Levels of Legibility: Roles and the Flow of State Information in French Morocco

Abstract How do state actors interpret and share information? Theories of the state have long recognized the role of legibility – the modes and practices by which states render society and nature knowable through intervention and information collection – in constructing and maintaining state power. Yet, research has only begun to explore the processes by which information is created and diffused within state administrations. Drawing upon theories of agency relations in states, this article explores how administrators’ communicative practices shape knowledge and legibility. Through examining memos, legislative studies, and draft legislation for decrees recognizing water rights in the French Protectorate in Morocco, I identify a set of common patterns in the construction of bureaucratic information as it moves from street-level administrators to central officials. In analyzing these patterns, I demonstrate how administrators’ obligations and their understandings of the state’s political projects determined not only how French officials collected information, but what they communicated to others. As information moved across administrative levels, officials iteratively changed information. Joining critiques and extensions of legibility theory that emphasize the role of non-state actors in the construction of state knowledge, I argue that we must also attend to intra -state dynamics. In tracing communication and information, I demonstrate that information is iteratively constructed by state agents according to their administrative position and transformed by its particular bureaucratic routes. Modeling legibility and the development of state knowledge requires attending to administrators’ agency, their relationships with each other, and their understanding of the state’s goals.