This case study seeks to explain how organizations grow and the limits to that growth when an organization engaged in policy implementation lacks the resources necessary to achieve policy goals. The discussion of the basis of conflict that emerges from this study is of lasting significance. For years, studies of this issue have pointed to various models of factionalism, stressing the informal character of the groups involved. In Professor Ostrov's study, however, conflict is shown to have a supra-Cultural Revolutionary institutional basis in this and other key units.