Perspective: Why SJ/SF gov'ts are so bad at fighting homelessness—it's hard to label and count
Image by Tima Miroshnichenko
It's not just a matter of missing some data. Or chasing money. James C. Scott writes in Seeing Like a State that rulers excel at naming, organizing, and coercing problems into a mold that gov't programs can address. But—like nature itself—many local issues, including homelessness, resist bureaucratic categorization; and require more nuanced, on-the-ground solutions than "veni, vidi, vici."
A word about the road not taken. Originally, I set out to understand why the state has always seemed to be the enemy of "people who move around,” to put it crudely. In the context of Southeast Asia, this promised to be a fruitful way of addressing the perennial tensions between mobile, slash-and-burn hill peoples on one hand and wet-rice, valley kingdoms on the other. The question, however, transcended regional geography. Nomads and pastoralists (such as Berbers and Bedouins), hunter-gatherers, Gypsies, vagrants, homeless people, itinerants, runaway slaves, and serfs have always been a thorn in the side of states. Efforts to permanently settle these mobile peoples (sedentarization) seemed to be a perennial state project—perennial, in part, because it so seldom succeeded.
The more I examined these efforts at sedentarization, the more I came to see them as a state's attempt to make a society legible, to arrange the population in ways that simplified the classic state functions of taxation, conscription, and prevention of rebellion. Having begun to think in these terms, I began to see legibility as a central problem in statecraft. The premodern state was, in many crucial respects, partially blind; it knew precious little about its subjects, their wealth, their landholdings and yields, their location, their very identity. It lacked anything like a detailed "map” of its terrain and its people. It lacked, for the most part, a measure, a metric, that would allow it to “translate" what it knew into a common standard necessary for a synoptic view. As a result, its interventions were often crude and self-defeating.
It is at this point that the detour began. How did the state gradually get a handle on its subjects and their environment? Suddenly, processes as disparate as the creation of permanent last names, the standardization of weights and measures, the establishment of cadastral surveys and population registers, the invention of freehold tenure, the standardization of language and legal discourse, the design of cities, and the organization of transportation seemed comprehensible as attempts at legibility and simplification. In each case, officials took exceptionally complex, illegible, and local social practices, such as land tenure customs or naming customs, and created a standard grid whereby it could be centrally recorded and monitored.
The organization of the natural world was no exception. Agriculture is, after all, a radical reorganization and simplification of flora to suit man's goals. Whatever their other purposes, the designs of scientific forestry and agriculture and the layouts of plantations, collective farms, ujam aa villages, and strategic hamlets all seemed calculated to make the terrain, its products, and its workforce more legible — and hence manipulable— from above and from the center.
A homely analogy from beekeeping may be helpful here. In premodern times the gathering of honey was a difficult affair. Even if bees were housed in straw hives, harvesting the honey usually meant driving off the bees and often destroying the colony. The arrangement of brood chambers and honey cells followed complex patterns that varied from hive to hive—patterns that did not allow for neat extractions. The modern beehive, in contrast, is designed to solve the beekeeper’s problem. With a device called a “queen excluder,” it separates the brood chambers below from the honey supplies above, preventing the queen from laying eggs above a certain level. Furthermore, the wax cells are arranged neatly in vertical frames, nine or ten to a box, which enable the easy extraction of honey, wax, and propolis. Extraction is made possible by observing “bee space”— the precise distance between the frames that the bees will leave open as passages rather than bridging the frames by building intervening honeycomb. From the beekeeper’s point of view, the modern hive is an orderly, “legible” hive allowing the beekeeper to inspect the condition of the colony and the queen, judge its honey production (by weight), enlarge or contract the size of the hive by standard units, move it to a new location, and, above all, extract just enough honey (in temperate climates) to ensure that the colony will overwinter successfully.
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