Yale University Faculty

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April 10, 2026

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"To grasp the prodigious variety of customary ways of measuring land, we would have to imagine literally scores of "maps" constructed along very different lines than mere surface area. I have in mind the sorts of maps devised to capture our attention with a kind of fun-house effect in which, say, the size of a country is made proportional to its population rather than its geographical size, with China and India looming menacingly over Russia, Brazil, and the United States, while Libya, Australia, and Greenland virtually disappear. These types of customary maps (for there would be a great many) would construct the landscape according to units of work and yield, type of soil, accessibility, and ability to provide subsistence, none of which would necessarily accord with surface area. The measurements are decidedly local, interested, contextual, and historically specific. What meets the subsistence needs of one family may not meet the subsistence needs of another. Factors such as local crop regimens, labor supply, agricultural technology, and weather ensure that the standards of evaluation vary from place to place and over time. Directly apprehended by the state, so many maps would represent a hopelessly bewildering welter of local standards. They definitely would not lend themselves to aggregation into a single statistical series that would allow state officials to make meaningful comparisons."

- James C. Scott

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"Only when these first two elements are joined to a third does the combination become potentially lethal. The third element is an authoritarian state that is willing and able to use the full weight of its coercive power to bring these high-modernist designs into being. The most fertile soil for this element has typically been times of war, revolution, depression, and struggle for national liberation. In such situations, emergency conditions foster the seizure of emergency powers and frequently delegitimize the previous regime. They also tend to give rise to elites who repudiate the past and who have revolutionary designs for their people. A fourth element is closely linked to the third: a prostrate civil society that lacks the capacity to resist these plans. War, revolution, and economic collapse often radically weaken civil society as well as make the populace more receptive to a new dispensation. Late colonial rule, with its social engineering aspirations and ability to run roughshod over popular opposition, occasionally met this last condition. In sum, the legibility of a society provides the capacity for large scale social engineering, high-modernist ideology provides the desire, the authoritarian state provides the determination to act on that desire, and an incapacitated civil society provides the leveled social terrain on which to build."

- James C. Scott

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"Still, Scott's advice is far from useless. It can be applied to contexts far afield from those that concern him here. His case studies help explain, say, why national regulation tends to work better when it consists of altered incentives rather than flat commands. Some of the most successful initiatives in American regulatory law have consisted of efforts to increase the price of high-polluting activities; and some of the least successful have been rigid mandates that ignore the collateral effects of regulatory controls. Scott's enthusiasm for metis also suggests that certain governmental institutions will do best if they act incrementally, creating large-scale change not at once, but in a series of lesser steps. We might think here not only of common law, but also of constitutional law. Many judicial problems derive from a belief that judges can intervene successfully in large-scale systems (consider the struggles with school desegregation in the 1960s and 1970s), and many judicial successes have come from proceeding incrementally (consider the far more incremental and cautious attack on sex discrimination in the same period). And Scott also offers larger implications. A society that is legible to the state is susceptible to tyranny, if it lacks the means to resist that state; and an essential part of the task of a free social order is to ensure space for institutions of resistance. Moreover, a state that attempts to improve the human condition should engage not in plans but in experiments, secure in the knowledge that people will adapt to those experiments in unanticipated ways. Scott offers no plans or rules here, and a closer analysis of the circumstances that distinguish success from failure would have produced greater illumination. But he has written a remarkably interesting book on social engineering, and he cannot be much faulted for failing to offer a sure-fire plan for the well-motivated, metis-friendly social engineer."

- James C. Scott

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