Rough draft: Perhaps the higher level is underdetermined and acts in a manner that is, from the perspective of the lawfulness of the lower level, indeterminate in a manner analogous to how the digits in pi seem undetermined to one who is unaware of what they represent. But at the higher level, they act in a manner that is determined, albeit in a manner that is conditioned by circumstances. And these determinations are best understood in terms of seeking a kind of equilibrium/goal. The highest level would be that of a rational being that apprehends the good as such, and is, in virtue of its determination to seek this goal, undetermined...free.
This is a nice way to try to avoid being cornered re the irreality of the self if you're a reductionist, for you can assert that a pattern obtains at the microscopic level that is not all that unlike the pattern found at the societal level. No need for the one self that does it all: instead, you have many sub-selfs that compete for dominance or take turns guiding the whole. The problem with this is, however, that the voters/officials are all zombies. None of them thinks about the whole as such. And perhaps none of them thinks even about themselves (unless one is a panzoist). None of them makes a comparison of alternatives. The more this proposed democracy seems like a zombocracy, the more consciousness will be seem to be epiphenomenal. Furthermore, if the oneness of the self is less real than the multiplicity of explanatory neural parts, then why can't each of these neural parts be conceived of as democracy as well? And why not parts of these parts, et...
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