Stategraphy Studies in Social Analysis General Editor: Martin Holbraad University College London Focusing on analysis as a meeting ground of the empirical and the conceptual, this series provides a platform for exploring anthropological approaches to social analysis while seeking to open new avenues of communication between anthro- pology and the humanities, as well as other social sciences. Volume 1 Being Godless: Ethnographies of Atheism and Non-Religion Edited by Ruy Llera Blanes and Galina Oustinova-Stjepanovic Volume 2 Emptiness and Fullness: Ethnographies of Lack and Desire in Contemporary China Edited by Susanne Bregnbæk and Mikkel Bunkenborg Volume 3 Straying from the Straight Path: How Senses of Failure Invigorate Lived Religion Edited by David Kloos and Daan Beekers Volume 4 Stategraphy: Toward a Relational Anthropology of the State Edited by Tatjana Thelen, Larissa Vetters, and Keebet von Benda-Beckmann Volume 5 Affective States: Entanglements, Suspensions, Suspicions Edited by Mateusz Laszczkowski and Madeleine Reeves Volume 6 Animism beyond the Soul: Ontology, Reflexivity, and the Making of Anthropological Knowledge Edited by Katherine Swancutt and Mireille Mazard S tategraphy Toward a Relational Anthropology of the State Edited by Tatjana Thelen, Larissa Vetters, and Keebet von Benda-Beckmann berghahn N E W Y O R K • O X F O R D www.berghahnbooks.com First published in 2018 by Berghahn Books www.berghahnbooks.com © 2018 Berghahn Books Originally published as a special issue of Social Analysis, volume 58, issue 3. All rights reserved. Except for the quotation of short passages for the purposes of criticism and review, no part of this book may be reproduced in any form or by any means, electronic or mechanical, including photocopying, recording, or any information storage and retrieval system now known or to be invented, without written permission of the publisher. Library of Congress Cataloging-in-Publication Data Names: Thelen, Tatjana, editor. | Vetters, Larissa, editor. | Benda-Beckmann, Keebet von, editor. Title: Stategraphy : toward a relational anthropology of the state / edited by Tatjana Thelen, Larissa Vetters, and Keebet von Benda-Beckmann. Description: New York : Berghahn Books, 2017. | Series: Studies in social analysis | Includes bibliographical references and index. Identifiers: LCCN 2017014899 (print) | LCCN 2017037523 (ebook) | ISBN 9781785337017 (ebook) | ISBN 9781785336997 (hardback : alk paper) | ISBN 9781785337000 (pbk. : alk. paper) Subjects: LCSH: Political anthropology. | State, The. Classification: LCC GN492 (ebook) | LCC GN492 .S74 2017 (print) | DDC 306.2–dc23 LC record available at https://lccn.loc.gov/2017014899 British Library Cataloguing in Publication Data A catalogue record for this book is available from the British Library. ISBN 978-1-78533-628-7 (hardback) ISBN 978-1-78533-573-0 (paperback) ISBN 978-1-78533-574-7 (ebook) ContentS Introduction Stategraphy: Relational Modes, Boundary Work, and Embeddedness 1 Tatjana Thelen, Larissa Vetters, and Keebet von Benda-Beckmann Chapter 1 Contingent Statehood: Clientelism and Civic Engagement as Relational Modalities in Contemporary Bosnia and Herzegovina 20 Larissa Vetters Chapter 2 The State, Legal Rigor, and the Poor: The Daily Practice of Welfare Control 38 Vincent Dubois Chapter 3 Relationships, Practices, and Images of the Local State in Rural Russia 56 Rebecca Kay Chapter 4 Acts of Assistance: Navigating the Interstices of the British State with the Help of Non-profit Legal Advisers 73 Alice Forbess and Deborah James Chapter 5 Images of Care, Boundaries of the State: Volunteering and Civil Society in Czech Health Care 90 Rosie Read – v – vi | Contents Chapter 6 State Kinning and Kinning the State in Serbian Elder Care Programs 107 Tatjana Thelen, Andre Thiemann, and Duška Roth Chapter 7 Workings of the State: Administrative Lists, European Union Food Aid, and the Local Practices of Distribution in Rural Romania 124 S¸tefan Dorondel and Mihai Popa Chapter 8 Creating the State Locally through Welfare Provision: Two Mayors, Two Welfare Regimes in Rural Hungary 141 Gyöngyi Schwarcz and Alexandra Szo˝ke Index 159 JK IntroductIon Stategraphy: Relational Modes, Boundary Work, and Embeddedness Tatjana Thelen, Larissa Vetters, and Keebet von Benda-Beckmann While the state had been a recurrent theme in anthropology (Bouchard 2011), the 1990s saw a new wave of interest in it. The efflorescence of the ‘new’ eth- nography of the state has cast a spotlight on certain issues, while others have received less attention. Significantly, there has been a marked shift toward state images and representations in research and theorizing. In response, Anthony Marcus (2008) launched a fulminant critique against this development, which he described as the emergence of an ‘orthodoxy’ in (Anglophone) anthropo- logical state theory. According to him, emphasizing the plurality of culturally constructed state representations without much reference to either power rela- tions or larger social scientific discussions amounts to mere empiricism. We agree with Marcus that much of the recent anthropological literature has over- emphasized cultural constructions, images, and discursive representations of the state, which, moreover, are often presented in a peculiarly monomorphic manner. The topic of state practices—perhaps more pronounced in European discussions—has not received appropriate attention in the strand of literature criticized by Marcus. More important, however, we believe that this develop- ment has resulted in a problematic theoretical void between state images and practices. The missing link makes it difficult to understand how specific state constellations and boundaries emerge and are reproduced or dissolved. Notes for this section begin on page 16. 2 | Tatjana Thelen, Larissa Vetters, and Keebet von Benda-Beckmann In this introduction, we propose a relational anthropology of the state as a way to bridge the gap between images and practices. While acknowledging that anthropologists have often stressed the embeddedness of the social phe- nomena they research, we argue that this has not yet been fully explored in the analysis of the state. Making relations the starting point of analysis can offer new insights into the workings of the state. We advance our argument in four interrelated sections. First, we examine in greater detail the emergence of the analytical gap between state images and practices. This section does not intend to provide a comprehensive overview of the development of the anthropology of the state; instead, we focus on embedding the anthropological discussion within the wider domain of social scientific theorizing. Based on this analysis, we, sec- ondly, outline the proposed relational approach, which we call ‘stategraphy’. This section includes a working concept of the state and proposes three axes of analysis, namely, relational modalities, boundary work, and embeddedness of actors. Together they lay the foundation for the contributors’ individual state graphies, which we describe in the third section. All of the chapters in this book focus on social relations that simultaneously condition and emerge around one central field of state action, namely, welfare services. These redis- tributive relations constitute a crucial setting where state images and practices converge in the interactions of officials and other citizens. Although not the only possible entry point for a relational analysis, welfare services are espe- cially suited to observe mechanisms of inclusion and identification, as claims and decisions are made about who belongs to a given community and who will have access to limited public resources. The last part highlights how, read together, the collected chapters contrib- ute not only to an understanding of the variety of constructions of the state but also to broader comparative topics. While many recent ethnographic studies of the state have concentrated on how the history of European state formation provided a powerful ideal for statehood in Africa, Asia, and else- where, the contributions in this volume concentrate on Eastern and Western Europe as well as Russia. The demise of socialism has called into question the former self-ascription of state functions and furthered the global hegemony of neo-liberal ideas that has also deeply affected Western European welfare prac- tices. This development has included ideas about necessary state withdrawal from service provision and the introduction of new regulatory frameworks, turning the provision of welfare into important sites where the state redefines itself. Nevertheless, the Cold War dichotomy has not yet vanished (Chari and Verdery 2009), which leads to an often separated treatment of former socialist and capitalist states. Instead of taking the difference for granted, this book examines both post-socialist and post-welfare states as relational settings that demonstrate the fluidity and transformation of state structures, while simultaneously insisting on the particular historicity of each case. Thus, apart from the more general comparative conclusions that can be drawn from the relational approach, this volume seeks to contribute to a post–Cold War ethnography of the state. Introduction | 3 The Emergence of a Dominant Dichotomy: State Images and Practices The anthropological rediscovery of the state as a subject of research occurred at a time when other disciplines were already agonizing about the apparent with- ering away of the state. The following short overview of the broader interdisci- plinary field shows that neither the timing nor the specific focus of this recent ethnography of the state was accidental.1 Up to the 1980s, political scientists and political sociologists engaged in intense debates about the nature of the state. In the 1960s and 1970s, the Marxist-oriented circles, especially those engaged in the ‘Poulantzas-Miliband debate’, discussed to what extent the state was exclusively an instrument of capitalist class interest (Miliband 1983; Poulantzas 1969, 1976).2 In contrast, the largely American pluralist school of community studies of the time viewed the state as an extension of the power of either elitist or pluralist societal inter- est groups (Dahl 1961; Domhoff 1990). Finally, in the 1980s, neo-Weberian the- orists sought to bring ‘the state back in’ (Evans et al. 1985) by treating it as an autonomous entity analytically separable from intra-societal power struggles. By the late 1980s, these approaches to the state had lost much of their appeal, and in the search for conceptual alternatives to overcome this theoretical stale- mate, notions of ideology (Abrams 1988; Bourdieu 1994) and culture (Mitchell 1991, 1999; Steinmetz 1999a) took center stage.3 With the benefit of hindsight, one can now see how these developments pro- vided an opening for the application of anthropological tools to the study of the state, while at the same time conditioning the form that this engagement would take. Looking back at Akhil Gupta’s (1995) article “Blurred Boundaries,” which is considered one of the founding texts of the new (Anglo-American) ethnogra- phy of the state, Gupta’s insistence on the “analysis of the everyday practices of local bureaucracies and the discursive construction of the state in public culture” (ibid.: 375; emphasis in original) clearly fits into the broader cultural turn. More recently, two political scientists with an affinity for anthropological approaches, Migdal and Schlichte (2005: 15) proposed differentiating the idea of the state from state practices, thus drawing anthropology’s contribution squarely into mainstream social science debates about the nature of the state. Even if the authors advocated investigating precisely the dynamics between state images and practices, they did not suggest a concrete way of how to proceed. In the end, it was rather the dichotomy between images and practices that became part and parcel of the ‘new’ anthropology of the state. Prefigured by Gupta (1995), after the turn of the twenty-first century the new ethnographies of the state increasingly concentrated on the domain of repre- sentations.4 In the introduction to their volume States of Imagination, Hansen and Stepputat (2001) opted for the formula ‘languages of stateness’ to capture both representations and practices of statehood. However, the volume’s title and individual chapters document a tendency to emphasize cultural images and discourses of the state rather than concrete practices. Shortly afterward, Sharma and Gupta (2006) published a reader on the anthropology of the state,