Finally there is the concept of function, central to the needs of the com-
parative analyst as perceived by the developmentalists. The universal attrib-
utes of political systems cannot be conceptualized in terms of structures
because of the infinite variability of them. It can only be done in terms of
functions. The functionalists claimed that every society, however organized
politically, and whatever the political structures through which it conducts
its processes of government, will perform eight political functions.
First, there is interest articulation, or the ways in which demands are for-
mulated and brought into the political arena so that the conversion process
can transform demands into outputs. What for the West might be the most
typical structure performing that function (pressure groups and similar
forms of association) will not necessarily be found in pre-industrial soci-
eties. The transitional nature of a society is reflected in the fact that ‘the
articulation of functionally specific interests is, with few exceptions, tran-
scended by and considered to be the function of one’s race, tribe, religion,
or other group whose survival or primacy has first priority’ (Coleman,
1960b, p. 326).
Secondly, demands and expressions of political interest have to be com-
bined. This is the function of ‘interest aggregation’. Coalitions have to be
formed that are powerful enough to overcome other combinations of inter-
ests. In an absolute monarchy or an African chiefdom interests of different
sections of the community would be ‘aggregated’ by rulers enjoying the right
to interpret the wishes of their people. In a modern society the classic struc-
ture for interest aggregation was, for the functionalists, the political party.
Thirdly, the function of rule makinghas to be performed in all societies
by some type of political structure. Political systems have to make authori-
tative and legitimate rules that can be supported by legitimate sanctions.
Modern societies will have developed specialized structures for this known
as legislatures. In traditional societies such structures will be absent but the
function will be performed somewhere in the political system.
Fourthly, rules once made have to be enforced and applied. The modern
structure for the function of rule applicationis bureaucracy. Conflicts aris-
ing from the application of rules to specific cases and circumstances require
structures for adjudication. Rule adjudicationwas therefore identified as a
universal political function. In modern societies the judiciary would be the
specialized structure performing this function.
All political systems equally require means for the communication of
demands and rules between the authorities and the people. In modern soci-
ety the mass media constitute the social structures responsible for the func-
tion of political communication. In traditional society structures would
Modernization and Political Development 55