At the same time, they should be alert to the convergence of what might appear to be superficially distinct threats into a single new threat. Differences between inside and outside and between new and old could easily become blurred. Apart from convergence, one also had to contend with the “layering effect,” in which “interest group demands from different communities overlap with one another to create layered social problems: current problems with historical problems, tangible interest problems with ideological problems, political problems with nonpolitical problems; all intersecting and
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