TRANSFORMATION OF FOREIGN POLICIES 377 processes of modernization and the development of high levels of in- terdependence.These processes have put an end to the normative dis- tinctions asserting the primacy of the one or the other.They also overshadow the empirical distinction according to which foreign poli- cies vary in type with the political institutions in which they are formulated. THE DYNAMICS OF FOREIGN POLICIES IN MODERNIZED SOCIETIES Foreign policies,like other sorts of policics,can be analyzed in terms of their substance,or content,the processes by which they are formu- lated,and their outcomes.Each of these three dimensions is trans- formed under the impact of modernization. First,in terms of content,the ideal pattern of foreign policies,with its emphasis on the "high policy"functions of security and defense, or,alternatively,on expansion of some attribute of the state,has been widened into if not replaced by a new pattern.Either there is a broad- ening of the spectrum of policy goals to include goals of wealth and welfare in addition to those of power and position associated with high policies,or these older ideal patterns are completely overshadowed by the advent of"low policies."What is distinctive and new about these policics is that they are primarily non-confictual.Like the relations of which they are a part,some are merely fleeting and casual.Others are explicitly cooperative and pertain to the production of international collective goods,which require compatible efforts on the part of official and nonofficial groups in diverse societies.In the case of highly modernized societics,their chief trait is that they are seen as economic goods.They arise from growth in international trade and the con- comitant necessity to regulate trade imbalances,to produce additional liquidity,to finance trade,and to create all the other regulative devices Stanley Hoffmann offers another argument on "low policies"and "high policies" in his essay "Obstinate or Obsolete?The Fate of the Nation-State and the Case of Western Europe,"Daedalus,xcy (Summer 1g66),862-915.Hoffmann feels that nuclear stalemate has served to reinforce the attributes of the nation-state by stabilizing the structure of postwar international society,and chat low policies do not generate the spillover expected of them by prophets of international integration.Although Hoff- mann is quite right in saying that the integrationists overescimated the potential of eco- nomic exigencies for creating international integration,his denial of any effect of low policies is overstated. 10 In definitions of public goods,the emphasis is usually placed on one society rather than on a group of societies.The focus is then on nonexclusivity or the incapacity of a single organization or government to prevent any individual members from re- ceiving its benefits.See Mancur Olson,Jr.,The Logic of Collective Action:Public Goods and the Theory of Groups (Cambridge,Mass.1g65).It is also truc,however, that incentives exist for cooperation within a group,based on the lure of greater benefits