This conceptualization contrasts sharply with the understanding that is explicit or implicit in the functional approach. In the traditional literature, the choice of tools and their modes of operation are treated superficially to the extent that their meaning is unexplored governing means making regulations, taxing, entering into contracts, or communicating or as if the questions it raises (the properties of instruments, justi- fications for choosing them, and their applicability ) are secondary issues, merely part of an established process without any autonomous meaning.