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Saturday, 6 July 2013

Max Weber


Max Weber

Introduction:

Max Weber is conventionally described as a value-free sociologist who rose above politics. His work is assumed to have a timeless quality that is not at all related to the debates within his own society at the time. Weber was primarily concerned with three central issues. These emerge in Weber’s earliest writings but they continue throughout his life. One was the question of empire: why was imperialism in Germany’s interest? The second was the leadership of Germany: after its unification, who was to lead the German nation? Finally, there was the question of class division and the rise of Marxism: how best was Marxism to be combated? In the following section a brief overview of his methodology and some of his major works are described.

Methodology:

Early sociology tried to model itself on the natural sciences and sought to import their methods into the study of society. The positivist school of Auguste Comte was the most ambitious in this regard. It believed that the process of observation and comparison of social phenomena would eventually yield evidence of social laws. These in turn would enable the sociologist to predict future behaviour and so develop a certain power to control events. The positivist approach put primary emphasis on observable human behaviour. But soon questions emerged. What if our observations were biased by our culture, language or the peculiar features of our mind? In addition, where did mental activity, which was unobservable, fit into this? What role did interpretation and choice play in constructing the social order?
Weber’s sociology became part of the revolt against positivism. Philosophically, he was influenced by German idealism, which assigned a huge role to the human mind in actively constructing the observable world. Ideologically, he was deeply committed to what might be now termed a neo-liberal concept of ‘free choice’, which grew out of his support for market-based economics. Both these strands led him to a series of writings on methodology which has had enormous influence on subsequent sociologists. Weber’s writings on methodology were published posthumously in Max Weber on the Methodology of the Social Sciences. This contains articles on whether knowledge about society can be objective or whether it is relative.

Individualist approach:

Weber’s sociology is based on a methodological individualism which seeks to break down collectivities such as ‘classes’ or ‘nations’ or ‘the family’ in order to see them as the outcome of social actions of individual persons. For Weber, however, choice plays a huge role in society and, therefore, in the methodology of disciplines that study it. The subject matter of sociology, he argued, was social action. Action occurs when ‘the acting individual attaches a subjective meaning to his behaviour – be it overt or covert, omission or acquiescence[1]. In other words, the individual interprets, chooses, and evaluates what they are doing, according to their own distinct mental life. Action is social when the meaning given by the individual ‘takes account of the behaviour of others and is thereby orientated in its course[2]’. Society is formed by individuals choosing, interpreting and acting in ways that take account of the fact that other individuals are doing likewise.

Versthen method:

A number of complex conclusions followed from this particular view of the social world. The first was the famous Verstehen method. Following the wider German idealist tradition Weber denied that the discovery of general laws added anything to our understanding of ‘why’ humans acted as they did. Even if there was strictly statistical evidence to show that all men who had been placed in a particular situation invariably reacted in a certain way, all this would show would be that their actions were calculable. Such a demonstration, he argued, would ‘contribute absolutely nothing to the project of “understanding” “why” this reaction ever occurred and, moreover, “why” it invariably occurs in the same way’[3]. What was needed instead was a method of Verstehen or understanding, which would allow us to get into the inner sense of how individuals subjectively interpreted and chose what they were doing. In Weber’s own words, the Verstehen method means,
to identify a concrete ‘motive’ or complex of motives ‘reproducible in inner experience’, a motive to which we can attribute the conduct in question with a degree of precision that is dependent upon our source material. In other words because of its susceptibility to a meaningful interpretation ... individual conduct is in principle intrinsically less ‘irrational’ than the individual natural event[4].
There are two types of Verstehen. One is a direct observational understanding where we grasp what is really going on merely through noticing facial expressions or outward behaviour. Another type is explanatory understanding where we place the action in a ‘sequence of motivation’ and so work out why it is occurring. In both cases sociology is primarily about putting oneself in another’s mind. By using precise methods to access the motives of other people we are able to understand why they acted as they did. From this point of view, the behaviour of someone you truly know is far more predictable than the weather. Notice here the implicit promise that Weber is holding out: it is possible to focus on Geist or culture or motives and still be as ‘scientific’ as the natural sciences. His aim was to rid the Verstehen method of a lazy, intuitive approach, which simply assumed there was a natural empathy between individuals. He wanted to lend it instead a ‘scientific’ rigour. Or, to put it in a broader context, to link the German idealist tradition to the motor of modernity.

Value free sociology:

This rigorous approach to Verstehen demanded a trade-off from the sociologists – they would have to be ‘value free’. As conflicting values reflected power struggles in society, the sociologist had to put aside their own values when engaged in research. In order to access the mind of others who might have opposing values it was necessary to temporarily put one’s own values aside. It should be clear ‘exactly at which point the scientific investigator becomes silent and the evaluating and acting person begins to speak’.[5] Another reason for the strict injunction about value freedom was that Weber believed that there was an unbridgeable gap between the world of ‘what is’ and ‘what should be’. Empirical research could not lead to any conclusions about values because ‘to judge the validity of such values is a matter of faith’.[6] There were also, however, more pragmatic reasons for advocating ‘value freedom’.
Social scientists also needed to assess how people used the scarce means that were available to achieve their ends. They could ‘scientifically’ draw out the implications of the pursuit of certain values and illustrate to people the actual means that would be required to achieve them. They could do this even while opposed to their value system. The social scientist could select a problem for investigation and have the direction of the investigation kickstarted by their own value system – but once underway, he or she needed to suspend their own values and adopt the most rigorous scientific methods. The following is probably is the clearest summary of Weber’s complex argument:
1.      The choice of the object of investigation ... [is] determined by the evaluative ideas which dominate the investigator and his age.
2.      In the method of investigation, the guiding ‘point of view’ [of the researcher] is of great importance for the construction of the conceptual schema which will be used in the investigation.
3.       [but] in the mode of their use [i.e. the conceptual schema] the investigator is bound by the [scientific] norms of our thought just as much here as elsewhere. For scientific truth is precisely what is valid for all who seek the truth.

Ideal types:

Weber added one more element to his attempt to marry a subjective focus on values with his desire for objective methodological rigour. This was the ideal type, which Weber believed was ‘heuristically indispensable’ for sociological and historical research.[7] To understand it we need again to return to the old debate between the Historical School of Economics and the Austrian marginalist school. The Austrian school sought to eliminate all discussion of particular national cultures from the workings of each economy. Their analysis started out from an economic man who existed as an isolated atom. The marginalists placed this imaginary man in particular situations of scarcity, or in situations with different balances between supply and demand. From these scenarios, they devised general laws of the economy that could be stated with quite mathematical precision. One of their number, Stanley Jevons, stated that ‘the general form of the laws of economy is the same in the case of individuals and nations’.[8] This level of formal equivalence could only occur because the economic man they started out from was shorn of his particular histories, foibles, and cultures – he was an abstract model or ‘ideal type’, which functioned as a sort of thought experiment. Weber summarised the underlying philosophy of the marginalist school by saying that it examined what course a ‘given type of human action would take if it were strictly rational, unaffected by errors or emotional factors and if, furthermore, it were completely and unequivocally directed to a single end, the maximization of economic advantage’.
Weber wanted to import the methodology of the ideal type into the wider field of social science because he believed it would impose an intellectual discipline on the researcher who was using the Verstehen method. The sociologist, he argued, had to follow the economist in constructing an ideal type that highlighted certain aspects of reality. The ideal type was not meant as a description but was a ‘one-sided accentuation of one or more points of view’ and a ‘synthesis of a great many diffuse, discrete … concrete individual phenomena, which are arranged according to those one-sidedly emphasized viewpoints into a unified analytical construct’[9]. It was therefore a model that was based on pure elements that represented people’s motive and culture. So, for example, the researcher could develop an ideal type of a Puritan by assembling together the pure motives that followed from their religious beliefs. Or in a more complex fashion, he or she could develop an ideal type of the ‘handicraft’ economy in order to contrast it with ‘industrial capitalism’. Ideal types were models for highlighting contrasts and comparisons between different societies. They also allowed connections to be drawn between different spheres of society, between, say, religious beliefs and economic action. These were known as elective affinities.
Weber was keen to stress that the ideal types were only explanatory devices which helped to bring out the significance and meanings that humans bestow on their actions. The criterion of their success was whether they revealed ‘concrete culture phenomena in their interdependence, their causal conditions and their significance’.26
The ideal types were related to the four main categories of social action. These were:
        Traditional action, which was a form of ingrained habit – you do something because it was always done like that;
·         Affective action, which is based on emotional feeling – you do something because of love for, say, a brother or sister;
        Value rational action, where actions are undertaken for some ethical or religious ideal and there is no consideration of its prospect of success – you do something for God or ‘the cause’;
        Instrumentally rational action, which is based on rational calculation about the specific means of achieving definite ends – you do something because it is the most effective means of achieving a specific goal.

Spirit of capitalism:

Weber’s most famous book is The Protestant Ethic and the Spirit of Capitalism. It is regarded by many sociologists as one of the key texts in their discipline. Its central question is: why did capitalism begin in Western Europe rather than in Asia? Weber’s answer focussed on religion – in particular, the Protestant Reformation.
The book is important because it moved sociology from a concern with general evolutionary patterns to a comparative approach. Writers such as Auguste Comte had devised a universal scheme whereby societies moved through a series of stages. His three main stages were the ‘theological’, where religious belief was dominant; the ‘metaphysical’, where the language of human rights became more prevalent; and finally the ‘positivist’ stage, where conflicts were resolved by a scientific elite who understood social laws. Marx had questioned this broad schema, which was based on abstract systematising. However, it was Weber who shifted the focus to a comparative analysis, attempting to identify what was unique and different about particular societies.

Capitalism:

The crucial point of Weber’s argument was that Western Europe was unique in giving birth to modern capitalism. This then framed the question that forms the core of the book: how did this unique development occur? Weber defined capitalism. ‘The impulse to acquisition, pursuit of gain, of money, of the greatest possible amount of money’, Weber wrote ‘has in itself nothing to do with capitalism’.[10] Many people might, on the contrary, think that these features have everything to do with capitalism. If you remove the catchall phrase ‘in itself’ the sentence would appear truly extraordinary. However, Weber’s argument was that the impulse to pursue money is common to all people in all times and so is not unique to capitalism. Definitions have to focus on what is unique and essential and so Weber claimed that the essential feature of capitalism is its pursuit of ‘renewed profit, by means of continuous rational ... enterprise’. Formally, he defined capitalist action as ‘one which rests on the expectation of profit by the utilization of opportunities for exchange, that is on (formally) peaceful chances of profit’. Like Marx, he notes that rational capitalism rests on ‘formally free labour’. This is labour which is bought and sold on the market place like any other commodity. For this system to emerge there had to be a number of preconditions in place. One was a rational structure of law that lent stability and certainty to the calculations about moneymaking. Another was an administration based on trained officials who did not rely on tax collection to line their own pockets. Still another precondition was the development of technology. Technology here is understood not simply as machinery but also as forms of knowledge such as bookkeeping, which paved the way for a more calculating culture.

The protestant spirit:

The central theme of Weber’s analysis is an exploration of protestant spirit. There is some evidence, he claims, to suggest a prima facie case for a link between the Protestant religion and capitalism. Business leaders in Germany tend to be Protestant; districts with the highest level of economic development are Protestant; Protestant students tend to study technical and scientific subjects while Catholics choose more ‘humanistic’ ones.
Weber identifies the spirit of capitalism as ‘the earning of more and more money, combined with the strict avoidance of all spontaneous enjoyment of life’. This spirit led to the formation of a sober, industrious bourgeois class but it was also necessary for the creation of a modern working class. Capitalism needed constantly to increase productivity but it could only do so when workers did not look for ‘the maximum of comfort and the minimum of exertion’ and instead performed labour as if it were an ‘absolute end in itself, a calling’.
Where did this new capitalist spirit come from? After all, moneymaking went against the dominant culture of medieval times. According to Thomas Aquinas, moneymaking was a ‘turpitudo’ – it was dirty, and sinful. Money was a ‘filthy lucre’ and painters such as Pieter Bruegel often depicted money as faeces. An individual could not make the breakthrough against this culture. The spirit of capitalism had to come from a way of life that was common to whole groups. Possible candidates were traders or pirates who engaged in moneymaking, despite the dominant culture. Weber, however, rules them out as originators of the new society because they were not engaged in regular, systematic accumulation of capital. They went for a series of one off gains or displayed an uncontrolled impulse of greed. Traditionalist opposition to moneymaking could only be shaken by a profound culture change and this is precisely what occurred in the Reformation. The psychological impact of the Reformation allowed Protestants both to adopt an enterprising, rational spirit and to look on work as a duty.
The teachings of Luther and Calvin were decisive. Prior to Luther, the Catholic Church drew a sharp distinction between the moral codes that applied to the laity and secular clergy on the one hand and religious orders on the other. The religious orders were obliged to follow the higher morality of the gospels, especially expressed in vows of obedience, poverty and chastity. This moral code was seen as impossible to fulfil in a secular life and so holiness was defined as a withdrawal from the world. Luther changed all this when he introduced the concept that every person had a ‘calling’ or a ‘vocation’ given to him or her by God. Weber claims that Luther’s translation of the Bible shifted the meaning of a key term so that labour in everyday life was seen as a God appointed task. Withdrawal from the world into monasteries was deemed a form of selfish idleness; true holiness meant fulfilling your worldly duties so as to glorify God.
This was potentially a revolutionary doctrine but Luther still gave it a traditional twist. Under the impact of the Peasant War in Germany – where Luther turned on many of his own radical supporters – he stressed how individuals needed to adapt themselves to the particular calling chosen for them by God. If a peasant’s lot was to farm barren land while the lord lived off his taxes, then each had simply to accept those positions as their calling.
It fell to Calvin to draw out the more radical elements of the Reformation. Calvin returned to the traditional dilemma that all Christians face – if God is all-powerful, then how can individuals have a genuinely free choice? Logically there was no scope for autonomous human decision-making if God was so powerful that he had created the future in advance. Calvin, therefore, adopted the famous doctrine of predestination whereby God had preordained who was going to heaven and hell. The effect of this doctrine was to produce an intense, lonely form of anxiety, which cut each individual off from other human beings.
Consider for a moment what was involved. If it was preordained that only a small number of students – the elect – would pass exams and the rest would be thrown out of college, think of the high levels of anxiety this would cause. However, in the sixteenth century, we are not considering relatively trivial matters such as careers but the whole of one’s eternal life. One result of this anxiety was that it led people desperately to search to see if they were part of the elect. The Calvinist sects, who were communities of true believers, taught that it was one’s ‘absolute duty to consider oneself chosen, to combat all doubts as temptations of the devil’. In order to attain this selfconfidence, intense worldly activity was recommended. Success in one’s calling alone dispersed religious doubts and gave certainty of grace. Calvinism therefore led to a highly individualistic desire for achievement as a means of counteracting religious anxiety.
Weber refers to the psychological state whereby people removed everything from their life that interfered with their calling as a ‘worldly asceticism’. Protestant beliefs encouraged people to bring their actions under constant self-control. They could not turn to a priest or the confessional to relieve sins and anxiety. Their only way of relieving anxiety was ‘not single good works but a life of good works combined into a unified system’. Idleness and wasting of time became the greatest sins. Everything had to be put into a methodical pursuit of a calling. In this way, the asceticism of the monastery was brought out into the marketplace. Calvinism ‘substituted for the spiritual aristocracy of monks outside of and above the world, the spiritual aristocracy of the predestined saints of God within the world’. Unlike Luther’s interpretation, the doctrine of the calling did not imply an acceptance of one’s lot but rather an injunction to work hard, to make money in order to glorify God. It condemned idle ‘spontaneous enjoyment of possessions’, dishonesty and impulsive avarice but still promoted wealth as a means of showing the individual that they had a sign of God’s blessing.
All of this was part of the unintended consequences of the Reformation. Nobody became a Protestant in order to become a capitalist but the psychological effects of the actual doctrine were highly significant, in their unanticipated consequences. It led to ‘the accumulation of capital through ascetic compulsion to save’. Religious asceticism also provided employers ‘with sober, conscientious and unusually industrious workmen, who clung to their work as to a life purpose willed by Gods’. Above all the ideal of methodical self-control led to the ‘ethos of rational organisation of capital and labour’. Against Sombart, Weber claims that Judaism led ‘to the politically and speculatively orientated adventurous capitalism’ whereas Puritanism promoted a rational sober bourgeois life that restrained the consumption of wealth and so increased productive investment of capital.

Domination and bureaucracy:

Weber provided subsequent sociologists with a wealth of concepts that became their toolbox for generating new theories. He liked to draw up a set of typologies to categorise different forms of social action. One of the most famous of these is the different categories of domination which have been exercised in society. Weber argued that there were three main forms of domination – traditional, charismatic and rational legal. The writings on these forms of domination are to be found in Economy and Society. Weber used his vast historic knowledge to provide examples from a wide range of societies to illustrate the dynamics of each of these forms of domination. He was less interested in how people resisted or overthrew the power structures and focussed more on how they were maintained. He assumed that domination was natural and drew from the philosophy of Friedrich Nietzsche a belief that the ‘will to power’ pervaded all human relationships.
Weber’s definition of power has also become a classic in sociology. Power, he argued ‘is the probability that one actor within a social relationship will be in a position to carry out his own will despite resistance, regardless of the basis on which this probability exists’. This definition focuses on the individual actor and their will – on this inner mental capacity to enforce their desires. There is no reference to resources – either economic or military – which the particular actor might need. As Brennan has pointed out, it is a subjective definition of power and one more likely to flatter existing power holders. Those at the bottom are more likely to experience power as an objective constraint – they obey the capitalist or the slave owner because these hold the machinery or the whip, not necessarily because they respect his or her will.

Types of domination:

Weber acknowledged that his definition of power was amorphous because it could refer to all conceivable circumstances. His principal writings focus instead on domination, which he saw as a special case of power. Domination is defined as ‘the probability that a command with a given specific content will be obeyed by a given group of persons’. This is again a broad opening statement but Weber soon moves to distinguish between two main forms of domination. There is, first, domination by monopoly control of economic resources. So a central bank or a multinational like Standard Oil can enforce their command over debtors or on garage retailers because they hold the economic monopoly. Second, there is domination by the authority of office. Thus state officials or army generals use non-economic sources of power to dominate. The distinction between them can be fluid and one form of domination can develop into another.
Weber argues that there are three ideal types of legitimate authority in history. These ideal types are not necessarily found in pure forms in the real world but they are useful yardsticks to measure reality against.
·         Traditional authority rests on beliefs in the sanctity of immemorial tradition and custom. This type of domination is exercised by tribal chiefs, patriarchs, feudal aristocrats.
·         Charismatic authority rests on devotion to the exceptional sanctity, heroism or personal magnetism of a heroic figure. Revolutionary leaders, prophets and warriors, for instance, exercise this type of authority.
·         Legal Rational authority is based on properly enacted rules and is given to office holders rather than specific persons. Bureaucrats and government ministers have authority of this type.
Weber’s three ideal types distinguish between the grounds on which obedience is based. Parkin[11] provides an excellent, succinct summary
Type of dominance
Grounds for claiming obedience
Traditional
Obey me because that is what our people
have always done.
Charismatic
Obey me because I can transform your life.
Legal Rational
Obey me because I am your lawfully
appointed superior.

Traditional authority:

Traditional authority is based on respect for the sanctity of age old rules and customs and involves loyalty to a personal master. Obedience is not given simply to an office but to a lord or a prince. All traditional authority involves a double sphere. On the one hand, the master has personal discretion in a wide area. They are entitled to make arbitrary and unilateral demands when it suits and expect obedience precisely because they are seen as a personal master. On the other hand, obedience is delivered within the bounds of a tradition that places limits on the arbitrary power of the ruler.
Throughout his sociology of domination, Weber’s primary focus was on the relationship between the ruler and their administrative staff. The administrative staff make up the apparatus that carries out and enforces the ruler’s wishes among the masses. Any relationship of domination has three elements – the ruler, the administrative staff, and the ruled. Weber, though, focused only on the first two. He paid particular attention to the material interests of the staff, the organisational principles through which they operate and their wider relationship to the ruler. He simply assumed that they conquer ‘the masses’.

Charismatic authority:

The term charisma in Christian theology means ‘the gift of grace’. Weber took over the term and added ‘charismatic leader’ to modern political vocabularies. No account of modern elections is now complete without some reference to the semi-magical, mysterious quality of charisma. However, the coinage has been debased. Charisma can apparently be won by a hairdo, an engaging smile, a vague sex appeal, etc. For Weber, charisma had an altogether more important meaning. Charismatic leaders were seen by their followers to have some extraordinary power or quality that commanded obedience. In more primitive societies, these powers were magical and the leaders were either superhuman or supernatural. In modern society, charismatic leaders arise in periods of great turbulence or crisis and answer a need. The leader is literally blessed with a sign of grace or, in secular terms, is a genius. As Bendix puts it, ‘it is associated with a collective excitement through which masses of people respond to some extraordinary experience and by virtue of which they surrender themselves to a heroic leader’.
The administrative staff of charismatic leaders are not chosen because of qualifications, social status, or family loyalty. They are recruited simply as followers. There is no set hierarchy, no prospect of promotion or career. There is not even a regular salary because pure charisma is foreign to economic considerations. The staff can be looked after by the seizure of booty or by gifts but any provision for a regular career structure is despised. In order to live up to their mission the leader and his followers ‘must be free of the ordinary worldly attachments and duties of occupational and family life’.

Legal Rational Authority:

The normal means of domination in modern societies is legal rational authority and bureaucracy. Weber’s main concern was with the culture of rationality that led to bureaucracy and the consequences this held for the world. Legal authority rests on a number of interdependent factors. There has to be a legal code which covers everyone in a particular territory. It has to be based on consistent, abstract rules – so that people know in advance the penalties for infringements. Crucially, the rulers themselves must also be subject to these rules. The arbitrary discretion that was granted to charismatic or traditional rulers is removed. People obey authority in their capacity as citizens or members of particular associations. Crucially, obedience is given to an office holder and not the person.
The administrative staff in this form of authority are more highly developed and in their purest form become a bureaucracy. The staff operate continuously according to rules that govern the conduct of their official business. They each have a definite specified area of competence that is laid down by their job descriptions. These areas of jurisdiction give them powers to fulfil their duties only in these specific areas. The jurisdictions do not overlap but are based on a rational division of labour. The whole system forms a hierarchical pyramid so that the higher offices supervise the lower offices. Rules are laid down for each office and the official is given specialised training so that he or she can meet them.
The axial principal of bureaucracy is ‘domination through knowledge’. It is popular today to disparage bureaucracy as ‘red tape’ and to caricature the way that officials fill in forms and memos in triplicate. This misses the point, however. The modern office is indeed based on the management of files but this is to ensure that those at the top have ‘a special knowledge of facts and have available to them a store of documentary material peculiar to themselves’. They know more about the ruled than any previous authorities in history. They also know exactly how their commands will be implemented since the room for personal discretion among their staff is virtually nil. Bureaucracy has invented the concept of the ‘official secret’ which means that information can be gathered and exact commands transmitted in a secretive way. Individual officials can be penalised for divulging these official secrets to the public. Normally, however, it does not come to this because ‘bureaucratic administration always tends to exclude the public, to hide its knowledge and action from criticism as well as it can’.
A bureaucracy, therefore, is a permanent machine and different rulers can use it. After the country is defeated, for example, the bureaucratic apparatus survives and is usually taken over by the new rulers. This suggests that ‘at the top of a bureaucratic organisation, there is necessarily an element which is at least not purely bureaucratic’. At the apex of the system, there is a will, a personality whose wishes have to be enforced. Weber’s central argument, though, is that bureaucracy is the most efficient way of conducting this rule.

[Author's declaration: This material is prepared from Max Weber A Critical Introduction by Kieran Allen London: Pluto Press (2004)]

An Earlier Version of Max Weber can be found here



[1] Max Weber, Economy and Society Vol. 1 (Berkeley: University of California Press, 1978) p. 4.
[2] ibid
[3] Max Weber, Roscher and Knies: The Logical Problems of Historical Economics (New York: Free Press 1975), p. 129.
[4] Ibid p 125
[5] Max Weber, The Methodology of the Social Sciences (New York: Free Press, 1949), p 60
[6] Ibid, p 55
[7] T. Burger, Max Weber’s Theory of Concept Formation: History, Laws and Ideal Types (Durham: Duke University Press, 1976).
[8] N. Bukharin, The Economic Theory of the Leisure Class (New York: Augustus M. Kelly, 1970).p 41
[9] Weber, The Methodology of the Social Sciences, p. 90.
[10] Max Weber, The Protestant Ethic and the Spirit of Capitalism (New York: Charles Scribner’s Sons, 1976), p. 17.
[11] F. Parkin, Max Weber (London: Routledge, 1988), p. 77

Monday, 24 June 2013

Anthropology and Public Policy


Contents:

Introduction:

Anthropologists are long working on different aspects of policy. They have often witnessed the impact of policies on human life and culture. However, only relatively recently policy itself become an object and subject of anthropological enquiry.

Till 1990s most anthropological engagement with policy making was of an ‘applied’ and largely uncritical nature. The studies mostly were commissioned studies and consultancy researches that worked around the question “How can anthropology best serve policy makers in help solving policy problems?” (Cochrane, 1980; Wilner, 1980).

Applied anthropology and Policy anthropology: existing fissure

The assumption that anthropological knowledge is extremely helpful and relevant to policy makers and that anthropological knowledge should harness to service the needs of government (or industry/corporation/market) is quite an old notion. Even in the 1940s and 1950s Evans Pritchard (1951) had sought to promote applied anthropology as a kind of ‘managerial science of mankind’. In 1981 Raymond Firth along with other key figures of British Anthropology were advancing narrow definition of anthropology in terms of its perceived value for government or as now defined in terms of its relevance to the end-users.
However, it is important to note that in terms of its methodology and focus, the anthropology of policy is very different from applied anthropology. The difference comes from the question of utility and relevance that raises a wider debate over what exactly anthropologists seek to achieve by applying their knowledge or engaging with policy makers. Is it dialogue, influence over policy professionals, or a way for academics to shape the formation or implementation of public policy? Or is the goal to unpack policy as a cultural category and to analyse its uses in order to shed light on structures and processes that shape society? It is important to note Gregory Feldman (2007) should anthropology “follow the policy gaze, or seek to critique it”? Or can it do both? In recent years, anthropologists have increasingly shifted towards the latter position, i.e., developing analytical approaches that seek to problematise policy both as a concept or idea force and as a set of related practices (Shore and Wright 1997, Wedel et al. 2005). This is one of the areas which distinguishes anthropology of policy from applied anthropology. It also differentiates anthropology of policy from policy studies. The point of departure is that whereas most of the scholars see policy as something given and do not question its meaning or ontological status as a category, in anthropology of policy scholars see policy as itself a curious and problematic social and cultural construct that needs to unpacked and contextualised if its meanings are to be understood.

Why do we need anthropology of policy?

Anthropology of policy originates from the recognition that policy has become an increasingly central and dominant organising principle of contemporary society, perhaps even of modernity itself (Shore and Wright 1997). This is extremely relevant because of the fact that there are extremely complex ways in which policy as a concept work. Virtually every aspect of human life is now shaped by policies, whether these emanate from governments, public institutions or non-governmental organisations (NGO) and private sector bodies. Policies on international relations, trade, national security and public health to policies on building regulations, employment relations, taxation, education, citizenship rights and sexual conducts we are circled by regulatory policies that shapes us in more ways than we are aware about. Shore and Wright (1997) in their Anthropology of Policy: Critical Perspectives on Governance and Power put forward three arguments.
First policies are inherently anthropological phenomena and should be conceptualised as discursive formations through which larger-scale processes of social and historical change can be mapped. As they also noted, policies often occupy the same role as myth in traditional societies, providing ‘charters for action’, guide to behaviour and legimating narratives for leaders and would-be rulers.
Second, while policies can be conceptualised as a type of narrative or performance they are also political technologies that serve to create new categories of subjectivity, for example, citizens, taxpayers, criminals, immigrants, or pensioners. Insofar as they become internalised, policies also work as techniques of the self. As with most forms of powers, policies tend to disguises its mechanism of operation either by seeking to naturalise its arbitrariness or by concealing the particularism and hidden interests that often underlie its formulation.
Third, argument entailed the implications of a focus on policy for anthropological methods. If policies are instruments of power, they also provide instruments for analysing the operation of power.   
Therefore, in order to understand people’s life world it is important to have an anthropological understanding of policies. With an anthropological study of policy we can gain critical insight into the complex ways in which concepts, institutions and actors (policy assemblages) interact in different sites either to consolidate regimes of power/knowledge or to create new rationalities of governance.  
Furthermore with anthropological notions it is possible to provide a necessary corrections to rational choice models and unreflexive positivistic accounts that still dominate the way that policy processes are typically conceptualised among academics and policy professionals. More importantly policy provides anthropology with a lens to analyse wider political processes and systems of government.

Conventional policy studies and anthropological challenges:

Most academic research on policy premised on the idea of policy as a neat, hierarchical and seamless flow that follows a patterned pathway, also known as policy cycle (Figure 1).


Figure 1 the conventional policy cycle

This policy cycle model with its instrumental-rational assumptions is the received wisdom and starting point for most textbooks and continues to shape the way policy is taught in professional programmes.
The anthropology of policy brings much-needed perspectives to the influential field of public policy and the growing area of enquiry that falls under the broad heading of "policy studies." The problem with much of the latter is that it continues to operate within a positivistic paradigm that treats policy as a reified entity and an unanalyzed given, seldom questioning the conceptual or cultural bases of its own analytical assumptions. In other words, public policy is often thought of as an "assembly line" or "con veyor belt." But policy making and implementation hardly follow a linear process with a predetermined outcome. On the contrary, policy processes often encounter unforeseen variables, which are frequently combined in unforeseen ways and with unforeseen consequences. For example, as Wedel (2001,8-9) found in her study of Western assistance to eastern Europe, aid policies may appear more like a series of "chemical reactions" that begin with the donor's policies but are transformed by the agendas, interests, and interactions of the donor and recipient representatives at each stage of implementation and interface. Despite recent ethnographies illustrating the limitations of the rational choice model in "policy studies," anthropologists have yet to put forth a compelling, coherent critique of that model.
However in recent period spurred by dissatisfaction with the conventional positivistic approach which represents policy analysis as a kind of scientific endeavour, a number of scholars within political science and international relations have sought to develop alternative perspectives drawing on ethnography and other qualitative methods (Rhodes et al. 2007). In some instances, this ‘cultural turn in policy studies has been influenced by anthropology, particularly the work of Geertz, most notably in the development of Interpretative Policy Analysis (Yanow 1996, 2000). Others drawing on continental European philosophy have turned to linguistics, discourse analysis and rhetoric as a way of rethinking policy analysis (Fischer and Forester 1993, Fiscger 2003; Goittweis 2006; Peters and Pierre 2006; Yanow and Schwartz-Shea 2006).  These developments open up an important space for for dialogue between anthropology and more qualitatively oriented policy studies (ayanow 2011).
Anthropological approaches emphasise the contingency, fluidity and messiness of policy processes. They highlight that policies are not confined to texts; nor are they simply constraining, instrumental-rational rational forces imposed  from above by some authoritative entity, Rather policy is both productive and performative, a complex, creative process that produces new kinds of relationships, new spaces for exchange, and new kinds of subjectivity. But the process by which policies develop is often ambiguous and contested. What is anthropologically interesting about a particular policy is its genealogy and the contestations and negotiations involved in its formation. Anthropological accounts are also sensitive to the way people experience, interpret and engage with these policy processes and to what policies mean in different contexts. In Clifford Geertz’s term (1973) we take the analysis of policy to be ‘not an experimental science in search of a law, but an interpretive one in search of meaning.’ However, analysis of any policy requires more than thick descriptions; we also need to examine the contexts in which policies are embedded, the work they perform and their preconditions and gelealogies and their effects. Understanding why certain policies succeed or fail also entails knowing something about the way they are experienced and interpreted by people whose lives they effect.

The legacy of anthropology in policy:

Anthropologists of American, British, and other traditions have long recognized the intertwining of anthropological topics with policy. In the United States, for example, early debates among Franz Boas and other prominent anthropologists of the late nineteenth and early twentieth centuries over evolutionary theory went to the core of public policies dealing with race and gender (Stocking 1968; Smedley 1993). At issue was whether "race" and "gender" are biological or social and whether they are fixed or changing. Some anthropologists, such as Louis Henry Morgan and Edward Tylor, assumed in their comparative studies of kinship and other institutions that human cultures (often corresponding with nineteenth century Western notions of "biological races") developed through a series of evolutionary stages, from "savagery" to "civilization." Other scholars, such as Boas, challenged these assumptions. For example, Boas s studies of immigrants, conducted at the behest of the United States Immigration Commission, demonstrated that "race" is a changing, social construct and that physical differences between "races" are variable and depend on context.
Today, many anthropologists study contemporary global processes and how global, transnational entities interact with states, nations, and local groups. There are those who study militarism and national security policies in the United States (Lutz 2002, 2005), Europe (Feldman 2003), Latin America (Gill 2004), and the Middle East (Bornstein 2001). Others study donor politics, foreign and domestic aid (Wedel 2001), research funding (Brenneis 1999), and tensions between anthropologists and human rights lawyers and journalists (Merry 2003).
Nader (1974,1980) appealed to the discipline to "study up"?that is, to analyze powerful institutions and elites of complex societies?as an antidote to the traditional focus on poor, colonized, and marginalized peoples. "A reinvented anthropology," Nader wrote, "should study powerful institutions and bureaucratic organizations in the United States, for such institutions and their network systems affect our lives and also affect the lives of people that anthropologists have traditionally studied all around the world" (1974,292-93). Wolf (1974,261) similarly urged anthropologists to "spell out the processes of power which created the present-day cultural systems and the linkages between them." Other notable works heeding these calls include Marcus's (1992) study of dynastic-business families in late-twentieth-century America and Gusterson's (1996,1999) study of nuclear engineers in a weapons lab oratory at the end of the cold war. There are also those, like Marietta Baba (2000, 38-39), who argue anthropologists must begin studying professional institutions and organizations, such as medical, legal, industrial, and educational ones, which are "rapidly becoming the most powerful forces shaping the human condition now and the future.
While the "powerful institutions" about which Nader wrote are even more so today, anthropologists studying globalization and connected subjects have tended to focus on how global processes affect local communities. Appadurai's (1996) important treatment of globalization from the angle of actors who are profoundly affected by global processes is a case in point. Relatively little anthropological work has been done to explore how social organization and networks organize transnational players and policy processes, global elites, decision makers, and those who influence decisions. Two recent exceptions, however, are Catherine Lutz's (2005) and Lesley Gill's (2004) research on militarism. Lutz is currently conducting ethnographic research into the role of the U.S. military in the Asia-Pacific region and resulting responses to U.S. military bases by local and transnationally linked social movements. Her study includes interviews about military bases with local activists, base neighbors, and U.S. military and diplomatic personnel. Similarly, Gill's study of the School of Americas (SOA) included interviews of U.S. Army officers and the Latin Americanists who trained at the school, anti-SOA activists, and Andean coca-growing peasants who were often targeted by security forces during the "War on Drugs."

Anthropological issues:

The starting point of an anthropological approach to public policy is to examine the assumptions and framing of policy debates. Policies arise out of particular contexts and in many ways "encapsulate the entire history and culture of the society that generated them," as Shore and Wright (1997, 7) expressed it. While policies may be clothed in neutral language? their ostensible purpose merely to promote efficiency or effectiveness? they are fundamentally political. In fact, "a key feature of modern power, "Shore and Wright contended, is the "masking of the political under the cloak of neutrality" (pp. 8-9). The anthropology of policy takes public policy itself as an object of analysis, rather than as the unquestioned premise of a research agenda. Anthropology is well suited to explore the cultural and philosophical underpinnings of policy? its enabling discourses, mobilizing metaphors, and underlying ideologies and uses. Anthropologists can explain how taken-for-granted assumptions channel policy debates in certain directions, inform the dominant ways policy problems are identified, enable particular classifications of target groups, and legitimize certain policy solutions while marginalizing others.
Anthropology of policy is not simply concerned with representing local, indigenous, or marginalized "cultures" to policy makers, government agencies, or concerned NGOs. Its focus instead is simultaneously wider and narrower: wider insofar as its aim is to explore how the state (or to be more exact, those policy makers and professionals who are authorized to act in the state's name) relates to local populations; and narrower to the extent that its ethnographic focus tends to privilege the goal of understanding how state policies and government processes are experienced and interpreted by people at the local level, keeping in mind that anthropologists are recasting the "local" or the "community" to capture changing realities. Comaroff and Comaroff (1999, 294), for example, stressed that" 'Local ity' is not everywhere, nor for every purpose, the same thing; sometimes it is a family, sometimes a town, a nation, sometimes a flow or a field, sometimes a continent or even the world; often it lies at the point of articulation among two or more of these things." An anthropology of policy, however, is equally interested in understanding the cultures and worldviews of those policy professionals and decision makers who seek to implement and maintain their particular vision of the world through their policies and decisions. From an anthropological perspective, what happens in the executive boardroom, the cabinet meeting, or the shareholders' annual general meeting is no less important than that which occurs at the level of the factory floor or locality. Thus, an anthropological approach to the study of policy incorporates the full realm of processes and relations involved in the production of policy: from the policy makers and their strategic initiatives to the locals who invariably shape and mediate policy while translating and implementing it into action.

Methodological issues of anthropology of policy:

Shore and Wright (1997, 13) suggested, anthropologists are uniquely positioned "to understand the workings of multiple, intersect ing and conflicting power structures that are local but tied to non-local systems." An anthropological approach attempts to uncover the constellations of actors, activities, and influences that shape policy decisions and their implementation, effects, and how they play out. Anthropology therefore gives particular emphasis to the idea that the study of policy decisions and their implementation must be situated in an empirical or ethnographic context: They cannot be adequately mapped using variables whose values and correlations are prespecified by an abstract model.

Reconstructing the field:

Studying policy requires rethinking an anthropological pillar?the discipline's traditional concept of "the field"?as a single and (relatively) geographically bounded place (Gupta and Ferguson 1997,37). Today, "the field" often consists of loosely connected actors with varying degrees of institutional leverage located in multiple "sites" that are not always even geographically fixed. With the post-cold war world s increased delegation of authority by states and international organizations to private organizations, companies, and actors, the architects and agents of a policy may be elusive, varied, and diffused. Policies are no longer formulated primarily by governments, but additionally by a plethora of supranational entities, businesses, NGOs, private actors, or some combination of these. Anthropology offers a social organizational approach that illuminates the structures and processes that ground, order, and give direction to policies. An ethnographer explores how individuals, organizations, and institutions are interconnected and asks how policy discourses help to sustain those connections even if the actors involved are never in face-to-face (or even direct) contact. "Studying through" (Reinhold 1994, 477-79; Shore and Wright 1997), the process of following the source of a policy? its discourses, prescriptions, and programs? through to those affected by the policies does just that. For example, Shore and Wright (1999,2000) have used this approach to examine the cultural consequences and implications of British government reforms of higher education since the 1980s. Similarly, Wedel (2001) has studied "through" the interactions of donors and recipients to explore the social organization linking the overlapping arenas of activity navigated by actors.

Social network analysis:

Social network analysis, which unites both theory and method, can help illuminate sites of articulation and interaction and thereby provide a snapshot of the workings of transnational policy processes. Network analysis, which focuses on social relations rather than the characteristics of actors, is powerful not only as a method but also as "an orienting idea," as Scott (1991, 37) proposed. By linking actors, network analysis can show how the local or regional level is connected with the national level or the local, regional, or national level with the international. Employing network analysis, an ethnographer can examine relationships between individuals, groups, and organizations and the changing, overlapping, and multiple roles that actors within them may play. Social analysts have linked network structures to collective processes. Dezalay and Garth (2002, 10), for example, showed that "tracing the careers of particular individuals makes it obvious ... that the world of foundations and that of human rights NGOs have always been very closely related; how through concrete networks and careers the World Bank inter acts with local situations; and how corporate law firms or advocacy organizations modeled on those in the United States are brought to new terrains." Such analysis can serve as a persuasive basis for explaining policy decisions. Wedels (2004) social network study of a core group of "neoconservatives," first published in The Washington Post, highlighted a dozen or so long-connected players, a "flex group," whose skill at maneuvering between government and private roles, at relaxing both the government's rules of accountability and businesses' codes of competition, and at conflating state and private interests, proved essential to the group's influence on American public policy. The group's "flex organizing" enabled it to play a pivotal role in shaping U.S. policy toward the Middle East and taking the United States to war in Iraq. Network analysis?and the social organizational framework that it implies?is a useful way to conceptualize the mixes of "state" and "private," of "macro" and "micro," of "local" or "national" and "global," of "top down" versus "bottom up," and of "centralized" versus "decentralized" that today configure many transnational policy processes. Anthropologists are thus well positioned to track the interactions between public policy and private interests and the mixing of state, nongovernmental, and business networks that is becoming increasingly prevalent around the globe.

Informants and case studies:

Anthropology takes as a given that much of its most useful information can only be obtained through trusted "informants." The "extended case method" (Van Velsen 1967, 145), in which the ethnographer follows interconnected actors around a particular series of events, lends itself to the study of ongoing policy processes. The actors' responses to the same questions (regarding, for example, their own and others' activities, perspectives, and networks) are then compared and assessed over time. Although actors involved in a particular "case" sometimes are located in different sites, they always are connected by the policy process and/or by actual social networks. However, in as many sites as possible, anthropologists strive to conduct participant observation or at least some long-term association with actors in their own territories (Agar 1996, 58). When this is impossible or impractical, however, they employ alternative methods. In "studying up," conducting interviews is often the only means of gathering firsthand information and gaining entre to difficult-to access "fields," such as individuals in powerful institutions. For example, it was only because the U.S. Army's School of Americas suffered from a moment of public vulnerability after pressures from human rights groups that Gill (2004) was providedan opportunity to interview graduates of the school. When interviews are the primary source of information from a particular site, cross-checking critical information and corroborating key points with multiple sources is crucial (Wedel 2003). Anthropologists employ additional methods as well. "Talking to and living with the members of a community," Gupta and Ferguson (1997, 37) reported, "are increasingly taking their place alongside reading newspapers, analyzing government documents, observing the activities of governing elites, and tracking the internal logic of transnational development agencies and corporations." 

Declaration:
This article is prepared by taking materials from

Shore, Cris (2012) Anthropology and Public Policy. In Sage Handbook of Social Anthropology. Thousand Oaks: Sage

Janine R. Wedel, Cris Shore, Gregory Feldman, Stacy Lathrop (2005). Toward an Anthropology of Public Policy. Annals of the American Academy of Political and Social Science, vol. 600, pp. 30 - 51

Anne Francis Okongwu and Joan P. Mencher (2000). THE ANTHROPOLOGY OF PUBLIC POLICY:
Shifting Terrains. Annu. Rev. Anthropol. 29, pp. 107 - 124


A brief discussion of Anthropology and Public Policy (bilingual, meant for my college students)