A comparative analysis of the process by which conflicting interests are implemented in the higher education systems of the United States, England, Sweden, and France is presented. Attention is also directed to differentiation in these systems, and to the systems' receptiveness to such differentiation (i.e., splitting up existing functions, or adopting new, distinct roles for higher education). Although focus was on the varied roles of the state with respect to differentiation, consideration was given to the power relations of groups and the ways in which particular systems promoted the access of certain groups to the policy-making process. Implementation of the sometimes conflicting interests of social justice, competence, academic freedom, autonomy, or accountability is basically a matter of relations between the higher education system and society. The key to the flexibility of the system, to its receptiveness to differentiation, appears to be the balance of the relationship (or the power differential) between the academic profession and the laity. In addition, the commitment of the academic profession to challenging interest interpretations and emphases introduced from outside the higher education system is important. The contrasting cases of Sweden and France reveal that state intervention is sometimes necessary to ensure the responsiveness of higher education to market demands. A strong legislative branch in government seems to be especially conducive to the openness of the system to access by lay groups, particularly in the policy-making realm. (SW)