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Social Control

The study of social control has been an integral part of sociology since its inception. Originally, the concept was defined as any structure, process, relationship, or act that contributes to the social order. Indeed, to some extent, the study of social order and social control were indistinguishable. This conceptual problem was particularly evident in the early Chicago perspective in which the concepts social disorganization, social control, and deviance were not distinguished. Deviance was thought to be the consequence of lack of social control and was often used to measure the presence of social control. Within the structural functionalism of the late 1940s and 1960s, the study of social control was allocated to the sidelines. It dealt with residual problems of deviance in a social system assumed to be generally integrated and well functioning. By the early 1960s society was, again, assumed to be considerably less orderly and integrated and, again, the concept of social control rose to the forefront. Studies examined both the causes and the consequences of social control. Thus, by the mid-1960s the intellectual ground had been laid for renewed scholarly interest in the study of social control. This chapter reviews the study of social control from that time through the 1970s and 1980s.

A consensus is now emerging that distinguishes social control from the social order it is meant to explain and that distinguishes among social-control processes. One basic distinction is among processes of internal control and external control. The former refers to a process whereby people adhere to social norms because they believe in them, feeling good, self-righteous, and proud when they do and feeling bad, self-critical, and guilty when they do not. This process has recently been termed socialization. External control refers to a social process whereby people conform to norms or rules because they are rewarded with status, prestige, money, and freedom when they do and are punished with the loss of them when they do not. This process has sometimes been termed coercive, external, or just social control.

Reflecting contemporary usage, this article emphasizes social control as external or coercive control. Research is organized, first, and foremost by whether social control is studied as an independent or dependent variable and, second, by whether it is studied at the micro level (the study of individuals) or the macro level (the study of cities, states, regions, and countries).

Social Control as an Independent Variable

Social-control theories assume that norm violations can frequently be so pleasurable and profitable that many, if not most, people are motivated to violate them. Thus, it is not necessary to study deviant motives; rather it is necessary to study what constrains or controls most people from acting on their deviance motives most of the time. Studies of social control as an independent variable focus on the relative effectiveness of social relationships and arrangements in constraining behavior to social norms and laws. Three general areas have developed. One examines the effectiveness of social ties (bonds, relationships, attachments) to conventional institutions in constraining people from acting on deviant motives. The second examines the effectiveness of macro structures and processes in providing the foundation for these ties. The third examines the effectiveness of the criminal justice system in constraining people from violating the law.

Drawing on a long tradition of work, Hirschi (1969) published an influential formulation of micro social-control theory. He states that the relationship between people and conventional society consists of four bonds: belief, attachment, commitment, and involvement. Belief refers to the extent to which conventional norms are internalized (another term for internal control). Commitment refers to the extent to which people’s social rewards are tied to conformity; the more people have to lose upon being socially identified as norm violators, the lower their likelihood of violating the social norms. Attachment refers to people’s sensitivity to the opinions of others; the more people are concerned with the respect and status afforded them by others, the more they are subject to social control. Involvement refers to the amount of time people spend on conventional activities; the more people are involved in conventional activities, the less time they have left for deviant activities.

This theory has inspired considerable research on juvenile delinquency. Studies from the 1960s to the 1980s (e.g., Kornhauser 1978; and Matsueda 1982) show that, as attachment to parents and school increase, delinquency decreases. These studies, however, do not show the casual order underlying the relationship between social attachment and delinquency. The theory assumes that low attachment leads to high delinquency; yet high delinquency could very well lead to low attachment. Trying to unravel these causal processes, Liska and Reed (1985) show that low parent attachment leads to high delinquency and that high delinquency leads to low school attachment.

From the 1920s onward, sociologists at the University of Chicago have been interested in the ecological distribution of deviance. Their studies of delinquency, mental illness, and suicide, for example, show that deviance tends to center in cities, particularly in the area where residential and business activity intermesh. They argued that the ecological conditions that disrupt traditional social-control processes are accentuated in these areas, and, when social-control processes weaken, deviance occurs. Industrialization creates a need for the concentration of labor, thereby increasing population size and density through migration and immigration. Both industrialization and urbanization lead to value and norm conflicts, social mobility, cultural change, and weak primary ties. These social conditions, in turn, disrupt internal and external processes of social control. The internal process is weakened because people are unlikely to accept normative standards as right and proper when they experience value and norm conflicts and social change. The external process is weakened because people are unlikely to constrain their behavior to conventional norms when social support for unconventional behavior is readily visible and primary ties to family and conventional friends are weak. In small towns, for example, people may conform even though they may not accept the moral standard because their deviance is easily visible to family and conventional friends.

Perhaps the major problem with this line of research was the failure to measure the disruptive processes directly and the tendency to infer them from either remote causes such as industrialization and urbanization or more immediate causes such as the social, racial, and class composition of areas. Unable to solve this problem, the theory withered from the 1950s through the 1970s.

During the 1980s a group of young sociologists reexamined the theory to understand the renewed disorder of cities. Directly addressing the problem of measuring the processes that disrupt social control, Sampson and Groves (1989) show how community structural characteristics (such as racial, class, and ethnic composition; residential mobility; and divorce rate) affect crime by weakening ties to conventional institutions. Contrary to the early Chicagoans, Bursik (1986) shows that the ecological distribution of crime is no longer stable over time, that crime rates actually influence community characteristics, and that changes in these structures influence social deviance.

A third body of research examines the effectiveness of the criminal justice system in controlling crime. The underlying theory (deterrence) ignores inner controls and emphasizes punishment as the means of social control, particularly state-administered punishment. It assumes that people are rational and that crime is the result of calculating the costs and benefits of law violations; therefore, it assumes that, the higher the costs of crime, the lower the level of crime. As state-administered punishment is a significant cost of crime, it follows that the higher the level of such punishment, the lower the level of crime.

Two types of deterrence processes have been studied: general and specific. General refers to a process by which the punishment of some law violators provides information about the costs of crime to those unpunished (the general public), thereby reducing their law violations. Specific refers to a process by which punishment reduces the future law violations of those punished. Research focuses on three dimensions of punishment: severity, certainty, and celerity. Severity refers to the harshness of punishment, such as the length of incarceration; certainty refers to the probability of punishment, such as the likelihood of being arrested; and celerity refers to the swiftness of punishment. In sum, deterrence theory predicts that crime is lowest when punishment is severe, certain, and swift.

The political climate of the 1980s stimulated considerable interest in this theory, leading to hundreds of studies (Cook 1980). Yet, after all this research, it is still difficult to find any firm evidence for either specific or general deterrence. Regarding general deterrence, which has generated the bulk of the research, there is little consistent evidence of a severity effect. There is somewhat more evidence for a certainty effect, although its strength and duration remain unclear. For example, some studies suggest that, as certainty of punishment increases, crime rates decrease but that the decrease does not occur until certainty reaches about 30 percent, which is infrequently reached (Tittle and Rowe 1974). Some studies suggest that the certainty effect only occurs for crimes about which people have the opportunity to think and calculate, like property crimes, but not for violent crimes. And some studies of drunken driving suggest that the certainty effect occurs only if high certainty is well publicized, and even this effect is short lived (Ross 1984).

In sum, assuming that people are generally motivated to deviate, researchers have tried to understand how people are constrained from acting on their motives. Contemporary studies of social control focus on three areas: the interpersonal relationships that constrain people from acting on their motives, the macro structures and processes that provide the social foundation for these relationships, and the criminal justice system as a source of legal constraints.

Social Control as a Dependent Variable

During the 1960s sociologists began to question the assumption of normative consensus and stability and, thus, by implication the viability of the theories built on them. Without clear and stable references points from which to judge behavior, deviance is difficult to define. Many sociologists came to define it in terms of visible social efforts to control it. Deviance is thus defined as that behavior that society controls, and deviants are defined as those people whom society controls. Research shifts from studying social control as a cause of deviance to studying the causes of social control.

Micro-level studies examine the social processes by which acts and people are defined, labeled, and treated as deviants by family, friends, the public, and formal agencies of social control such as the criminal justice and mental health systems. Drawing on labeling and conflict theories, many sociologists argue that social control is directed against those who are least able to resist (the disadvantaged and the unfortunate) and that social-control agencies are used by the powerful to control the behavior of others.

During the 1960s, research reported that resources and power (as indicated by class, ethnicity, and race) significantly affect defining, treating, and controlling people as criminals (Black and Reiss 1970), such as arresting, prosecuting, and sentencing them. Unfortunately, these studies do not adjust for the effects of legal considerations, such as seriousness and frequency of offense, which are related to social resources. Without examining the effects of both legal and social resource variables in the same analysis it is difficult to isolate the effects of one from those of the other.

During the 1970s studies addressed this issue. The results are inconsistent, some studies showing race and class effects and some showing no such effects (Cohen and Kleugel 1978).

During the 1980s research tried to resolve these inconsistencies. One group of researchers tried to show that the effect of resources depends on the stage of the criminal justice process (e.g., arrest, prosecution) and the characteristics of the local community. Some stages may be more sensitive to social status and social power than are others, and some communities may be more sensitive to status and power than are others. Dannefer and Schutt (1982) report more racial discrimination at the arrest stage than at other stages, arguing that police have more discretion than do other decision makers, and they report more racial discrimination when the percentage of nonwhites is high, arguing that a high percentage of nonwhites is threatening to authorities.

Macro studies of social control examine the level and the form of social control across such units as cities, states, regions, and countries. They study why one form of control (physical pain) occurs at one time and place and another form (incarceration) occurs at another time and place.

Since the 1970s, conflict theory has provided the major stimulus for this research. It assumes that social control is more likely when the ruling class or the authorities perceive their interests to be threatened. Threat is thought to be associated with the presence of disruptive acts (crime, civil disorders, social movements) and problematic people (the unemployed, minorities, the urban lower class). The theory assumes that, as disruptive acts and problematic people increase, authorities expand the capacity for social-control bureaucracies and pressure existing bureaucracies to expand the level of control.

Research has focused on the expansion and contraction of three such bureaucracies: the criminal justice system, the mental health system, and the welfare system. It generally suggests that the expansion of the criminal justice system is not necessarily a response to crime, that the expansion of the mental health system is not necessarily a response to mental health, and that the expansion of the welfare system is not necessarily a response to economic need. Rather the expansion and contraction of all three are responses by authorities to the acts and people deemed threatening to their interests.

Studies of the criminal justice system have examined the expansion of the police force in the late 1960s and 1970s, as an indicator of the potential for social control, and the expansion of the prison population in the 1980s, as an indicator of the actual level of control. Liska, Lawrence, and Benson (1981) report that, while the size of the police force is sensitive to the crime rate, it may be even more sensitive to the level of civil disorders, the relative size and segregation of the minority population, and the level of economic inequality. Studies of the prison population and admission rates show that, while these rates, too, are sensitive to the crime rate, they are equally sensitive to the size of problematic or threatening populations such as the unemployed. Studies in England, Canada, and the United States show a substantial relationship between the prison admission rate and the unemployment rate, adjusting for the crime rate (Berk et al. 1981; Inverarity and McCarthy 1988).

Some historical studies (Foucault 1965) assert that mental asylums emerged in the seventeenth century as another social mechanism for controlling the poor urban masses. During the twentieth century the population of mental asylums in the United States continually increased, reaching about 550,000 by the mid-1950s, while the prison population, in comparison, was less than 200,000 at the time. The mental health system seemed to be taking over the role of the criminal justice system in controlling problematic populations. However, since that time the trends for both bureaucracies have reversed. The mental asylum population has decreased from 500,000 to 150,000 and the prison population has increased from 200,000 to 300,000. These trend reversals have stimulated research to examine the extent to which the two bureaucracies are functional alternatives for controlling threatening or problematic populations and acts. Some research (Steadman 1979) studies how various threatening populations that in the past might have been admitted directly into asylums are now first processed in the criminal justice system. Then some of them remain in local jails and others, through various mechanisms such as pleas of Incompetent to Stand Trial and Not Guilty by Reason of Insanity are channeled into asylums.

Welfare is frequently conceptualized as a form of social control. Piven and Cloward (1971) have stimulated considerable controversy by arguing that the welfare expansion in the United States during the mid- and late 1960s was a response to the urban riots of that period, an attempt to control an economically deprived and threatening population. Various studies provide some support for this thesis. Schram and Turbett (1983) report that the riots affected welfare in two stages. Riots during the mid-1960s prodded the federal government to liberalize welfare policies generally; these policies were then more likely to be implemented in the late 1960s by those states experiencing the most rioting.

In sum, the 1970s and 1980s evidenced a research effort to explain the expansion and contraction of bureaucracies of social control, not so much as responses to crime, mental illness, or economic need, but as responses by authorities to control acts and populations deemed threatening to their interests.

The study of social control has come a long way since its inception at the birth of sociology, at which time it was vaguely defined and not distinguishable from the concept social order. Contemporary usage distinguishes the sources of social order from the order itself. The concept socialization has come to refer to internal sources of control, and the concept social control has come to refer to external sources of control, the processes whereby people conform to social norms because they are rewarded when they do and punished when they do not. Studying social control as an independent variable, a body of research examines the relative effects of interpersonal relations, social institutions, and formal agencies in constraining social behavior. Studying social control as a dependent variable, another body of research examines how social resources influence social control and how the aggregate amount and form of control varies over time and place.

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