ABSTRACT
All states today construct large scale administrative systems: to collect taxes, provide physical protection, promote communication, construct and maintain a modem physical infrastructure, and to provide goods and services. This system typically becomes highly differentiated and specialized, with different agencies or units assigned different kinds of tasks. These are, in effect, organizational tools that the human species has invented to do its work. They are, however, imperfect tools, and they are tools with different specific capacities.
