set up in the political conversion process. This can be done by many
different structures and in many different styles. Interest articulation is
particularly important because it marks the boundary between the society
and the political system. Through this process, the conflicts inherent in

40
political culture and social structures become evident. Hence, this function
is closely related to the function of political socialization. Interest angles –
(a) the kinds of structures which perform the function of interest
articulation: (b) the variety of channels through which demands are
articulated; (c) the styles of interest articulation, and (d) the effects of
modernization on articulation.

Almond includes, various interest groups like non-associational interest

groups, institutional interest groups and associational interest groups in
the kinds of structures which perform the functions of interest articulation.
These groups put forth the different demands, or interest to the political
system for authoritative allocation of values.

Channels are otherwise known as the means of political

communication. In communicating demands individuals wish to articulate
their interest in the way most likely to gain a favourable response. The
normal channels are physical demonstrations and violence which may be
spontaneous or deliberate. Secondly, it may be done through personal
connections. Thirdly, communication may be made through elite
representation, and fourthly this may be performed through formal and
informal institutions like legislatures, bureaucracy, cabinet, mass media
and political parties.
The style of interest articulation, on the other hand, may be of four
types, namely, (1) Manifest or Latent, (2) Specific or Diffuse; (3) General
or particular and (4) instrumental or Affective. A manifest interest
articulation is an explicit formulation of demands. A latent articulation, on
the other hand, takes the form of behavioural which may be transmitted
into the political system. In some articulation, there is a greater degree of
specifically, when some are diffuse in nature. General articulation is made
by the associational groups. Particular takes the form of bargain with an
expected consequences; an affective articulation takes the form of a
simple expression of gratitude, or disappointment.

41
 It should be noted that these styles of articulation have certain
consequences. First, it determines which groups do not influence the
decision making process in the society. Secondly, it shapes the relative
effectiveness of the groups. Thirdly, it can mitigate or intensify the problem
of resolving conflicts between groups.

Modernization is a process which aims at progress in every directions

of human life. It is brought through scientific inventions, new technology
and industrialization. Generally, modernization affects the structures of
political communication, the political culture and the distribution of
resources. And, as upon these the style of articulation rests-articulation
itself is affected. The general trends in societies experiencing
modernization are those, which are closely related to the emergence of
“participant attitudes” in the political culture. On the other hand, the
specializations of Labour leaders to the formation of a large number of
social interests which can be the basis of associational interest groups.
The emergence of mass media, of a more extended bureaucracy, and of
other political structures provides additional channels through which
emergent groups can act. The existence of such channels is in itself an
incentive for group formation as the greater flow of political information.

Interest aggregation is a function of converting demands into general

policy alternatives. It can be achieved through the recruitment of political
roles, and by the legislature, the executive, the bureaucracy, the medial of
communication, the interest groups and the political parties. This function
also is performed within all sub-systems of a political system. Agencies
performing interest articulation are generally involved in performing
interest aggregation. The style of interest aggregation is of three types,
namely (i) programmatic-bargaining style (ii) absolute value oriented style
and (iii) traditionalistic style.

Political communication, according to Almond, is the crucial boundary

maintenance function. A political system depends greatly on this function
for its maintenance. It is a question of informing people about the policies

42
 and policy performance, and receiving the public opinion on the said
policies. The political system achieves such function through different
agencies like political elites, interest groups, political parties and mass-
media.

5.9 Output Functions:

Output functions of a political system are classified into three types, (a)
Rule Application and (b) Rule-Adjudication. Rule making function generally
refers to law-making process of the political system. While rule application
is the executive function, ‘rule-adjudication’ stands for the judicial functions
of the political system.

All the aforesaid functions are internal to the political system. So far
‘rule-making’ function is concerned, the legislator, bureaucrats and various
legislative and administrative committees constitute the structures for
performance of this work. The legislators take account of the views of both
bureaucrats and the committees as well as of the pressure groups, while
making the laws. Rule application, as pointed out earlier, is nothing but
enforcement of rules. The problem that arises at this level is how to gather
resources for effective execution of such rules and process as well as
transmit information. In modern society, application of rules means high
degree of administrative capacity in which role and importance of
bureaucracy are considered to be very significant. An effective rule
application system is pre-requisite for meeting new goals. Rule –
adjudication, on the other hand, is closely associated with judicial
structures. I seek to resolve conflicting situations. It provides a means of
setting conflicts within the system without expanding the pressure on the
rule-makers to make new laws.

It may be note that all the aforesaid functions have meaning in relation
to the system and the structure of an ongoing system. These represent a
certain ordering of determinate relationships by means or which they all
contribute to the equilibrium of the system. The inter-relatedness of the

43
structures and functions gives to the structural functional analysis of
Almond the systemic character. The system comes to have identical
boundaries which define the nature of interaction and exchanges within its
boundaries. It receives inputs from the environments which undergo
process of conversion and are given back as outputs. The outputs have
again their impact upon the environment which leads to a new flow of
inputs into the political system. The process of interaction and exchange is
what Almond terms as feed-back.

Almond appears to be interested more in finding the relationship

between structures and functions on the one hand and the nature of
exchanges between the system and its environment on the other hand.
According to him, the lower the level of structural differentiation and role
specialization the more traditional and under developed the political
system. Conversely, the higher the level more modern and developed the
system is. Accordingly one can classify the political system.

Almond is very particular about locating the political system in its

environment and also in identifying the transactions that take place from
within the outside boundaries. This makes his system not only an open
system but one dependent upon these transactions. It may be noted that
the nature of the people. Political culture consists of attitudes, values and
skills which are current in the whole population, the political system, and
those special propensities and patterns which may be found within
separate parts of the population. Political culture conditions the functioning
of the structures by shaping the way people would relate to them and
would behave in course of performing roles.

For Almond, development would be possible only if there is a

movement towards secularization of culture. Secularized culture will help
proper discharge of functions by the differentiated structures. A proper
classificatory-cum-developmental analysis must link up with the
secularization of culture.

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5.10 Self Modification of the Approach:

Due to criticisms, Almond realized that an emphasis on equilibrium

given by him has given a static bias to his model and reduced its
applicability to the developing systems. He also realized that his
classification does not indicate the direction and level of developments.
As such, he modified his analysis as follows.

At the outset, he included only Interest Articulation and interest

Aggregation in input functions of the political system, and treated
communication function as autonomous, or as part of both input and
output functions. It is now considered more as a process and mechanism
between inputs and outputs than as a pure input functions. Both political
socialization and recruitment are taken as those functions which sustain
the system as an entity in the environment. He also added capability
function of the political system which he considered as the vital function
for the pattern maintenance and survival of the system. Accordingly, he
talked of following four major types of functions of the political system.

1. Capability function
2. Conversion function
3. Communication function and
4. Pattern maintenance and adaptation function.
The ability of the political system to sustain in front of stresses is called
as its capability functions. According to Almond, this function is of five types,
namely, extractive capability, regulative capability, distributive capability,
symbolic capability and responsive capability. Extractive capability function
refers to the capacity of the system to extract resources from the environment
and human beings. Capacity of the system to exercise control over the
individuals’ behaviours is considered as the regulative capability. Distributive
capability means allocation of goods and services, opportunities refers to
creation of a sense of love and respect in the minds of the people for the
political system. Finally, responsive capability aims at maintaining a
relationship between the inputs and outputs.

45
 Political system is primarily engaged in converting the inputs outputs.
When Eastern talks of “demands” and “supports” as two forms of inputs.
Almond identifies ‘inters articulation and ‘interest aggregation’ as the inputs.
When these inputs flow into the political system through the ‘feedback loop’,
the political system, through scrutiny, coverts these into outputs, which
happen to be the policy decisions.

Communication function refers to gathering and transmission of

information. No system can work without a proper system of communication.
Both inputs and outputs have to be communicated to and from the political
system. In fact, the outputs depend upon the proper communication of the
inputs.

A number of structures are involved in the aforesaid communication

function. These are; (a) informal face to face contact; (b) traditional social
structures like well informed individuals, families, caste groups etc. That
perform this function in traditional societies; (c) government structures like the
bureaucracy; (d) interest groups and political parties and (e) the mass media
structures like radio, television, news papers, magazines, etc.

This function relates to the maintenance of the existing pattern by

adaptation to the changing environments. It involves political socialization and
political recruitments. Through political socialization political cultures are
maintained and modified. Individuals are inducted into the existing political
culture, and their orientation towards political objects are shaped.

5.11 Conclusion:

Almond’s analysis seems to be more representative than that of

Easton’s. Although both the scholars have the same goal. Almond’s chief
concern is how political systems change from traditional to modern.
Accordingly, he want to classify political systems and establish the
hierarchical orders of all existing political system. He, further, believes that

46
political change can be seen in terms of development, or progress. It is
through the application of ‘structural-functional analysis, Almond has
provided us with a scientific and systematic approach for the study or
political system. Though his approach has been criticized on the ground
that it can not be applied to explain the peculiar problems of developing
political societies (like the tribal or racial problems, linguistic issues, sub-
nationalism etc.) and its non-applicability to communist societies, his
theory has provided a logical basis for the political analysis.

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 Unit – III

CONSTITUTIONALISM: MEANING AND DEVELOPMENT

3.0 Introduction:

Constitutions, however they differ from each other, have

become universal today for a country which is independent and
autonomous and constitutionalism has become a way of life which has
been identified with liberalism and democracy. The term ‘constitution’ has
been used in two different sense. First of all, it is used to approach, to
describe the whole system of government of a country, the collection of
rules which establish and regulate or govern the government. These rules
are partly legal in the sense that courts of law will recognize and apply
them and partly non-legal or extralegal, taking the form of usages,
understandings, customs or conventions which courts do not the rules of
law strictly so called. But the use of the term in its broad sense is really
common i3wth use and ‘constitution’ to us is a written constitution which is
embodied in a document. A written codified document makes a body of
rules ensuring fair play and rendering the government responsible. But the
students of British Political System like Lord Bryce do not agree with this
definition as the British laws makes considerable use of the concept of a
constitution without having a written document to argue from. The British
scholars always take broader view of constitutionalism to include laws,
rules as well as usages, customs and conventions which have developed
and which are important for the governance of the country.

3.1 Meaning of Constitution:

Herman Finer explains a constitution in terms of a system which

contains fundamental institutions embodying the power relationship
between the individual and the state. He further describes that modern
constitutions exhibit such as wide variety of forms, and so marked a
difference in their substance, that no definition of reasonable length can

48
include the main facts. Therefore, a constitution is to be understood in
terms of system and fundamental.

Constitution is a system as it has got a boundary and it works within

the boundary that is within a particular political order. As a system, it is
constituted of different parts like different rules, regulation, clauses, sub-
clauses, schedules, Acts etc. Which are related to each other and to the
constitution as whole? Again, a constitution, as a system, has its
interactions with the environment of which it is a product and in which it
functions.

The constitution is understood in relation for a fundamental which it

contains. But fundamentally is a relative term. Institutions are fundamental
in a particular time, at a particular place and for a particular generation.
Institutions are never fundamental for all the people and for all times to
come. Hence, a constitution always contains institutions which are
fundamental in context to the present generation and at the present time.
Therefore a constitution is always living and it is not dead letters of law.

Constitutions are sometimes understood in terms of the institutional

organizations of the political system. Bryce has thus defined a constitution
as ‘a frame of political society; organized through and by law, that is to say
one in which law has established permanent institutions with recognized
functions and definite rights”. C. F. Strong also writes that a true
constitution will contain the following elements; first how the various
agencies are organized; secondly, what power is to been trusted to those
agencies and thereby, in what manner such power is to be exercised.
Thus, strong, in explaining the meaning of a constitution, speaks of the
various agencies of a government, their assigned powers and the exercise
of those powers.

Lowenstein and Friedrich added the “restraint” element to the meaning

of the constitution. As the powers entrusted are important so also the
powers limited are important for a constitution analyst. Limited or

49
 restrained power is important as the constitution itself is identified with
liberalism and democracy. Therefore, the power of the government, the
rights of the people and the powers of different agencies in a government
need bridle which is provided by the constitution. Lowenstein thus, writes
of a constitution as “the articulation of devices for limitation and control of
political power”. For Friedrich, the constitution is the “process by which the
governmental action is effectively restrained” and “is understood as the
process of the function of which it is not only to organize but to restrain.”

3.2 Meaning of Constitutionalism:

Giving such definition of what a constitution, is, we may give separate

meanings to constitutional state, constitutional government and
constitutionalism. A constitutionalism state is “one in which the powers of
the Government, the rights of the governed and the relations between the
two are adjusted”. Hence, a state is a constitutional one, when it defines
the powers of the government on the one hand and the powers of the
governed on the other.

Constitutional government means “government” according to rule as

opposed to arbitrary government, it means government limited by the
terms of a constitution, not government limited only by the desires and
capacities of those who exercise power”. Hence, constitutional
government establishes rule of law and government is being created and
is functioning in accordance of law.

But constitutionalism, as distinguished from constitutional government

is a modern concept that defines a political order by law and regulations. It
stands for the supremacy of law and not of the individuals; it imbibes the
principles of nationalism, democracy and limited government. It may be
identified with the system of ‘divided power’. Constitutionalism, thus stands
for the existence of a constitution in a state since it is the instrument of
government or the fundamental law of the land whose objects” are to limit

50
 the arbitrary action of the government, to guarantee the rights of the
governed, and to define the operation of the sovereign power”.

Constitutionalism can be viewed from democratic as well as from

totalitarian standpoint. Constitutionalism, democratically conceived, stands
for a system having division of powers, and an arrangement of checks and
balances so that the government remains responsible to the governed. It
does not stand for particular form of government, though it may be
described as essential for a democratic polity in view of the fact that it
limits the powers of the government and seeks to check the “abuse of
power”. In this sense, constitutionalism has been identified with
democracy.

Different from this is the case of totalitarian or the ‘communist’ concept

of constitutionalism. People in Russia or in China are governed by the
constitutions. But in such countries, the constitution is not an end in itself.
It is just a means to implement the ideology of “scientific socialism”. It is a
tool in the hands of the “directorship of the proletariat”. The communist
concept of constitutionalism is based on the principles of Marxist-Leninist
ideology. The constitution is a sort of manifesto, a confession of faith, a
statement of ideals. In communist countries, though the constitution is a
brief document, it announces the basic principles of state power, military,
organization, economic, cultural and educational policy and foreign policy.

3.3 Evolution of Constitutionalism:

Constitutionalism as understood is not a product of one-day. It has

been growth through a long evolutionary process from early civilization of
Greek periods. The materials for it are to be found not only in the history of
institutions themselves but also in the history of the political ideas.

Greek law-givers, statesmen and philosophers were the first to

experiment with different forms of government and to reflect critically upon
the ever changing features of politics and government. Aristotle was one of

51
 the first to offer a definition of the rule or constitutional rule as rule by
means general law and generally known customs and conventions and in
the interest of all the members of a body politic.

3.4 Ancient Times:

Polybius, though a Greek philosopher, studied the Roman history and

spoke of the mixed constitution as the main contributor to the stability and
strength to the roman Republic. Mixed constitution refers to a combination
of monarchic, aristocratic and democratic institutions which he professed
to see in the sharing of power by the Roman consuls, the senate and the
popular assemblies. This has the idea of limitations and sharing of power
which was reflected in the Philadelphia Convention of 1787. Roman Laws
were the basis of the state and the emperor. These laws were based upon
customs convention and upon the consent of the people. These
constitutional ideas state power and limitations of state power by law
prevailed for many centuries to come.

Constitutional though and practices in the middle age present a

somewhat confusing and self –contradictory picture. However, there are
three most significant themes of the development of constitutional ideas,
namely, the law, doctrine of popular sovereignty, and representative
government.

In the 12th Century the idea of common law was emerged and this law
was based upon the customs and consent of the people. It was St.
Thomas Aquinas, who, in order to distinguish human or customary law had
spoken of four kinds of law-divine law, natural and human law. Even if the
human laws were made by kings, the kings were careful to undertake to
declare this customary law on the authority of the people and with the
advice and consent for their nobles and bishops. Such an all pervading
faith in the customary law, rooted in the people, had a powerful stabilizing
and constitutionalsing effect on medieval governments.

52
3.5 Medieval Times:

During this period there developed the medieval notion of popular

sovereignty which distinguished itself, in particular, by considering the
people of the community to be a fellowship, or a corporate body, that was
capable of possessing certain rights, duties, and privileges. The medieval
theologician Nicholas of Cusa (1401-1464), for example, spoke of a
divinely inspired popular will of the community to which the ruler must
confirm. Marsilio of Padua (1275-1313) derived from popular sovereignty
essential rights of self-government by which an organized body politic can
make its own laws, elect its own rulers and hold them to account.

Marsilio of Padua also wanted to bring reforms in church organization

in the light of constitutinalizing it on the basis of representation. Thus grew
the idea of representation in government. Marsillio proposed
representation for the community of clergy of the mediaeval church in
answer to the demands for the great reform by many voices inside can
outside the Catholic Church. Thus arise the Councilor movement of the
14th Century. In the secular sphere also by similar considerations,
representative assemblies grew in many western countries especially in
Spain, France and England.

3.6 Modern Period:

Modern age started with Renaissance and the medieval institutions

were on decline. In post-renaissance period, there was the emergence of
Humanism of the Enlightenment which culminated in him “self-evident
natural rights”. The concept that “Man is born with certain inalienable
rights” gave rise to the doctrine that men have got every right to choose
their own government and also to overthrow a government. The
government is based on the concept of the people. This concept of
constitutionalism emerged and became strengthened through the British

53
Civil War (1942-42), the Glorious Revolution (1688) and the American and
French revolutions of the late 18th century.

This idea of representative democracy and the development of

representative group process started with the Civil War in Great Britain
(1642-49), American War of Independence 1776 and French Revolution,
1789. The Civil War in Great Britain destroyed the base of enlightened
despotism, made the parliament a representative body of the people and
entrusted power upon it. Similarly, the influence of American war of
independence itself towards the growth of constitutionalism in general and
representative process in particular can not be ignored. The war began
with an economic slogan, ‘No taxation without representation’. The
declaration of Independence (1776) states categorically, “that all men are
created equal; but they are endowed by their creator with certain
inalienable rights…………. That to secure these rights governments are
instituted among men, deriving their just powers government becomes
destructives of these ends, it is the right of the people to alter or abolish it,
and to institute a new government, laying its foundations on such
principles, and organizing its powers in such form, as to them shall seem
not likely to effect their safety and happiness”. Upon this ideology, the
American Constitution was drawn up.

The “Declaration of the Rights of Man and of Citizens” which was

drawn up by the National Assembly of 1789 in France as a by-product of
the French Revolution became a historic document of individual rights,
liberties and representative government. The document declared: “Men
are born free and equal in rights…………. The aim of every political
association is the preservation of the political and imprescriptible rights of
man. These rights are liberty, security and resistance to
oppression…………..Liberty consists in the power to do anything that does
not injure others; accordingly, the exercise of the natural rights of each
man has for its only limits those that secure to the other members of
society, the enjoyment of these same rights. These limits can be
determined by law………….. No one ought to be disturbed on account of

54
 his opinions….. The free communication for ideas and opinions is one of
the most precious of the rights of man”.

3.7 Conclusion:

The political development in the modern age as a consequence of the

civil war in Great Britain, American War of Independence and French
Revolution resulted in the growth of the concept of popular sovereignty.
Popular sovereignty means people wield real powers of governing
themselves, power of the government is limited, no government is
absolute and therefore, people are sovereign, Government exercises the
powers which are entrusted to it by the people.

Making him government a representative body and limiting its powers

led to the growth of the concept of responsible government. The
government is accountable to the people, as the people possess every
power to make and unmake a government.

During the 18th Century began a movement for writing down every rule
in black and white which created the climate for constitution-making. From
the British people, there was not need of calling a convention or
constituent Assembly to sit down and write a constitution for them, as
power was shifted from the crown to the parliament gradually and the
parliament’s authority was established through some acts only. But
documentary constitutions flourished with the framing of the Philadelphia
Constitution of 1787 which was followed by the French people and now,
every independent nation has a written document by which the country is
to be governed. By the end of the Second World War, there was harvest of
constitutionalism for a host of new states emerging from the war,
Constitutionalism thus becomes the life-breadth of a nation and
constitution has become a birth certificate for every independent nation.

55
 CONSTITUTIONS: TYPOLOGY, FUNCTIONS AND CAPABILITIES

3.8 Introduction:

Constitutions differ in context to different countries as well as to

different items. Hence, scholars have tried to classify the various
constitutions taking mainly two variables, namely, the structure of the
constitution and the functions which a constitution performs in a state. So
also, two different approaches have been developed to classify the
constitution, such as, the traditional approach and the modern approach.
The approach followed by Bryce, K.C. where and C.F. Strong is described
as traditional approach, while the approach followed by Karl Lowenstein,
Benjamin Akzin, and Leslie Wolf-Phillips for classifying constitutions is
described as modern approach.

3.9 Evolution:

Towards the end of the 19th Century Bryce in his book Studies in
History and Jurisprudence classified the constitutions into written and
unwritten and rigid and flexible. The constitutions which are expressly set
forth in a document known as written ones and those which began in
surges and customs without resorting to write down everything in a formal
document are known as unwritten rules have the force of law as they are
important for the governance of the country. But Bryce himself admitted
that in all written constitutions, there is and must be an element of
unwritten usages, while unwritten constitutions always include some
statues.

3.10 Classification:

Again, Bryce made a distinction between rigid and flexible

constitutions. The essential point of difference is that in rigid constitutions,

56
the fundamental law is superior to ordinary law and it can not be changed
by the ordinary legislative authority. There is a distinction between the
amendment procedure and law-making process in a rigid constitution. It is
clear from Bryce’s usages of the terms that rigid and flexible relate to the
way in which a constitution may be amended or changed and that a rigid
constitution needs special procedure for its amendment, whereas a flexible
constitution requires no special procedure for amendment.

K. C. Where proposed six-for classifications, such as-

1. Written and unwritten;
2. Rigid and flexible;
3. Supreme and subordinate,
4. Federal and unitary
5. Separated and fused powers
6. Republican and monarchical

Where accepts the distinction made by Bryce of the written and

unwritten constitutions and of rigid and flexible constitutions. Apart from
these distinctions, where makes distinction between supreme and
subordinate constitutions. Those constitutions are supreme which can be
amended not only by the legislature but by a specially convened Assembly
for the purpose. Here the constitution is the supreme law of the land and
all other agencies like legislature or executive are created by the
constitution and are subordinate to it. A constitution, on the other hand,
becomes subordinate when it becomes amended by the legislature.

Where makes distinction between federal and unitary constitution on

the basis of location of governmental powers. If the governmental powers
are located at the centre which may develop the power to the local
authorities, the constitution is a unitary one. But is there is a territorial
distribution of power by the constitution making both the levels of
government independent and coordinate, the constitution becomes a
feudal one. The next classification of the constitutions made by Where is

57
 on the basis of internal distributions of power between the various
agencies of government. If the executive becomes part of the legislature,
the constitution becomes one of fused powers. Finally, there is the
classification of constitutions in to republican and monarchical on the basis
of hereditary principle and lineage, the constitution becomes one of the
monarchical, but if the head of the state becomes elective, the constitution
becomes a republican one.

C. F. Strong introduced bases of classifying modern constitutions

under five following heads:

1. The nature of the state to which the constitution applies;

2. The nature of the constitution itself;
3. The nature of the legislature;
4. The nature of the executive;
5. The nature of the judiciary.

On the basis of the nature of the state, the constitution may be unitary
or federal. On the basis of the nature of the constitution itself the
constitution may be classified as written or unwritten, and rigid or flexible.
On the basis of legislature of bicameral legislature. On the nature of the
executive, the constitution is classified as parliamentary or non-
parliamentary. On the basis of the nature of judiciary the constitution may
be one of common law states or may be one of prerogative state.

3.11 Other Approaches to categorization:

However, Karl Lowenstein criticizes all these approaches of classifying

the constitutions as traditional. He says there is no meaning of making the
distinction between written and unwritten constitution, as all constitutions
of today are written. Again, to him the classification of flexible and rigid
constitution is highly formalistic and unrealistic. Other classifications like
parliamentary or presidential, monarchy or republican actually refer more

58
to the patterns of government they embody than to the constitution
themselves. Finally, there remains the distinction between the federal and
the unitary state organizations which has lost much of its realistic value
because today no country is truly federal without having no bias towards
centralization.

As opposed to this approach, Lowenstein provides some sort of new

approaches of classifying the constitutions. He is conscious of the fact that
the foregoing classifications have a fundamental defect that these
classifications do not take account of infrastructural realities nor they do
deal with processes of governmental machinery. He therefore, proposes
what he describes as the “Ontological” a classification if the constitutions
by which the means of the investigation of what a written constitution
means in reality within a specific national environment. In other words,
how real a constitution is for the common people? Thus taking the
ontological classification that is, normative, nominal and semantic.

In normative constitutions, the norms are faithfully implemented in

reality and there is fewer gaps between norms and practices of the
constitutions. What the constitution declares, that is observed in reality.
Hence in constitutions, norms and practices are coincided and they do not
differ from each other.

There are some constitutions which are accepted, but which are not
fully developed to be observed, these constitutions are known as nominal
constitutions. In such cases, the intention is not to create the gap between
norms and practices, but the body polity has not grown to the extent of full
application of the norms of the constitution. Rightly speaking, the norms
though not observed fully, have got educational value and they are
regarded as “standards of achievement”.

Finally, there is the situation where the constitution is fully applied and
activated but its reality is nothing by the formalization of the powers of the
power holders. Such type of constitution is known as semantic constitution

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and in this pattern there is a great gap between the norms and reality of
the constitution. What declarations the constitutions make are only for
exhibit purpose and have no real value.

Benzamin Akzin makes a two-fold classification of constitutions,

namely, normative and normal. He also tried to establish the
interrelationship between normatively and stability and between nominally
and fragility of the constitutions. The normative constitutions are stable
while the nominal constitutions are fragile. Therefore, a normative
constitution reflects the actual conditions and are obeyed and become
stable, while a nominal constitution indicates the gap between the norms
and reality, and thus become fragile. The measure of gragility of stability
is determined by Akzin the length of time constitutions last, that is
constitutions retain their apparent validity without breach of continuity.

Lesile Wolf – Philips had criticized Lowenstein – Akzin model of

classifying constitutions on several grounds as given below.

1. Neither Lowenstein nor Akzin gives a clear guide as to the method of

designating a constitution as normative or nominal. Though both of
them distinguish, normative from a nominal constitution on the basis of
“realistic” observation, they are silent to state what ‘realism’ constitution
refer to.
2. Akzin’s formulae of calling a constitution “stable” is also not correct, as
a constitution still endures with a number of amendments both in its
operation and in its content and it is called as a stable constitution.
3. Akzin in classifying the constitution into normative and nominal
misunderstood Lowenstein who distinguished semantic constitutions
from nominal constitutions. To Akzin, ‘nominal’ and ‘semantic’
constitutions are the same an interchangeable. But it is very difficult to
place the socialist constitutions in the normative-nominal spectrum.
4. Lowenstein also criticizes Akzin model as too mechanical. He says that
is a constitution is stable, it does not imply that it is observed and even

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 if a constitution is being observed, it goes total change by a revolution
and becomes fragile.
5. A fundamental objection to the Lowenstein Akzin model is that the
categories they use are too large and too inelastic. The categories
(normative-nominal – semantic and stable-fragile) are vaguest as they
do not clearly indicate their specific characteristics by which
classifications are to be made.

Leslie Wolf-Philips thus concludes the analysis of typology of

constitutions by stating forth a reformulated approach which combines
both the traditional approach of Bryce, Where and Strong as well as the
ontological approach of Lowenstein and Akzin. Neither the traditional
approach is wrong, nor is the modern approach alone adequate.
Therefore, the discussion on typology of constitutions is based on the
structure functions performance based classifications which includes all
the foregoing types of constitutions.

3.12 Function of the Constitution:

First of all, constitution refers to the organization of a state. The state

institutions are created and empowered by the constitution. These
institutions work according to the norms of the constitutions. When they fall
to do so, they are liable to change. Hence, a constitution organizes the
institutions in a state.

Constitution governs the relationship between government and citizen

and the relationship of one governmental authority to another.
Constitutionalism refers to “limited government”. It limits the powers of the
government t and the rights of the people. Neither the people have neither
unlimited powers to foil the constitutional norms and to make the
government unworkable, nor the government has unrestricted authority to
interfere with the private affairs of the people. Therefore, it is the function
of the government to define in clear terms the power and authority of the

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government and the rights of the people. Again, a government is a body
composed of different organs like legislature, executive, judiciary etc. and
each organ has been assigned by the constitution with definite powers and
authority. Each organ of the government has to operate within its
jurisdiction and if anyone will surpass i6ts boundary of operation, the act of
the that organ will be declared as null and void. Hence, it is the function of
the constitution not only to create the different organs of the government
but to prescribe their specific and definite powers in order to avoid any sort
of constitutional deadlock.

Constitution leads to stability of a political system. Constitutions are

created with an intention to provide continuity, stability or internal
preservation of the political community and the constitution lives as long as
it performs this function. Stability does not mean that a constitution is
static, as static constitution is not a living one; it becomes dead letters of
law. Therefore constitution allows change to the extent that the society is
changing. But changes come within the framework of the constitution and
not with the fundamentals of the constitution. Frequent changes in the
fundamentals of the constitution to provide stability, continuity and growth
of the political system.

Constitution guarantees liberties to the citizens. As the constitution is

another name of democracy and limited government, it guarantees liberty
to the individuals and groups. Individuals and groups become free from the
governmental authority in certain spheres and the minorities also enjoy
freedom from the dominant majority group as declared by the constitution.

Constitution establishes justice at least in procedural sense procedures

according to which laws are to be made and implemented and thereby
justice is to be maintained. Constitution enshrines laws which are
applicable to all under similar circumstance and thereby establishes justice
for all.

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 Maintenance of law and order is not the only function of a modern
state, but the modern state is obliged to bring rapid socio-economic
development through framing and implementing public policies from time
to time. But policies are not made haphazardly or whimsically, Policies
have some goals or invent which are prescribed in the constitution. What
should be nature of the public policies and how these policies are to be
made are prescribed by the norms of the constitution. Therefore,
constitution helps in formulation of public policies.

Last but not the least; the constitution performs the symbolic function.
The constitution acts as a national symbol, because every independent
nation makes its own constitution for its governance. Constitution is
another name of nationalism and it acts as a baptismal certificate for an
independent state.

The making of capability is the extent to which a constitution is able to

perform its above mentioned functions in order to sustain itself. If the
constitution is not able to perform its functions, it fails to persist and
endure. Therefore, capability is correlated with performance and efficiency.
If the performance level of constitution increases, its efficiency increase
and its capability increase.

‘Performance’ is not a normative study, it is always empirical one

based on observable data, hence ‘performance’ is a matter not of the past,
but of the present. Therefore, ‘capability’ of the constitutions is not a
problem of normative importance but it is an empirical one and ‘capability’
can not be established for all times to come, rather, it has always got time
relevance.

3.13 Conclusion:

If the “constitution” is to be studied with system approach, as it has

been mentioned earlier, Almond’s study of capability of political system
can be applied to the study of capability of political system, such as,

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extractive capability, regulative capability, distributive capability, symbolic
capability and responsive capability. With the same approach, it can be
said that a constitution is a capable one so long as it can extort resources
from both national and international market, can regulate the behavior of
individuals and groups in a political system, can distribute goods, services,
honours, statuses and opportunities of various kinds among the individuals
and groups in society, can act as a symbol of nationalism and democracy
and can maintain a responsive relationship between input and output of a
system.

Capability of a constitution depends upon several factors which affect it

very much. First of all, constitution is a written document only and its
capability depends upon the people who are in power, as they have to
interpret and implement the constitution correctly and properly.
Nevertheless, the goals and actions of the political system itself. A stable
political system leads to an increasing capability of the constitution. But if a
political system is itself unstable, governments are changing frequently,
capability of the constitution suffers. Finally, capability of the constitution
depends upon the level of support of the people to whom it is addressed. If
the people will withdraw their support from the constitution, the constitution
can not work properly. Furthermore, if there will be constant turmoil due to
disagreement of parties and interest groups on the values of the
constitutions, the capability level will be low.

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 Unit – IV
POLITICAL ELITE

4.0 Introduction:
History is neither made by the masses nor by ideas, nor by silently
working forces but by elite who from time to time assert themselves.
Governing elite from its position of control of government and having
power of the state determines which values shall be expressed in public
policy and which values shall be realized in government operations. There
are as many elite as there are values.

The word “elite” was used in the 17 th century to describe commodities

of excellence and then it was used to refer to superior social groups as
military chiefs or men of higher social nobility. But it came to use in social
and political writings in 1930s in Britain and America through the
sociological theories of elites notably in the writings of Pareto and Mosca.

4.1 Meaning of Elite:

In general, the term ‘elite’ refers to those people who hold social and
political powers in a society and who have the highest indices in their
branch of activity. The concept refers to inequality in virtue, knowledge,
capability, status and position. One is treated as a member of the elite
group in that particular field or branch in which one is better placed vis-à-
vis the rest of one’s companions. If “elite” as a general term is applied to
those who enjoy a higher status in their fields because of their excellence,
we need another term or the minority, who posses the power to rule and
we give the name ‘political elite’ to them.

Political class refers to all those groups in society which exercise

political power of influence and are directly engaged in struggles for
political leadership. The political elite is a smaller group within the political
class. It comprises those individual who actually exercise political power in

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 a society at any given time. It includes members of the government and of
the higher administration, military choices and leaders of powerful
economic enterprises.

4.2 Theories of Elite:

Theory of elites started from Pareto and Mosca (Italians), Michels

(Swiss-German), Gasset (Spaniard), and then it was dealth with by
Schumpeter (Economist). Lasswell (Political Scientist) and C. Wright Mills
(Sociologist).

4.3 Pareto’s Views:

Pareto (The mind and society) defines ‘elite’ in two different ways. He
begins with a very general definition that, that people who have highest in
their branch of activity, to that class, we give the name of elite. But in the
second sense, which was more important than the former one, he uses the
term ‘elite’ to the minority that possesses the qualities necessary for its
action to full social and political powers. Those who occupy the top
position are always the best. So he points out that in every population one
finds two starta: (I) a lower stratum, the non – elite, and (II) a higher
stratum, the elite which is again divided into two, namely (i) the governing
elite, and (ii) the non-governing elite. Pareto observed that the upper
stratum of society, the elite, nominally is composed of certain groups of
people that are called aristocracies and plutocracies.

4.4 Mosca’s Views:

Mosca (the ruling class) makes a distinction between ‘elite’ and

‘masses’. He writes: in all societies two classes of people appear a class
that rules and a class that is ruled. The former is always the less
numerous, performs all political functions, monopolizes power and enjoys
the advantages that power brings to them; whereas the second, the more
numerous class, is directed and violent. For governing elite Mosca uses

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 that term ‘political classes. The minority is usually composed of superior
individuals who possess some special attributes for which they become
influential in society. But, Mosque’s elite is not an autocrat, as he says that
the political class itself is influenced and restrained by a variety of ‘social
forces’ representing numerous different interests in society, and also by
moral unity which can be expressed in the form of rule of law. Mosca later
on admits that, the governing classes are also controlled by the
representative system of government, voting and numerous social forces.
In Mosca’s theory, the elite does not rule by force and fraud, but
‘represents’ in some sense, the interests and purpose of important
influential groups in society.

The ‘class’ concept may referred to Marx’s theory which states that in
every society two categories of people may be distinguished: (a) a ruling
class, and (b) one or more subject classes. The ruling class, being in
posses or classes and the class struggle and only with the victory of the
working class, followed by the emergence of a classless society.

4.5 Marx’s Views:

Marx’s theory of ruling class has been subjected to criticism from

various quarters. Mosca and Pareto criticizing it suggest that it is a mano-
casual theory which could not do justice to the complexity of historical
changes. Schumpeter and Max Weber explain that the social conflict has
been quite often the result of non-economic factors.

4.6 C. W. Mils Views:

Curtis Wright Mils (the power elite) explains his performance for the
term ‘Power Elite’ rather than “Ruling Class” by saying “Ruling Class” is a
badly loaded phrase, “Class” is an economic term; “Rule” is a political one.
The phrase “Ruling Class” thus contains the theory that an economic class
rules politically. According to Mills, in every society power has been
concentrated not only in the hands of economic cases, but also in the

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hands of political and military classes. The higher agents of each of these
domains have a notable degree of autonomy and that by way of coalition
they make up and carry important decisions. Men exercising power in
these spheres constitute a cohesive class and to this class, Mills gives the
name ‘Power elite’.

Mills defines the power elite in much the same way as Pareto defines
his ‘governing elite’, for he says, “we may define the power elite in terms of
the names of power as those who occupy the command posts”. Mills
distinguishes three major elite the corporation heads, the political leaders
and the military chiefs. He goes on to enquire whether these three groups
together. His answer to these questions is that these groups do gore
single elite because they are representatives of an upper class, which has
to be regarded as a ruling class. Mills has emphasized the unity of the elite
which has to be regarded as a ruling class. Mills has emphasized the unity
of the elite which can be obtained by the homogeneity of its social origins.
Mills further argues that the interchange of personal between the three
spheres also provides the cohesiveness to the elite group.

By ‘power elite’, Mills means a contrast between the organized ruling

minorities with the unorganized majority or masses and thereby
distinguishes it from the “ruling class” as used by Marx. In Mill’s study of
the “Power elite”, there is an attempt to explain the power position of three
principal elite taken separately that of business executives by the growth in
size and complexity of business corporation; that of the military chiefs by
the growing scale and expense of the weapons of war, determined by
technology and the state of international conflict; and that of the national
political leaders, by the decline of the legislature, of local politics and of
voluntary organizations. However, no where, them, the division is natural
and predetermined and Mills had regarded it as unfortunate and
unavoidable.

Carl J. Friedrich observes that one of the most problematical parts of

all elite doctrines is the assumption that the men of power do constitute a

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 cohesive group. In the light of continuous change in the composition of the
majority, it is not possible to say under conditions prevailing in functioning
of democracy, that those who play some considerable part in government
constitute a cohesive group. This view of elite is stated “……….. the rulers
are not at all close knit or united. The are not so much in the centre of a
solar system, as in a cluster of interlocking circles, each one largely
occupied with its own professionalism and expertise, and touching others
only at one edge………….. They are not a single establishment but a ring
of establishments, with slender connections. The friction and balance
between the different circles is the supreme safeguard of democracy. No
one man can stand in the centre, for there is no centre”.

Mills rejects this fashionable liberal –minded doctrine, which he

summarizes as follows: “Far from being omnipotent, the elite are though to
be so scattered as to lack any coherence as a historically force…… Those
who occupy the formal places of authority are so checkmated-by other
elite exerting pressure, or by the public as an electorate or by
constitutional codes- that although there may be upper classes, there is no
ruling class; although there may be a system of stratification, it has not
executive top. “He insists that the three principal elite-economic, political
and military are, infect, a cohesive group.

4.7 Mitchell’s Views:

The name of Roberto Mitchell’s (1876-1936) is associated with that is

known as the Iron Law of Oligarchy, which he declares as “One of the
iron laws of history, from which the most democratic modern societies
and, within those societies, the most advanced parties, have been
unable to escape”. The primary factor supporting this law is the
element of organization. No movement or party can hope to succeed in
modern times without organization. “Organization” is simply another
way of spelling “Oligarchy”. As a movement or party grows in size,
more and more functions have to be delegated to inner circles of
leaders, and, in course of time, the members of the organization are

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officers acquire great freedom of action and vested interest in their
position. The growth of this kind of oligarchy is supported by Mitchell’s
who had made a through study of mass mind. The majorities of human
beings, according to Mitchells is apathetic, indolent and slavish, and
are permanently incapable of self-government? They are susceptible to
flattery. Leaders easily take advantages of these qualities to perpetuate
themselves in power. Once the leaders reached the pinnacle of power,,
nothing could bring them down. “If laws are posed to control the
dominion of leaders, it is the laws which gradually weaken and not the
leaders”. Revolutions occur in history and tyrants are deposited but
new tyrants arise, and the world goes on as before.

The conceptual scheme of elite theories thus comprises the

following notions; in every society there is and must be a minority
which rules over the rest of society. The minority is the ‘Political class’
or ‘governing elite’ or power elite’ composed of those who occupy the
posts of political command and those who can directly influence
political decisions. They believe that, the minority undergoes changes
in its membership over a period of time, ordinarily by the recruitment of
new individual members from the lower strata of society, sometimes by
the incorporation of new social groups and occasionally by the
complete revolutions. According to Pareto, if there will be no circulation
of elite, it may result in considerable increase of the degenerate
elements in the class which still hold power and on the other hand, an
increase of elements of superior quality in subject class. In such a
case, the social equilibrium becomes unstable and the slightest shock
will destroy it. A conquest or revolution produces an upheaval, brings
new elite to power and establishes a new equilibrium.

The question arises: What leads to the degeneration of the

governing elite which destroys the social equilibrium and gives rise to
the circulation of elite? Pareto answers the question in terms of
changes taking place in the psychological characteristics of the elite. In
order to assess the value of this explanation, it is necessary to consider

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 briefly Pareto’s concept of ‘residues’. By ‘residues’ Pareto means the
qualities through which a person can rise in life. He has made a list of
six residues, namely, residues of combinations, persistence of
aggregates, of sociability, of activity of the integrity of the individual and
of sex. But, he attaches the primary importance to the residues of
‘combinations’ and the ‘persistence of aggregates’ with the help of
which the governing elite tries to maintain itself in power.

The ‘residues of combination’ means ‘cunnings’ and the

‘residues of persistent aggregates’ means force, Elite must possess at
least these two residues, namely ‘cunningness’ and force. When there
is a change and force’, there is degeneration of the qualities of elite
and the same qualities are cultivated in some of the mass, which leads
to circulation of elite. Pareto’s explanation for circulation of elite is
based upon the historical examples. But the history, he uses is not
comprehensive and broad-based to support his explanation of
circulation of elite. Moreover his study or rise and decline of elite as
such is equally unsatisfactory as Pareto ahs not tried to show how the
changes in the psychological traits of human mind makes place leading
to rise and decline of elite.

4.8 Circulation of Elites:

Like Pareto, Masco also believed in the theory of circulation of elite.

According to Masco, the distinguishing characteristic of the elite is that
should possess the “aptitude to command and to exercise political control”.
Then he describes the circulation of elite as follows: “When the aptitude to
command and to exercise political control is no longer the sole
possession of the legal rulers but has become common enough among
other people, when outside the ruling class another class has formed
which finds itself deprived of power though it does have the capacity to
share in the responsibilities of government then that law has become as
capacity to an obstacle in the path of an elemental force and must, by one
way or another , go “Again he writes”…………. Within the lower classes,

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another ruling class, or directing minority, necessarily forms, and often this
new class is antagonistic to the class that holds possession of the legal
government”.

Like Pareto, Mosca does not attach supreme importance to the

psychological characteristics of individual in his explanation of the rise and
fall of elite but he refers to the germination of new ideas, ideals, interests
or problem in the society. If a new source of wealth develops in a society.
If the practical importance of knowledge grows, if an old religion declines,
or a new one is born, if a new current ideas spread, thus simultaneously
far reaching dislocations occur in the ruling classes.

Mosca speaks of ‘political formulae’ which the elite must know in order
to command and remain in power. The political formulate may not and
generally does not embody absolute truth. It may as well be merely a
plausible myth, which is accepted by the people. Even by simple fraud or
myth, if the elite can cajole and move the people and keep them in
subjugation, they can remain in power. When the elite forget about this
political formula, the circulation of elite becomes inevitable.

Schumpeter made a similar observation in an essay on ‘Social Classes

in an Ethically Homogeneous Milieu”. One of the most valuable features of
Schumpeter’s study is that it considers together the individual and social
factors in the circulation of elite. In the movement of families between
classes, he argues, social assent is influenced by individual endowment in
energy and intelligence, and also by social circumstances such as, the
openness of the upper class, and the opportunities for enterprise in new
fields of activity. Similarly, in the rise and fall of whole classes, some
weight must be attributed to the qualities of individuals, but a more
important influence is exerted by structural changes affecting the functions
of the elite groups”……… The position of each class in the total national
structure depends on the one hand, on the significance that is attributed to
(its) function, and on the other hand, on the degree to which class
successfully performs the function”. Thus Schumpeter recognizes that new

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social groups may be formed in a society as a result of economic or
cultural changes, that such groups may then increase their social influence
in so far as the kinds of activity in which they engage become of vital
importance to society at large, and that these activities may in due course,
produce changes in the political system and in the social structure as a
whole. However Schumpeter, in a latter work, Capitalism, Socialism and
Democracy, discusses, the changes in culture which are helping to bring
about the decline of capitalism, but he treats these changes as secondary
and largely dependent upon changes in the economic order.

Thus, we find there is not one type of political elite but there are
different types of elite. As in the society, different interests and different
values, systems coexist, so also there are different elite groups who have
ascended to the top on their spheres. T. B. Bottom ore says that among
the social groups, which have risen to prominence in the tremendous
social and political changes of the 20 th century, there are three types of
elites, namely, the intellectuals, the managers of industry and the high
government officials. They have often been singled out as the inheritors of
the functions of earlier ruling classes and as vital agents in the creation of
new forms of society.

Of these groups, the intellectuals are the most difficult to define, and
their social influence is the most difficult. The intellectuals include the
persons who contribute directly to the creation, transmission and criticism
of ideas; they include writer, artists, scientists, philosophers, religious
thinkers, social theories, political commentators. They have direct concern
with the culture of the society and they are the catalysts of social change.

Intellectuals are found in almost all societies, but their functions and
their social importance very considerable. In some societies, the
intellectuals have come close to being governing elite. Intellectual, are
more or less independent group and they taken prominent part in radical
and revolutionary movement.

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 A second group which has attracted attention as potential ruling elite is
that constituted by managers of industry. They are the keepers of the
community’s materials welfare. Burnham speaks that we are living in a
period of transition from one type of society to another, form a capitalist
society to a type which he prospers to call the “Managerial Society”.
Burnham’s argument is that the managers are taking over the economic
power which was formerly in the hands of the capitalist owner of industry
and are thus acquiring the power to shape the whole social system. The
managers shall be a distinct social group, but they shall be a cohesive
group, aware of their group interests in struggle for power by attempting to
show the individuals ideology of capitalism is being replaced by a
managerialistic ideology. They are he elite in the sense that they have high
prestige and take important economic decisions, and that they are
increasingly aware of their position as a functional group.

The third social group-the high government officials, appear to be a

powerful elite in modern societies. High government officials are of two
types, namely, the political executives and the bureaucratic executives.
The idea of bureaucratic elite originated in the works of Max Webber who
did not believe that the power of bureaucracy could be checked by political
authorities, even in a democratic system. Power of bureaucracy has been
increased because of the increase in the range of activities undertaken by
the state and by the growing complexity of public administration. They are
also a functional group who shape public policies and implement them and
through that bring economic changes in society.

This account of three elite suggests a number of interesting

conclusions about the relation between elite and classes. No one can be
regarded as contenders for the place of the governing elite. None of these
groups is sufficiently cohesive or sufficiently independent to be considered
in such light.

In the developing countries, the problem is somewhat different. In

these countries the society is changing fast due to rapid industrialization

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 and economic advancement. With this, there is the problem of competition
intrude and economic advancement. With this, there is the problem of
commute in trade and investment with this, advanced counties of the
world, to contend with political instability, with popular demands for high
levels of consumption and welfare and with the powerful opposing forces
of traditional ways of life. In such conditions five types of elite are found in
such developing societies. These elite customarily and variously take the
leadership of the industrialization, modernization and development
process. These five types are 1) a dynastic elite 2) the middle class 3) the
revolutionary, intellectuals 4) the colonial administrators, and 5) the
nationalist leaders.

In every society, development or developing, totalitarian or democratic,

there is a minority who effectively rules over the majority. Elite theory
believes in government by chosen few, while democracy is a government
by law. Some the question arises how elite rule in a democracy, or in other
words, how democracy and government by elite reconcile.

Karl, Mannheim, who in his earlier written had connected elite theories
with fascism, played an important role in reconciling the two. In his letter,
writings, he finds no contradiction between elite and democracy, when he
writes that “The actual shaping of policy is in the hands of elite; but this
does not mean that the society is not democratic”.

4.9 Democratic Theory:

Now the question arises what is the meaning of democratic theory of

elite? This theory explains that as a form of government democracy
permits elite to form freely and establishes a regulated competition
between elite for the position of power. On the other hand, the mass of the
population is able to participate in ruling society at least in the sense that it
can exercise a choice between the rival elite. It is sufficient for democracy
that the individual citizens, though prevented from taking directorate in
government al the time, have at least the possibility of making the

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aspirations felt at certain intervals. Even if the elite rule in a democracy,
they are restrained and controlled by the people and they make policies in
the interest of the people, because they come to power by the people. The
difference between a totalitarian system and democracy was that whereas
in the former the minority rule despotically, in the latter it is not possible as
there is the fear that if the minority would be autocrat, they would be
removed from office by the people. The democratic elite have a mass
background; that is why it can mean something for the mass. The theorists
of democracy discover a more general system of checks and balances in
the plurality of elite, which characterizes democratic societies. As different
groups of men looking for different ways of obtaining support from the
masses, different political parties are formed and enter into a competition
with each other to obtain support for power, the governing elite can not
rule despotically and the government becomes a business of comprises.
Those who are in power, become considerate, because they themselves
have been, and will one day again be in opposition.

Again, in a democracy, there is a more rapid and extensive movement

of individuals into and out of the elite. There are increasing number of elite
positions in relation to the population as a whole and the elite develop a
less “aristocratic” outlook and regard themselves as being closely linked
with the masses, and that, in consequence of various leveling influences,
they come closer to the masses in their style of life.

References:
1. Lasswell, Harold D., Daniel Lerner and C. E. Rothwell, the comparative
Study of Elites.
2. Mills, Curtis Wright, the Power of Elite.
3. Pareto, Vilfredo, the Mind and Society.
4. Mosca, G., the Ruling Class.
5. Bottomre, T. B. Elites and Society.

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