and complexity found within modernizing societies. Whereas in a traditional
absolute monarchical polity there would be found, bound up in a single
structure, that of the royal court, a multiplicity of functions such as rule mak-
ing and rule adjudication, in a modern society with its pluralist democracy
there would be found specialized structures performing single functions.
Traditional social structures were described as typically ‘multifunctional’.
As societies develop structures become less multifunctional.
When dealing with change in political cultures, the functionalists took the
concept of secularization from modernization theory. Secularization in
political life was associated with rationality (Pye, 1960, p. 104). The rationali-
zation of government was seen as a distinguishing mark of modernity. As soci-
eties develop they acquire systems of government that are problem-oriented
and designed to perceive, analyse and meet the needs of society as articulated
through political demands. In addition, members of a modern society would
experience cultural change in the direction of individuality. In terms of mod-
ernization theory’s pattern variables, people would begin to think of them-
selves and others in terms of universalism rather than specificity. The assertion
of the individual’s value in universalistic terms would in turn support political
equality and mass participation on an individual basis. Individuals would not
see political roles as being ascribed by tradition and custom to predetermined
groups. Political power could be enjoyed by all on an equal basis.
In functionalist development theory political change affects both struc-
ture and culture. A combination of changes in these two spheres produces
integration into the modern nation-state. The secularization of government
would be directed in part towards nation-building. This process of develop-
ment involves the political system in overcoming sub-national loyalties
such as tribe or religion, seen as parochial and pre-modern. It involves cre-
ating a consensus to support the new order, mobilizing the community to
regard the nation-state, not some primordial grouping, as the legitimate
political unit. Communities would be mobilized to articulate demands and
supports; communications between leaders and led would be improved.
This is all part of not just becoming modern but of producing an integrated
society, a major achievement of a developed political system.
A further aspect of change in developing societies emphasized by func-
tionalists are the ‘capabilities’ of political systems to formulate policies,
enforce decisions throughout the territory, and develop a problem-solving
capacity, especially through bureaucracy, so that public policies can be exe-
cuted effectively and efficiently. Almond classified capabilities into five
groups: extractive, regulative, distributive, symbolic and responsive (Almond,
1965, pp. 198–201), having earlier defined political change in terms of the
Modernization and Political Development 57