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Early theorists were content to assert or assume the importance of culturally based rule systems but did little more than illustrate such effects. More recently, a growing number of researchers have attempted to operationalize the concept of legitimacy. In moving from vague, general assertions about organizations being legitimated by societal values or being consistent with socially constructed models, researchers have had to confront several conceptual and measurement issues, including (1) What element or aspect of institutions is of interest? (2) What social actors are doing the legitimating, and what dimensions do they target? (3) What level (population, organization, subunit) is being assessed? and (4) What is the relative salience of the dimensions assessed?What Elements?While theorists have attended to somewhat distinctive institutional elements in formulating their views of legitimacy, it is useful to distinguish analytically among three basic components of institutions the normative, the regulative, and the cognitive each giving rise to a distinctive basis for evaluating legitimacy (Scott, 1995) and to distinctive types of control mechanisms-normative, coercive, and mimetic (DiMag- gio and Powell, 1983). The normative component, stressed by Weber's discussion of administrative systems, places emphasis on "normative rules that introduce a prescriptive, evaluative, and obligatory dimension into social life" (Scott,1995: 37). Organizations are subject to the application of generalized societal norms such as fair play but are particularly constrained by the existence of a variety of occupational and professional standards to which their participants subscribe (DiMaggio and Powell, 1983). Regulative institutions, such as Weber's "guaranteed law," stress the presence of "explicit regulative processes: rule setting, monitoring, and sanctioning activities" (Scott, 1995: 35). Such activities are often lodged in formal oversight structures, such as state agencies. Singh, Tucker, and House (1986) provided an illustration of regulatory legitimacy when they determinedwhether voluntary social service organizations in Toronto obtained a charitable registration number from the state agency, Revenue Canada.
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