the anthropology of the state in the age of globalization

GuRRENT A N T H R O P O L O G Y Volume 42, Number i, February 2001© 2001 by The Wenner-Gren Foundation for Anthropological Research, All rights reserved ooii-32O4/2OOi/42Oi-ooo5$2,5o

FORUM ON THEORY INANTHROPOLOGY

The Anthropology ofthe State in the Ageof Globahzation^

close Encounters of theDeceptive Kind

by Michel-Rolph Trouillot^

Sociocultural anthropology often arises from the banalityof daily life, I will start this essay with three banalstories.

In January 1999, Amartya Sen, Nobel Laureate in ec-onomics, on his way to a conference in Davos, wasstopped at the Zurich airport for entering Switzerlandwithout a visa. Never mind that he was carrying creditcards and bis U,S, resident green card. Never mind tbatbe claimed tbat tbe organizers bad promised bim a visadelivered to tbe airport, Nortb Americans and WesternEuropeans can, of course, enter Switzerland witbout avisa, wbetber or not on tbeir way to a conference, butSen uses bis Indian passport, Tbe Swiss police were wor-ried tbat be would become a dependent of tbe state, asIndians are likely to be, Tbe irony of tbe story is tbatSen was on bis way to tbe World Economic Forum, tbetbeme of wbicb tbat year was "Responsible Globality:Managing tbe Impact of Globalization,"

Less amusing but just as banal is tbe story of tbe 14-year-old "Turk" wbo was sent back to Turkey by tbe

1, Tbis essay was prepared for the Glose Eneounters Gonference ofthe Department of Gultural Antbropology of Stanford Universityon April 9-10, 1999, A revised version was presented at tbe col-loquium "Resilience or Erosion? Tbe State Under Attack fromAbove and Below" of the Gentre d'Etudes de Relations Interna-tionales, Paris, June 15-16, 2000,1 thank participants in botb meet-ings for their comments, as well as Benjamin Orlove, Gavin Smith,and the anonymous referees for this journal, Gwen Faulkner andGlare Sammells provided useful research assistance, I owe specialthanks to Kay Warren for her encouragement,2, Department of Anthropology, University of Ghicago, Ghicago,111, 60637, U,S,A,

German government wben in fact be bad never set foottbere, baving been born and raised in Germany, TbeFrencb and U,S, governments routinely expel "aliens"wbose scbool-age cbildren are citizens by birtb.

Less amusing still is tbe encounter between one Tu-renne Deville and tbe U,S, government in tbe 1970s, Attbe news tbat tbe Immigration and Naturalization Ser-vice was to send bim back to Haiti, Deville banged bim-self in bis prison cell, Deville's suicide is no more dra-matic tban tbe wager of bundreds of Haitian refugeeswbo continue to dive—botb literally and figura-tively—into tbe Florida seas, betting tbat tbey will beattbe sbarks, tbe waves, and tbe U,S, Goast Guard,

Are tbese encounters witb tbe state? In all tbree cases,we see a government—or a government agency—tellingpeople wbere tbey sbould or sbould not be. If, as JamesScott (1998), among otbers, argues, tbe placement of peo-ple, including tbeir enforced sedentarization, is a majorfeature of statecraft, tbe encounters I bave just describeddo seem to be cases in wbicb state power was wieldedto enforce pbysical placement.

My tbree stories speak of borders—of tbe space be-tween centralized governments witb national territorialclaims, wbere encounters between individuals and statepower are most visible. Yet millions of encounters of tbesame kind also occur witbin national or regional bound-aries: a car owner facing state emission laws in Galifor-nia, a family facing scbool language in Gatalonia, India,or Belize, a couple dealing witb a new pregnancy inGbina, a homeless person deciding wbere to sleep in SanFrancisco, Rio de Janeiro, or New York, a Palestinian intbe Occupied Territories baving to decide wbicb line tocross and wben, or a citizen of Singapore or Malaysiabaving to conform to prescribed bebaviour in a publicbuilding,

Bebind tbe banality of tbese millions of encountersbetween individuals or groups and governments we dis-cover tbe deptb of governmental presence in our lives,regardless of tbe regimes and tbe particulars of tbe socialformation, Tbe opening sentence of Ralpb Miliband's(1969:1) opus on tbe state still rings true: "More tbanever before men now live in tbe sbadow of tbe state,"One can even argue tbat tbe penal state bas actuallyincreased in size and reacb in a number of countries sinceMiliband wrote—notably in tbe United States, witb tbeincrease of prison space and tbe routinization of tbedeatb penalty,

Tbis, bowever, is only one side of tbe story. Indeed,wbile signs of the routinization of governmental pres-ence in tbe lives of citizens abound everywbere, this turnof century also offers us images of governmental powerchallenged, diverted, or simply giving way to infra- orsupranational institutions. From Ghiapas and Kosovo toKigali and Trincomale, separatist movements have be-come increasingly vocal on all continents, Furtber, andon a different scale, analysts increasingly suggest tbatglobalization renders tbe state irrelevant not only as aneconomic actor but also as a social and cultural con-tainer, Tbey point to tbe significance of practices thatreject or bypass national state power—sucb as tbe "new"

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social movements—or to the power of trans-state organ-izations from NGOs and global corporations to the WorldBank and the International Monetary Fund as concretesigns of that relative decline.

Thus this century opens on two sets of contradictoryimages: The power of the national state sometimesseems more visihle and encroaching and sometimes lesseffective and less relevant. This paper explores how asanthropologists we can make sense of this tension andfully incorporate it into our analysis of the state. To doso, we need to recognize three related propositions: (i)State power has no institutional fixity on either theo-retical or historical grounds. (2) Thus, state effects neverohtain solely through national institutions or in govern-mental sites. And (3) These two features, inherent in thecapitalist state, have heen exacerbated by globalization.Globalization thus authenticates a particular approachto the anthropology of the state, one that allows for adual emphasis on theory and ethnography.

If the state has no institutional or geographical fixity,its presence becomes more deceptive than otherwisethought, and we need to theorize the state beyond theempirically ohvious. Yet this removal of empiricalboundaries also means that the state becomes more opento ethnographic strategies that take its fluidity into ac-count. I suggest such a strategy here, one that goes be-yond governmental or national institutions to focus onthe multiple sites in which state processes and practicesare recognizable through their effects. These effects in-clude [i] an isolation effect, that is, the production ofatomized individualized subjects molded and modeledfor governance as part of an undifferentiated but specific"public"; (2) an identification effect, that is, a realign-ment of the atomized subjectivities along collective lineswithin which individuals recognize themselves as thesame; (3) a legibility effect, that is, the production ofboth a language and a knowledge for governance and oftheoretical and empirical tools that classify and regulatecollectivities; and (4) a spatialization effect, that is, theproduction of boundaries and jurisdiction. This essay isan exploratory formulation of this strategy.

Thinking the State

Exploratory though it may be, this exercise requires aconceptual baseline. First we need to determine at whatlevel(s) best to conceptualize the state. Is the state a"concrete-concrete," something "out there?" Or is it aconcept necessary to understand something out there?Or, again, is it an ideology that helps to mask somethingelse out there, a symbolic shield for power, as it were?

Unfortunately, sociocultural anthropologists have notgiven these questions the attention they deserve. In amajor review of the anthropology of the state, CaroleNagengast (1994:116) wrote: "Insofar as anthropologyhas dealt with the state, it has taken it as an unanalyzedgiven." Interestingly, Nagengast's own treatment of thestate in the context of her assessment does not attempt

to turn this unanalyzed given into an object of study.^Indeed, is there an object to study?

The anthropologist A. R. RadcliJEfe-Brown answers thisquestion with a resounding no that should give us foodfor thought even if we disagree with its extremism. In-troducing Meyer Fortes's African Political Systems in1940, Radcliffe-Brown (i995[i94o]:xxiii) wrote:

In writings on political institutions there is a gooddeal of discussion ahout the nature and origin of theState, which is usually represented as being an en-tity over and above the human individuals whomake up a society, having as one of its attributessomething called "sovereignty," and sometimes spo-ken of as having a will (law being defined as the willof the State) or as issuing commands. The State inthis sense does not exist in the phenomenal world;it is a fiction of the philosophers. What does exist isan organization, i.e. a collection of individual hu-man beings connected by a complex system ofrelations. . . . There is no such thing as the power ofthe State. . . .

One could call this death by conceptualization inasmuchas Radcliffe-Brown conceptualizes the state intooblivion.

To be sure, this answer carries the added weight ofboth empiricism and methodological individualism. YetRadcliffe-Brown is not simply saying that "army" ismerely the plural for "soldiers." Nor is he saying thatthe state does not exist because we cannot touch it. Gov-ernmental organizations have different levels of com-plexity even if for the sake of functionality, when notfor the sake of functionalism. Thus, a generous readingof Radcliffe-Brown, which would prune out the addedphilosophical baggage of his school and times, still leavesus with a powerful answer. The state is neither some-thing out there nor a necessary concept. Each and everytime we use the word, words such as "government"would do the conceptual job, and they would do it better.

I do not agree with this answer, but it seems to methat anthropologists cannot continue to ignore it. Rad-cliffe-Brown's answer to the state question Contains awarning that anthropologists should keep in mind. Sincethe state can never be an empirical given, even at thesecond degree (the way, say, particular governments canbe thought to be), where and how does anthropology en-counter the state, if at all? What can be the terms of ouranalytical encounter with the state? What can we pos-sibly mean, for instance, by an ethnography of the state?

In an important article, Philip Abrams revives Rad-cliffe-Brown's warnings. Abrams provides a sophisti-cated demonstration of the reasons for rejecting the ex-istence of the state as an entity and raises some seriousdoubts about the analytical purchase of the state concept.He writes (1988:76):

3. Anthropological attempts to look at institutions of the nationalstate ethnographically since the puhlication of her review includeGupta (1995), Heyman (1998, 1999), and Nugent (1994).

TROUILLOT Close Encounters of the Deceptive Kind \ 127

The state . . . is not an object akin to the humanear. Nor is it even an object akin to human mar-riage. It is a third-order object, an ideological project.It is first and foremost an exercise in legitimation.. . . The state, in sum, is a bid to elicit support foror tolerance of the insupportable and intolerable bypresenting them as something other than them-selves, namely, legitimate, disinterested domination.

Contrary to Radcliffe-Brown, Abrams admits an objectfor state studies, the very process of power legitimationthat projects the image of an allegedly disinterested en-tity—"the state-idea."" As stated, Abrams's state-idea isnot immediately conducive to ethnography, but it doesprovide a warning that balances Radcliffe-Brown. Some-thing happens out there that is more than government.The question is what.

Theorists have provided different answers to this ques-tion, which I will not survey here. For the purposes ofthis paper, let me only say that my own evolving viewof the state starts with the "enlarged" notion of the statefirst put forward by Antonio Gramsci. I also find ex-tremely fruitful Nicos Poulantzas's reworking of Marxand Gramsci. I continue to gain also from various writerssuch as Ralph Miliband (1969), Louis Althusser(i97i[i969]), PaulThomas(i994), James Scott (1998), andEtienne Balibar (1997). All this is to say that I do notclaim to provide an original conceptualization. Rather,I hope to make a contribution to an ongoing dialoguewith an eye to the kind of research best performed bysociocultural anthropologists (see also Trouillot 1997).

Most of the writers I have mentioned have insistedthat the state is not reducible to government. In Mili-band's (1969:48) words, "what 'the state' stands for is anumber of particular institutions which, together, con-stitute its reality, and which interact as part of what maybe called the state system." Miliband's overly sociolog-ical treatment of that system needs to be backed by Pou-lantzas's and Gramsci's more elaborate conceptualiza-

4. Since the state is an ideological projection, the purpose of statestudies is to decipher this exercise in legitimacy—the processeshehind the idea of the state and its cultural acceptance.5. Gramsci's enlarged view of the state, inseparable from conceptssuch as hegemony, civil society, and historical hloc, offers the fun-damental point of departure that, in the context of capitalism, the-ories of the state must cover the entire social formation becausestate and civil society are intertwined. The intellectual and politicalimplications of that starting point cannot be overestimated. SeeBucci-Glucksman (1975), Macchiocci (1974), Thomas (1994), andTrouillot (1990, 1996). Miliband launched the Marxist critique ofLeninism and its implication that seizing control of governmentmeant seizing control of state power. That critique, implicit inGramsci, arose timidly in the '60s and grew in the '70s, especiallyin England and France. For Miliband, although government is in-vested with state power, the state is not reducible to government.Further, the leadership of the state elite includes individuals whoare not in government proper but often belong to the privilegedclasses. Miliband barely cites Lenin, but the critique is evident. Healso suggests (1969:49) that the study of the state must start withthe preliminary problem that "'the state' is not a thing, that is,does not, as such, exist." On Poulantzas's contribution, see Thomas(1994) and Jessop (1985]. On Althusser, see Resch (1992).

tions of the state as a privileged site of both power andstruggle. Gramsci's insistence on thinking state and civilsociety together by way of concepts such as hegemonyand historical bloc is fundamental to this approach. I readGramsci as saying that, within the context of capitalism,theories of the state must cover the entire social for-mation and articulate the relation between state andcivil society. One cannot theorize the state and then the-orize society or vice versa. Rather, state and society arebound by the historical bloc which takes the form of thespecific social contract of—and, thus, the hegemony de-ployed in—a particular social formation. "A social con-tract is the confirmation of nationhood, the confirmationof civil society by the state, the confirmation of samenessand interdependence across class boundaries" (Trouillot1997:51)- Yet even that phrasing needs to be qualifiedlest it seem to reinforce the 19th-century homology ofstate and nation.

As institutionalized in degree-granting departments ina context in which faith in progress was unquestioned,19th-century social science built its categories on theassumption that the world in which it was born was notonly the present of a linear past but the augur of anordained future. For most of its practitioners, the worldmay not have been eternal, but the referents of the cat-egories—if not the categories themselves—used to de-scribe that world were eternal. Thus the confiation ofstate and nation was naturalized because it seemed soobvious within that present—evidence to the contrarynotwithstanding. But what if the correspondence be-tween statehood and nationhood, exemplified by theclaimed history of the North Atlantic and naturalizedby its social science, was itself historical?* Indeed, thereare no theoretical grounds on which to assert the neces-sity of that correspondence, and there are some historicalgrounds for questioning it.

If we suspend the state-nation homology as I suggestwe should, we reach a more powerful vision of the state,yet one more open to ethnography, since we discoverthat, theoretically, there is no necessary site for the state,institutional or geographical. Within that vision, thestate thus appears as an open field with multiple bound-aries and no institutional fixity—which is to say that itneeds to be conceptualized at more than one level.Though linked to a number of apparatuses not all ofwhich may be governmental, the state is not an appa-ratus but a set of processes. It is not necessarily boundby any institution, nor can any institution fully encap-sulate it. At that level, its materiality resides much lessin institutions than in the reworking of processes andrelations of power so as to create new spaces for thedeployment of power. As I have put it elsewhere (Trouil-lot 1990:19), "At one level the division between stateand civil society has to do with content. . . . At anotherlevel it has to do with methodology in the broad sense."

I will return later to the particular consequences of

6. For a critical assessment of the state-nation homology, see Trouil-lot (i99o:esp. 23-26).

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this position in the age of globalization. First, however,I need to make explicit what I mean by "globalization."

A Fragmented Globality

If by "globalization" we mean the massive flow of goods,peoples, information, and capital across huge areas of theearth's surface in ways that make the parts dependenton the whole, the world has been global since the i6thcentury. To acknowledge these earlier global flows is notto claim that there is nothing new under the sun. Rather,the reference to a massive empirical record of globalflows helps us, flrst, to expose what I call "globalitarism"as a dominant ideology of our times and, second, to insiston the political and scholarly need to establish a criticaldistance from that ideology.

If we approach globalization naively as the recentemergence of "a world without boundaries," we flnd our-selves repeating advertising slogans without knowinghow we ended up doing so. We overlook the fact thatwords like "global" and "globalization" in their mostcurrent use were flrst broadcast most aggressively bymarketing agents and marketing schools. Masaki andHelsen (1998) locate what they candidly call "the glob-alization imperative" in the search for new marketingstrategies.' Scholarly analysis needs to go beyond theslogans, cliches, and narratives that sustain these strat-egies. These tropes not only silence the histories of theworld but also veil our understanding of the pre-sent—including their own conditions of possibility—byhiding the changing story of capital. Changes in the com-position and spatialization of capital are crucial in shap-ing the uniqueness of our present. In this essay, I reservethe word "globalization" for the conflation of thesechanges.*

Capitalism has always been transnational. Crossingpolitical borders is inherent in its historical trajectory.Indeed, some analysts have long suggested that capital-ism is necessarily prone to cross borders inasmuch as itmust flnd new places to integrate into the sphere of cap-ital (Luxemburg I95i[i9i4]). Today as in the past, mostflrms that operate in more than one country have a dis-tinguishable home base. What is new is not the inter-nationalization of capital as such but changes in the spa-tialization of the world economy and changes in thevolume and, especially, the kinds of movements thatoccur across political boundaries.

Indeed, present world history is characterized by a se-

7. Both "glohalization" and "glohal village" date at least from the1960s, with Zbigniew Brzezinski and Marshall McLuhan empha-sizing respeetively the universal status of the North Amerieanmodel of modernity and the teehnological convergence of the world(Mattelart 2000).8. Economists do not fully agree on the list of changes that makeup glohalization. I have tended to rely on the more critical ohserv-ers. Francois Chesnais (1994) and Serge Cordelier (2000) providetwo accessible summaries and Linda Weiss I1997) one of the mosthrutal critiques of glohalization. See also Adda (1996a, b), Reich(1992), Sassen (1998), Wade (1996).

ries of fundamental changes in spatialization, many ofwhich are both captured and obscured by the word "glob-alization." Changes in the spatialization of markets—themarket for capital (both flnancial and industrial), themarket for labor, and the market for consumergoods—create overlapping spatialities that are not syn-chronized but together help to give the world economyits current shape. The world economy now looks like aTriad (Ohmae 1985)—a triangle with three major re-gional centers as its poles, one in North America (theUnited States and Canada), one in Asia (with Japan atthe epicenter), and one in Western Europe (with Ger-many as the epicenter).'

A major change is in the dynamism of internationalinvestments. The magnitude of foreign direct invest-ment—for instance, capital deployed from one countryinto branches and subsidiaries located in another coun-try—was reportedly US$317 billion in 1995, dwarflngrecords from all past eras. Further, in spite of some yearlyfluctuations, notably in 1992 and in 1998 after the Asiancrisis, the long-term rise seems continuous. Indeed, for-eign direct investment is becoming the primary form ofexchange across state borders, a place traditionally oc-cupied by commerce, and is thus influencing more thanever the rhythm and direction of internationalexchanges.

Within this foreign direct investment, the major trans-fers have moved away from manufacturing to target"nonproductive" assets such as real estate, tourism, de-partment stores, banking, and insurance (Weiss 1997:8).Among the leading countries, only Japan's foreign in-vestments remain relatively high in manufacturing. Themajor proflts, national and transnational, are now in rentform, notably in the flnancial markets. As many trans-national holdings involved in manufacturing become, infact, "flnancial groups with an industrial concentration"(Chesnais 1994:61-66), the logic of flnance capi-tal—which, both Marx and Keynes warned us, is veryclose to the logic of usury—becomes the dominant logicof the system. The fragility of unregulated flnancial mar-kets combines rumors of immediate doom with hopesof extravagant proflts. Indeed, quick proflt anywhere, byany means, a goal inherent in the logic of capital itself,becomes the explicit ethos of managers. At the sametime and for the very same reasons, capital does notmove freely across borders. Rather, the spatial distribu-tion of capital is increasingly selective. Most world ec-onomic movement and especially foreign direct invest-ment occurs between or within the poles of the Triad.'"

9. In 1970, 64 of the world's top 100 corporations were hased in theUnited States. The United Kingdom was a distant second with 9,followed hy Germany, Japan, and France. By 1997, 29 corporationson Fortune's top-100 list were hased in Japan, 24 in the UnitedStates, 13 in Germany, and 10 in France.10. The capital invested tends to come from six countries: theUnited States, Japan, the United Kingdom, Germany, France, andthe Netherlands, more or less in that order. More important, theinvestments reach mainly the same countries with the notable ad-dition of China. Of the US$317 billion invested across state bound-aries in 1995, US$194 billion stayed in the North Atlantic (in theUnited States, Canada, and the European Union). Outside of the

Close Encounters of the Deceptive Kind \ 129

Outside of the Triad, exchange tends to take the minorform of subcontracting.

That glohal exchange remains concentrated among afew countries, mainly in the North Atlantic, China, andJapan, is one of many aspects of a third major feature ofovir times—the increasing concentration of economicpower. Exchange occurs primarily between the samecountries, between firms of the same sectors, hetweenbranches of the same firm. Far from moving toward moreopen markets, the world economy has witnessed in the1980s and '90s the emergence of "private markets" thatdominate its most important exchanges.

Likewise, we have not witnessed the glohal integrationof the price of labor that some optimists promised in the1960s. On the contrary, the world labor market has be-come more differentiated. It is differentiated by region,with the highest prices in the North Atlantic and thelowest in most of Asia, Latin America, and, especially,Africa. It is also differentiated within countries. Only ata lower level, that of consumer products, is the globaleconomy moving, at great speed, toward a single inte-grated market. And even there, a few industries accountfor most of that integration.

In short, globalization does not mean that the worldeconomy is now integrated into a single space. Rather,it means that that economy is developing three contra-dictory but overlapping modes of spatialization: (i) in-creased, though selective, flexibility of capital, mainlyfinancial capital, within or between the poles of theTriad, (2) differentiated lahor markets within and acrossnational borders, and (3) increased but uneven integra-tion of consumer markets worldwide.

A major socioeconomic consequence of these overlapsis global polarization. This polarization takes manyforms. Between sellers and buyers, we are witnessing therise of world oligopolies: a few flrms now control theworld market for most major commodities. Polarizationhas also increased between countries. Gone are the de-velopmentist dreams that assumed all countries to he onthe same path. A majority of countries and some con-tinental chunks (notably sub-Saharan Africa) are becom-ing poorer every day. Even more important, what hap-pens there is becoming irrelevant to the world economy.Given the declining significance of geopolitics in thepost-cold war era, this means quite concretely thatchunks of humankind are seen by world political andeconomic leaders as superfluous. The global map in-creasingly has large black holes.

Polarization occurs also within horders, even in theNorth Atlantic. According to former U.S. Secretary ofLabor Robert Reich (1992), one-flfth of the population ofthe United States is doing increasingly well while theremaining four-flfths are on a downward path. Socialist-oriented programs are slowing down similar trends inEurope, but they are under serious political attack from

North Atlantic, only China's share (US$37.7 billion) was signifi-cant. Latin America as a whole received about as much as Swedenalone. China was Japan's second-largest trading partner and JapanChina's largest trading partner.

big business and their allies. There as here the debatecontinues about the number of citizens who will fall onthe bad side of the gap. Still, the public acknowledgmentthat populations within the same industrialized coun-tries are headed in different directions is a new feature.

To make matters worse, academic, political, and cor-porate leaders in most of the world have joined in whatLinda Weiss (1997,1998) calls "the political constructionof hopelessness," telling citizens that they cannot doanything about the social consequences of globalization.Once-unequivocal assumptions that citizens of Westerndemocracies had some control over the fate of theirneighborhoods, their towns, or their children are nowbeing questioned."

We are far from the idyllic vision of a global village inwhich everyone is connected to everyone else. Rather,our times are marked by an increasing awareness ofglobal flows and processes among fragmented popula-tions. World histories and local histories are becominghoth increasingly intertwined and increasingly contra-dictory. Homogenization is at best superflcial.

To be sure, a few corporations from the United States,Japan, Italy, and France now seem to share global culturalcontrol through the distribution of entertainment andclothing. The planetary integration of the market forconsumer goods does link the world's populations in aweb of consumption in which national ideals are becom-ing more similar even as the means to achieve themelude a growing majority. The integration of that market,the speed of communications, and the oligopolies in me-dia and entertainment help to project the same image ofthe good life all over the world. In that sense, we aretruly witnessing for the first time, especially among theyouth, the global production of desire.

At the same time, this global production of desire doesnot satisfy the cultural needs of speciflc populations. Infact, it acerbates tensions because of the social polari-zation noted above, the limited means available to satisfythose new desires, and the always-speciflc discrepanciesbetween global models and local ones. Further, there isno global culture model to attenuate those discrepancies,in part because there is no agreement on long-termmeanings. Indeed, with the demise of the Soviet bloc.North Atlantic societies in general and the United Statesin particular flnd it increasingly difflcult to generate aunifled meaning and purpose to social life for their owncitizens, let alone agree on an ideal that they can sell toothers (Reich 1992, Laidi 1993). In short, within andacross state boundaries, polarization and entanglementnow create new ways of perceiving distance—temporal,spatial, social, and cultural—thus shaping a new horizonof historicity that I call "a fragmented globality."

II. Right-wing populism feeds on this despair, silencing the factthat social polarization is not something handed down to us hy ananonymous world market but the partial and predictable result ofconscious political decisions made by North Atlantic states sincethe Reagan-Thatcher era.

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Changing Containers

It is against tbe background of tbis fragmented globalitytbat we may best evaluate changes in the effectivenessof the national state as a primary site for economicexchange, political struggle, or cultural negotiation. Fur-ther, we need to assess these changes with a sober aware-ness tbat tbe national state was never as closed and asunavoidable a container—economically, politically, orculturally—as politicians and academics bave claimedsince tbe i9tb century. Once we see tbe necessity oftbe national state as a lived fiction of late modern-ity—indeed, as possibly a brief parenthesis in human his-tory—we may be less surprised by tbe cbanges we nowface and be able to respond to tbem with the intellectualimagination they deserve,'^

These changes cannot be measured quantitatively ona single scale. Even if we were to reduce states to gov-ernments, a quick comparison of Iran, Mexico, India,France, Iraq, and tbe United States witbin and acrosstbeir recognized borders suggests tbat one cannot mea-sure governmental power on a continuum, Tbus claimsof tbe declining relevance of tbe state along globalitaristlines are at best premature if only because tbey presumesucb a continuum,'^ Ratber tban unilinear, tbe cbangesare multiple and, as I bave suggested, sometimes con-tradictory (see also Comaroff and Comaroff 2000), I willnote only a few of tbe most significant ones.

First, and directly related to globalization as definedbere, tbe domains of intervention of national govern-ments are rapidly cbanging. Second, and quite importantfor sociocultural antbropologists, national states are nowperforming less well as ideological and cultural contain-ers, especially—but not only—in tbe Nortb Atlantic,Tbird, new processes and practices wbich seem to rejector bypass the state form—such as the new social move-ments—are creeping into the interstices thus opened.Yet, fourth, statelike processes and practices also obtainincreasingly in nongovernmental sites sucb as NGOs ortrans-state institutions sucb as tbe World Bank, Tbesepractices, in turn, produce state effects as powerful astbose of national governments.

To complicate matters, none of tbis means tbat na-tional governments have stopped intervening in the ec-

12, As part of their bold move to link economy, society, and theideological-cultural tenets of neoliberalism in our times, Comaroffand Comaroff (2000:318-30) provide a more ambitious summary ofthe debate about state and globalization than I can here,13, There are other problems. These theses also rest on the illusionthat the political is an analytically distinct sphere, a propositionlong questioned by Talcott Parsons (1951:126) and explicitly re-jected by most of the state theorists I have used here, notably Gram-sci, A second theoretical slip is the illusion that states are equiv-alent to governments. Since many of the kinds of interventiontraditionally thought to he vk ithin the purview of governments areless easily achieved or simply impossihle today, glohalitarians con-clude that the state has declined, A third theoretical rejoinder tothe declining-relevance thesis is that the state—and the interna-tional system of states without which each state is, in turn, un-thinkable—are necessary conditions for globalization. Globaliza-tion is inconceivable theoretically or historically without a numberof strong states and especially a strong international state system.

onomic or in other walks of life. Indeed, the number ofsovereign states bas more tban quadrupled between 1945and tbe end of tbe last century. Yet, tbe kinds of inter-vention national governments perform bave cbanged—attimes considerably. For instance, as Terry Turner (n,d,)acutely notes, we can see in retrospect tbat since tbe endof World War II military intervention witbin tbe NorthAtlantic has become obsolete as tbe means to capturethe leadership of the capitalist world economy,'" Morerecently, changes in the composition and spatializationof capital have rendered government interventions in in-ternational commerce botb less necessary and lesseffective,'^

Most crucial for sociocultural antbropologists, tbe na-tional state no longer functions as tbe primary social,political, and ideological container of tbe populationsliving witbin its borders. To be sure, it was never as solida container as we were led to believe. However, in tbeNortb Atlantic at least and, to a lesser extent, in tbeAmerican states tbat saw tbe first wave of decoloniza-tion, it often secured tbe outer limits of political struggle,economic excbange, and cultural negotiation. More im-portant, tbeir performance notwitbstanding, nationalgovernments were often expected—and often pre-tended—to act as cultural containers. Now, neitber cit-izens nor governmental leaders expect the state to playthat role effectively,'*

This is in part because of governments' inability (es-pecially in tbe Soutb) or unwillingness (especially in tbeNortb Atlantic) to deal witb tbe increased inequalityusbered in by globalization and, more important, tbe cit-izenry's perception of that inability or unwillingness. Itis also, relatedly, because of tbe increased inability ofnational governments from Iran and China to France andthe United States to play a leadersbip role in tbe sbapingof cultural practices, models, and ideals, Furtber, almosteverywhere botb the correspondence between tbe statesystem and wbat Altbusser (i97i[i969]) calls tbe "ide-ological state apparatuses" has declined as these appa-ratuses increasingly refiect rather than defiect locallylived social tensions, notably those of race and class,''

14, Ironically, the two hig losers of World War II formalized thisnew trend better and faster than their competitors, Japan and WestGermany reaped the henefits of having to renounce, both by choiceand by force, the threat of war. This argument does not invalidatethe heneflts of a war machine in revamping a national economy,as both Reagan and Clinton administrations demonstrate,15, There are areas of great controversy, as the ongoing banana warsbetween the United States and the European Community suggest.Also, trans-state government interventions to remove trade barrierstend to pressure the South much more than the North to removeits tariffs and protections,16, The recent history of France makes the point. From Francis Ito Louis Xrv to Napoleon, De Gaulle, and Mitterrand, French gov-ernments have always taken seriously the role of the state as acultural container. Against that background, the rate of decline ofexpectations in this regard in recent years is telling,17, The overall erosion of ideological state apparatuses in the formercolonies is obvious. An overview of either the Catholic Church inFrance or the educational system in the United States from the1950s to the present could illustrate the point for the NorthAtlantic,


The fiction of isolated national entities constructed by19th-century politicians and scholars no longer fits thelived experiences of most populations.

Cracks in the fiction appeared soon after World Warn. In the North Atlantic, the declining relevance of waras the path to global economic leadership meant a de-cline in the use and effectiveness of nationalist rheto-ric—partly masked and delayed, especially in the UnitedStates, by the existence of the Soviet bloc. Elsewhere,the deep tremors experienced in Africa and Asia duringthe second wave of decolonization" augured ill for thepresumed national homogeneity. Where and how to es-tablish the borders of the new Airican and Asian politiesoften proved an unforeseen predicament. Partition by de-cree in cases as varied as India-Pakistan, Israel-Palestine,and French and German Togo exposed the artificialityand the use of power inherent in border-making prac-tices. Cases such as Algeria's pieds noirs suggested thateven the distinction between home and elsewhere wasnot as easy as once thought.

From the 19SOS to the 1990s, the cold war, in spite ofits rhetoric, also brought home the relevance of eventshappening in other regions of the globe. In North Amer-ica, Vietnam—as later the taking of hostages in Tehe-ran—played a key role, in producing that understanding.In the 1970s and '80s, citizens throughout the NorthAtlantic discovered their partial dependency on foreignimports after most OPEC countries assumed ownershipof their oil fields.

One can safely suggest, however, that geopolitical andeconomic changes on the world scene as such were lesscrucial in breaking down the fiction of impermeable en-tities than the manner in which those changes werehrought home to ordinary citizens in the North Atlanticand affected their daily lives. To give but one example,the objective degree of U.S. involvement in Indochina inthe 1960s was arguably less than that of Spain in 17th-century Mexico, that of France in 18th-century Saint-Dominque/Haiti, or that of Britain in 19th-century India.It might not have been enough to change the imaginationof North Americans if not for the fact that televisionmade the Vietnam War a daily occurrence iri their homesjust as it would later make the Iran-U.S. confrontationa matter of nightly routine. Even more than television,refugees knocking at the door, new patterns of iinmi-gration, and the reconfiguration of the ethnic and cul-tural landscape in major North Atlantic cities broughtthe "elsewhere" to the home front. The speed and massof global fiows—including the fiow of populationsdeemed to be different and often claiming that differencewhile insisting on acceptance—profoundly underminedthe notion of bounded entities, and not just on an ab-stract level. The barbarians were at the door, which wasbad enough, but they were also claiming that "our" homecould be theirs.

18. The first wave of decolonization occurred, of course, in theAmericas in the 19th century with the successive indepen-dences of the United States, Haiti, the former Spanish colonies, andBrazil.

North Atlantic natives, in turn, both rejected and ac-commodated that daily presence. Thus, segregationistpractices notwithstanding, the commodification of ex-otic customs and products from Zen and yoga to Maoshirts and dashikis facilitated a guarded cultural accep-tance. Food played a major role in that process. Koreanvegetable shops in the United States and Arab groceriesin France provided needed services. More important mayhave been the wave of "ethnic" restaurants thatswamped Paris, London, Amsterdam, and New York be-ginning in the 1970s and now brings couscous, curry, orsushi to inland cities once thought impermeable to ThirdWorld cultural imports. The daily presence of the Other,mediatized, commodified, tightly controlled, yet seem-ingly unavoidable—as Other—on the screen or on thestreet, is a major trope of globalitarist ideology. Yet thistrope functions at least in part because it illustrates forlocal populations the national state's increasing diffi-culty in functioning as a container, even in the NorthAtlantic.'*

Toward an Ethnography of the State

None of this means that the relevance of the state isdeclining, if by "state" we mean more than the apparatusof national governments. If the state is indeed a set ofpractices and processes and their effects as much as away to look at them, we need to track down these prac-tices, processes, and effects whether or not they coalescearound the central sites of national governments. In theage of globalization, state practices, functions, and ef-fects increasingly obtain in sites other than the nationalbut never entirely bypass the national order. The chal-lenge for anthropologists is to study these practices, func-tions, and effects without prejudice about sites or formsof encounters. I will note the possibilities of this ap-proach by further sketching the state effects mentionedat the beginning of this essay as grounds for an ethnog-raphy of the state.

Nicos Poulantzas (1972) identified what he called the"isolation effect," which I read as the production of aparticular kind of subject as an atomized member of apublic—a key feature of statecraft. Through the isolationof socioeconomic confiicts, notably class divisions, thestate not only guarantees its own relative autonomy vis-a-vis dominant classes but also produces atomized, in^dividualized citizens who all appear equal in a suppos-edly undifferentiated public sphere. In many societiestoday the national public sphere is fractured differently

19. There are plenty of other signs of the tension hetween the vis-ibility of groups clearly marked as Others and the homogenizingclaims of the state. The consolidatiori of "ethnic" votes in theUnited States is among the most hlatant. I have concentrated onthe North Atlantic here not hecause similar signs are lacking inthe South but because the fiction of homogeneous entities neverfully obtained in the South or in Eastern Europe. To put it otherwise,the peripheral state was never as competent in producing an iden-tification effect as the state in France, Britain, Germany, or theUnited States.

132, I CURRENT ANTHROPOLOGY Volume 42, Number i, February 2001

from when Poulantzas wrote. At the same time, the rel-ative increase in judicial power in almost all of the NorthAtlantic countries suggests that individual atomizationis accompanied by new forms of homogenization. Iden-tity politics notably signals new configurations of thecitizenry. The development of notions of universal hu-man rights and the global spread of North Atlantic legalphilosophy and practices—to cite only one example—areproducing isolation effects. North and South, at timeswith the backing of national governments or with thestill timid support of transnational statelike institutions.In short, the isolation effect—including the masking ofclass divisions and the joint production of a public andthe atomized subjects that constitute it—still obtains,but the processes and practices—and hence thepower—that produce it are being deployed in unexpectedsites.

Following Poulantzas's approach and terminology, wecan identify a number of state effects that he did notidentify by name. To the isolation effect we can add, assuggested earlier, an identification effect, a legibility ef-fect, and a spatialization effect. In all these cases weobserve a deplacement of state functions, a move awayfrom the state system described by Miliband or evenfrom the state apparatuses described by Althusser. Statepower is being redeployed, state effects are appearing innew sites, and, in almost all cases, this move is one awayfrom national sites to infra-, supra-, or transnationalones. An ethnography of the state can and should capturethese effects.

For instance, we may call an identification effect thecapacity to develop a shared conviction that "we are allin the same boat" and therefore to interpellate subjectsas homogeneous members of various imagined com-munities (Poulantzas 1972, Balibar 1997, Scott 1998,Trouillot 1997). This homogenizing process, oncethought the fundamental purview of the national state,is now shared by the national state and a number ofcompeting sites and processes from region to gender,race, and ethnicity. Here again, identity politics helpsredefine the national for better and—often—for worse.The so-called new social movements have also becomesites for accumulating, redirecting, or deploying socialand political power that often tries to bypass or challengenational states, albeit with limited success.^" Many areboth parochial and global, with multiple boundaries.^'Few see national borders as the main line of demarcationof their activities.

The national state also produces what I call a legibilityeffect, following Scott's (1998) development on legibilitypractices. However, as Scott himself suggests, govern-ments are not the only actors who "see like a state."Notably in the South, NGOs and trans-state institutionsfrom the World Bank to the IMF now perform

20. Emily's List and the Sierra Club in the United States and theGerman Greens suggest that the eapacity of social move-ments—feminist, ecological, or other—to avoid national-statelikeinstitutionalization is not as evident as once thought.21. Thus, almost all separatist movements have branches outsidethe geopolitical borders of the state they contest.

—sometimes better—on that score and produce similarif not more potent legibility effects. UNESCO or ILOstatistics are more reliable than those of quite a few na-tional governments. NGOs' capacity to plan effectivelyat the local and regional level all over the South and theWorld Bank's or the IMF's power to envision and promoteeverywhere a future based on their assessment—however questionable—of the present have now moveda number of state practices away from the national. Forbetter and for worse, these are all, analytically, statehkeinstitutions.

Since most state effects can be captured in part throughthe subjects they help to produce, ethnographers are wellpositioned to follow this worldwide displacement ofstate functions and practices. To give one obvious ex-ample, we are well equipped to follow NGOs "on theground," to evaluate their capacity to interpellate andthe conscious acceptance or rejection of that interpel-lation. Kamran Ali's ethnography of a family-planningcampaign in Egypt—which involves USAID, interna-tionally funded NGOs, and the national govern-ment—suggests that one of the potential outcomes ofthe campaign is the production of newly atomized "mod-ern" subjects (Ali 1996, 2000). I read Ali as saying thatnongovernmental and governmental practices combinein the production of quite new but quite "Egyptian" cit-izens. Similarly, NGOs attempting to reform "streetchildren" in Mexico City are also producing new butMexican subjects, with a different mixture of accom-modation and resistance on the part of the citizenry soshaped (Magazine 1999). Indeed, the extent to which theemerging subjects recognize the statelike nature of non-governmental organizations and institutions varies. Still,there are indications that awareness of their role isincreasing.^^

NGOs are only the most obvious cases begging for anethnography of state effects. We need to note, however,that they fit within a more general movement of pri-vatization of state functions (e.g., Hibou 1999) of whichthe rise of privately run prisons, the proliferation of pri-vate armies in Africa and Latin America, and the pri-vatization of public enterprises worldwide are other ev-ident manifestations. Only careful ethnographies willtell us the extent to which these—or less visible emer-gent manifestations—produce state effects.

Are national governments left only to guard their bor-ders—and quite ineffectively at that? The three storieswith which I started this paper suggest that government

22. Beatrice Pouligny (personal communication) reports that someHaitians say in reference to NGOs: "yo ffe leta" (literally, "theymake the state"), which in Haitian parlance suggests that they haveidentified a site of power equal to and capable of challenging thestate but also the makings of a potential bully. (The same word canmean "state" or "bully" in Haitian.) At least some street childrenin Mexico seem to be aware of the social overlap and flows betweenthe personnel of state agencies and that of NGOs, an overlap thatis not unique to Mexico; I read Magazine as saying that the gov-ernmental/nongovernmental divide is not significant for the streetchildren.

TROuiLLOT Close Encounters of the Deceptive Kind \ 133

still performs this role." More important, regardless ofthe relative effectiveness of governments at border pa-trol, the national state still produces—and quite effec-tively among most populations—a spatialization effect.Citizens all over the world may reject the slogan that allnationals are in the same hoat, but they remain awarethat "we" (however defined) do live in a place usuallydefined in part hy a political horder.

While the spatialization effect may also be producedin other sites, national governments are less likely to letgo of their power in this domain. Indeed, with the spec-tacular exception of the European Union—a truly in-novative and changing formation of which we cannoteven guess the long-term political consequences withinand outside of Europe—national states are likely to holdon to their power to define political boundaries. First, ina context marked by the obvious incapacity of nationalstates to function as cultural containers, the protectionof borders becomes an easy political fiction with whichto enlist support from a confused citizenry. Second, theright to define houndaries remains a fundamental com-ponent of sovereignty to which national governmentsmust cling in an age in which many state functions areheing performed elsewhere. To put it hluntly, nationalstates produce countries, and countries remain funda-mentally spatial. Hence, quite understandably, most hu-man beings continue to act locally most of the time, evenwhile many more now claim to think glohally. Anthro-pology's challenge for this century may very well he topay deserved attention to the tensions inherent in thatcontradiction.

The respatialization of various state functions and ef-fects is taking place in a context already marked hy thedifferential respatialization of markets. These incongru-ent spatialities inevitahly produce tensions in the loca-tion of state power and in citizens' perception of andreaction to its deployment. An anthropology of the statemay have to make these tensions a primary focus of itsresearch agenda. These tensions will he found not onlyin organized politics but in the many practices throughwhich citizens encounter not only government but alsoa myriad of other statelike institutions and processesthat interpellate them as individuals and as members ofvarious communities. In short, anthropology may notfind the state ready-made, waiting for our ethnographicgaze in the known sites of national government. Gov-ernment institutions and practices are to be studied, ofcourse, and we can deplore that anthropology has notcontributed enough to their study. However, we may alsohave to look for state processes and effects in sites lessohvious than those of institutionalized politics and es-tahlished hureaucracies. We may have to insist on en-

23. They also suggest that it is not always efficient—or at least thatits performance is now marred hy increased amhiguity. After all,Sen did go to Davos and receive a puhlic apology from the Swissgovernment. Since 1999 Germany has recognized jus solis (citi-zenship right hy hirth) as well as /us sanguinis (right hy descent).Other difficulties of ethnic Turks are now heing addressed byGerman courts—one more sign if needed of this glohal expansionof judicial rhetoric and reach.

counters that are not immediately transparent. We mayindeed have to revert to the seemingly timeless hanalityof daily life.

Comments

CHRIS HANNMax Planck Institute for Social Anthropology,Postfach 110351, 06017 Halle/Saale, Germany. 5 ix 00

This is a stimulating contrihution. Political anthropol-ogy as a specialized suhdiscipline originated with theefforts of scholars like Fortes and Evans-Pritchard (1940)systematically to explore political organization in con-ditions where nothing like the modern state existed. Theproblem is posed anew in an age when that modern state,always a highly unrealistic ideal type, has heen seriouslyeroded. Political anthropologists have regularly been ac-cused of ethnocentrism for hasing so much of their the-orizing on a historically specific version of the modernstate. Yet most specialists have held onto the term, andso indeed does Trouillot himself, appropriately "en-larged" and demystified by a galaxy of Western Marxists.

I admire Trouillot's substantive diagnosis of globali-zation, which is historically informed and acutely sen-sitive to widening social inequalities. He draws usefuldistinctions and shows that consumption is the sole do-main in which strong claims for glohal integration mayapproximate reality. On the whole he strikes a sensiblebalance, though he may underestimate the continuingforce of national states and exaggerate the exceptional-ism of the European Union, at least as it currently func-tions. The "daily presence of the Other" in the form ofthe effiorescence of ethnic restaurants does not, it seemsto me, significantly undermine a national state such asthe British. Trouillot overlooks the extent to which themost popular media and sports continue to reinforce thenational "containers."

Beyond this general point, area specialists will surelyquihble over detail. As an East Europeanist, I would pointout that foreign direct investment has made a hig dif-ference in this region in recent years, notahly in Hungary.Contrary to Trouillot's claim (n. 20), the "identificationeffects" of some "peripheral states" in this region haveheen strong. Putting these two facts together helps ex-plain why increasing numbers in Eastern Europe nowoppose entry into the European Union, which they fearwill lead to still greater economic domination hy theWest and loss of identity.

Trouillot's call for novel ethnographic approaches iswelcome. One might have wished, perhaps in place ofthe neo-Marxist theory, for more suhstantive discussionof the many ways in which political anthropologists haveset ahout this task in the past. For example, there existsfor many parts of the world a literature on local factionsand on patron-client relations which takes as a centraltheme the impact of (central) states on (local) peripheries.


sometimes formulated in dialectical models of interac-tion. Surely some of this work could prove useful as weexplore new forms of interaction hetween the local andthe glohal?

I miss, too, any discussion of the different forms andtypes of state developed by several generations of polit-ical anthropologists, for example, in explaining its evo-lution (Claessen and Skalnik 1981) or in documentingthe variety of contemporary postcolonial states (Chahal1986). Lumping together all the states of suh-SaharanAfrica seems unhelpful. The recent work of John Gled-hill (2000) reviews ways in which anthropologists andpolitical scientists can usefully work together, going he-yond mere typologies, to reach better understandings ofhow different kinds of state achieve their effects (andhow they fail to).

It is misleading to characterize Radcliffe-Brown as amethodological individualist. In the more commonlycited sentence that follows immediately after Trouillot'slengthy quotation, Radcliffe-Brown wrote that "the po-litical organization of a society is that aspect of the totalorganization which is concerned with the control andregulation of the use of physical force." Some find thistoo narrow, and Radcliffe-Brown himself was also inter-ested in "moral coercion." But this is at least a cleardefinition of the task.

Trouillot's own prescription of seeking out four typesof "statelike effect" lacks this virtue of empirical clarity.One wonders why he needs to hold onto the word "state"at all. If "state" has been oversimplified and reified byotber academic disciplines and even by some past an-tbropologists, and if tbe force of tbe national state as a"container" is waning even wbere it was once strong,tben wby not just drop it, or at least demote it from tbeprivileged position it bas always beld in political an-tbropology? If tbe generation of Fortes and Evans-Prit-cbard failed to avoid etbnocentrism because it upbeld anideal type of tbe modern state as it set about analyzingpremodern systems, Trouillot remains vulnerable tosimilar criticism in bis pursuit of postmodern systems.Tbe more radical break would be to develop new toolsfor an antbropology/etbnograpby of force or power. In-stead of arguing tbat some NGOs or tbe World Bank nowexercise "statelike power" we would be deprived of tbatsbortcut and obliged to specify tbat power morecarefully.

If tbe key question is bow to describe and to under-stand cbanging forms of power, tben, to adapt tbe au-tbor's own comments on Radcliffe-Brown, "a generousreading of Trouillot, wbicb would prune out tbe addedpbilosopbical baggage of bis scbool and times, still leavesus witb a powerful answer."

LASZL6 KIJRTIDepartment of Political Sciences, University ofMiskolc, Miskolc, Hungary H-3S15 {[email protected]). II IX 00

Trouillot's tbesis is simple and useful for antbropologistsworking at tbe dawn of tbe 3d millennium: it is bigb

time to begin to construct new etbnograpbies of tbestate. By giving us an "exploratory exercise," Trouillotwants us to recognize bow relevant tbe state is becomingfor antbropologists. Remarking on Nagengast's (1994:116) argument, be claims tbat antbropologists bave notgiven enougb attention to tbe state—its formation, struc-ture, and institutionalization. In fact, be argues tbat weoften use "state" wbere "government" would do. He sug-gests tbat for bim an understanding of tbe state beginswitb tbe study of Gramsci and bis later followers sucbas Altbusser, Miliband, Tbomas, Scott, Poulantzas, andBalibar. Tbis list reads like one from tbe 1960s, as ifnotbing bad bappened since. Strangely, Trouillot doesnot include in bis tbeorization any of tbe results of tbeFrankfurt Scbool, a gap tbat is especially questionablebecause many of tbe questions be asks bave also beenaddressed by illustrious representatives of tbat scboolsucb as Habermas, Horkbeimer, Adorno, Miincb, andLubmann. At tbe same time, tbere are works morewitbin tbe antbropological tradition tbat address arcbaicstate formations (Feinman and Marcus 1998), secular andreligious regimes (Moen and Gustafson 1992, Wolf 1991),state bureaucracies (Herzfeld 1993, Bailey 1991), andstate bierarcby as related to capitalistic labor formationas well as nationalism (Hoppe and Langton 1994, Weber1977). It is clear from tbese works tbat tbe notion of tbe"state" is dynamic and far from uniform, bence its var-ious adjectives sucb as "incboate," "expansionist," "des-potic," "bureaucratic," "militaristic," "mature," "mer-cantile," "segmentary," "city," "liberal," "dictatorial,"and so on. Despite tbe longstanding antbropological in-terest in tbese categories, none of tbese works figure intbe "antbropology of tbe state in tbe age of globaliza-tion." Of course, one could argue tbat none of tbem dealdirectly witb what Trouillot is addressing here.

What I find intriguing in Trouillot's article is that hedoes not remain at the level of classical (Marxist) con-cepts or traditional "state-level" inquiries but proceedsseveral steps furtber. He argues tbat tbere is an inter-esting duality emerging: on tbe one band, tbere is a con-ceptualization tbat "globalization renders tbe state in-creasingly irrelevant," and on the other hand the state,especially tbe penal state, has increased its presence inour lives everywhere. "Capitalism" and "globalization"are two terms addressed in bis essay, and it is obviousfrom Trouillot's treatment tbat be does not sbare tbecurrent entbusiasm about eitber of tbem. I sbare bis viewtbat "globalization does not mean tbat tbe world econ-omy is now integrated into a single space." Fine-tunedanalyses sbould be able to support or, alternatively, un-dermine Trouillot's idea about tbe contradictory devel-opment of tbe economic modes of spatialization acrosstbe globe and its consequent polarization. Indeed, polar-ization and bopelessness are tbe key concepts of bistbesis.

Surely, tbis is not an idyllic picture: world oligopoliesare increasing, witb fewer multinational corporationscontrolling most major commodities on tbe world mar-ket. Not only are large cbunks of regions simply beingleft out of current developments but also states are be-

Close Encounters of the Deceptive Kind \ 135

coming increasingly hierarchicized as some becomepoorer and others sell themselves to more prosperousneighbors. Increasingly, as we have seen from recentevents in the former colonial states and in East CentralEurope, states are becoming the dumping ground of thedeveloped West, causing further division among them.With the collapse of the Soviet bloc and the cold war,even North Atlantic societies, including the U.S.A., arelosing their grip on their citizens. For Trouillot all thisleads to a "fragmented globality," one in which states,especially nation-states, are becoming superfluous. Intheir places new social, religious, and political move-ments and nongovernmental sites have emerged, pro-ducing powerful state effects of their own.

But is the world so fragmented because of contem-porary globalization, or are long-term processes also atwork here? Have not historical treatises—especiallythose of Immanuel Wallerstein—taught us that this hasbeen going on since mercantile capitalism arose in the15th and 16th centuries? Similarly, does this fragmen-tation really entail less power and importance for na-tional regimes and nation-states as Trouillot wants usto believe? Yes and no. In his rather abstract treatmentTrouillot provides scant evidence for this. Relying onPoulantzas, he reinvigorates the argument that there isevidence of a worldwide deplacement of state functionsand practices, notably through three kinds of effect: iden-tification, legibility, and spatialization. Yet, regimes andstates are also less likely to give up their traditional roleof defining political boundaries. T"hus, "national statesproduce countries, and countries remain fundamentallyspatial." But regions, groups, and nationalities can alsocreate national states. There is a Kurdish nation andthere is a Kurdistan even though at the moment thereis no Kurdish state. I wonder for how long. What aboutthe Palestinians, Kashmiris, and East Timorese who arewilling to fight for their states? Will the Corsicans, theBasques, the Irish in Northern Ireland, and the EuropeanGypsies follow in their footsteps?

Moreover, states-certainly new states and transform-ing states such as these of recently liberated Eastern Eu-rope or postcolonial Africa, Asia, and Latin Amer-ica—will also want to maintain a tight grip elsewhere.Despite global economic forces, national economies lit-erally ground transnational forces. As Saskia Sassenwrites, "National and global markets as well as globallyintegrated operations require central places where thework of globalization gets done" (1999:179). I should addhere, on the basis of the experiences of the past ten yearsof freedom, capitalism, and democracy—inarguably allnegotiable and contested terms—in the former Easternbloc countries, that these new states also cling desper-ately to their roles of defining citizenship, military ser-vice, national security, and (national) education. Indeed,many airlines around the world remain in state owner-ship; media waves are also owned by states, and conse-quently major radio and television stations will be instate hands for many years to come. Primary, secondary,and higher education are also state-controlled, and mostresearch and scientific institutions are state-owned or

heavily monitored. Similarly, while they celebrate theirfreedom and autonomy, most puhlishing, art, and theatrevenues are connected, if not ideologically then econom-ically, to state finances and budgetary considerations.

Seen this way, the connection between the state andnonstate civil society, at least in Europe, will remainstrained and contradictory, a point Trouillot stresses.But—and I am not sure Trouillot agrees with me onthis—the European Union, for him "a truly innovativeand changing formation," while it certainly parades as aunique transnational political body, is financed by statesand citizens of West European nation-states. Aid distrib-uted by the various programs of the EU, the Council ofEurope, or the European Commission passes throughstate hands before reaching regional or local organiza-tions. This is a contradiction that deserves more an-thropological attention.

Anthropologists need to pay more attention to the in-terplay of globalization and states as well as that of statesand purportedly nonstate spheres. All too often "gloh-alization" has been used to render worldwide consum-erism meaningful in scholarly terms (Jameson and Mi-yoshi 1999). In a similar vein, "multiculturalism,""transnationalism," and "interculturalism" need to beunderstood and analyzed in their local settings (Baumann1999/ Greenhouse and Kheshti 1998, Sassen 1999). Forcalling attention to these important anthropological ar-eas, Trouillot deserves applause.

Reply

MICHEL-ROLPH TROUILLOT

Chicago, IK, U.S.A. 30 ix 00

I am grateful to Hann and Kurti for their appreciativecomments. I am particularly pleased that this appreci-ation comes from specialists in Eastern Europe, an areaof the world where some of the contradictions now mar-ring our understanding of the state are most salient.

Implicit in this article is an epistemological positionthat is unabashedly antiempiricist and that should bebrought forward for the purpose of this exchange. To putit most simply: can the object of study be reduced to theobject of observation? The extreme empiricist answer tothat question tends to be a naive yes. This answer re-duces most matters of methodology to matters of re-search techniques and mistakenly assumes all empiricalstudies to be necessarily empiricist in one form oranother.

Variants of this answer tend to dominate research pro-grams in all the social sciences. Cultural anthropol-ogy—as an empirically based discipline—tended to gowith the flow (but vide Levi-Strauss). Only in recentyears has a growing number of anthropologists refusedto avoid the issue of the epistemological status of eth-nography. This is not the place to review that literature,but it is important to note that many critiques of eth-


nography assume the theoretical conflations inheritedfrom empiricism, thus accepting—or rejecting—en hlocthe value of the empirical as framed by empiricism.

How does all this relate to the study of the state inthe age of globalization?

Since the last quarter of the 20th century, hoth thespeed and the contradictory directions of glohal flowshave contrihuted to a hlurring of the functions and thehoundaries of the traditional ohjects of ohservation ofthe social sciences. One of the most affected ohjects is"the state," in part hecause glohalization produces spa-tialities—and identities—that cut through nationalhoundaries more obviously than before, in part becausethe social sciences have tended to take these very sameboundaries and identities for granted.

My clamoring about these changes may have givenboth Hann and Kurti the impression that I am too closeto the globalitarists, although both acknowledge that Ispecify precisely what I mean by globalization. Thus, Iagree with Kurti's evaluations of current historicaltrends. What he perceives as disagreements may he dueto misreadings or suhtle shifts in emphasis. I certainlyagree with him that long-term processes are at work inwhat we now call globalization. I also agree that theEuropean Union makes sense only against the back-ground of national states, that Eastern European govern-ments cling to their role in defining citizenship. Assess-ing Benedict Anderson's infiuential work, I suggested afew years ago that the nation is not an imagined politicalcommunity but an imagined community projectedagainst politics, more specifically against state power(Trouillot 1990:25-26). In short, I do not think that na-tional states have become irrelevant as containers for theEnglish or the French or as projects for Palestinians,Kashmiris, Kurds, Nevisians, Basques, Martinicans,Puerto Ricans, Gorsicans, or Gypsies, to cite only a veryfew. Rather, my contention is that both the resistanceand the efficiency of these containers and the feasihilityand desirability of these projects now face qualitativelynew ohstacles because of globalization.

Any of the above examples can illustrate the contra-dictions and tensions that mark our times. While theEuropean Union indeed rests upon the power of nationalgovernments, it is also developing new forms of trans-national sovereignty and a new legal order (Bermann etal. 1993). There and elsewhere, while the state continuesto he relevant, that relevance is not encapsulated en-tirely—if indeed it ever was—by national governments.Further, other institutions are now acting in a statelikemanner and producing statelike effects. We cannot sim-ply say that the state is an ideal type and proceed as ifnational governments were mere historical manifesta-tions of that type—not with NGOs fulfilling many func-tions once in the purview of government ministries, notwith drug cartels or private armies harnessing more en-forcement power than the national police. The extraor-dinary power that the IMF has assumed over the livesof millions of human beings in the past 20 years cannothe forced into a residual category such as the "interna-tional." In short, my starting point is that we can no

longer avoid the issue of the relation hetween the ohjectof ohservation and the object of study.

Yet my response to this difficulty, new as it may seem,is simple and old-fashioned in its antiempiricism: thestate never was an ohject of observation. It was alwaysa construction—at worst an ideological construction, atbest a theoretical construction, that is, an ohject of study(Poulantzas 1972). Therefore the theoretical task is tolocate conceptualizations of the state upon which we canbuild this object of study in ways that account hoth forrecent history and for the ideological role of the state.Both Hann and Kiirti acknowledge the necessity of thatsearch. Both also allude to lacunae in my handling of it.Let me explain some of the silences.

First, this text was meant to he not a review articlehut an essay that I still view as quite exploratory. Second,some of the writings mentioned by Hann and Kurti as-sume a state functioning, even if poorly, along the linesinherited from the 19th century. To take Mexico or Peruas examples, it seems to me judicious to posit that whatpatron-client ties meant in the 1950s may have radicallychanged and should be open to new investigations. Suchinvestigations require that we prohlematize anew therelation between object of observation and object ofstudy.

I am not satisfied with the tradition that would simplycast the state as an "ideal type" (Hann) for two reasons.First, in spite of Max Weber's careful construction of thatnotion, the general tendency is to posit the ideal type asa construction and then proceed as if that caveat solvedthe prohlem of the object of observation once and for all.Second, even in Weber, ideal types function better whenthe relation hetween the two ohjects—the historical par-ticulars "out there" and the object to be theorized—isassumed to he known and, therefore, not suhject to pro-found changes.

Since I suspect that the nature, the role, and the func-tions of national governments are going through pro-found changes due to globalization, I find a better anchorin what Hann calls "a galaxy of Western Marxists." YetI have neglected a number of stars, most notably theMarxist writings that promote an instrumentalist notionof the state. Rather, I emphasize the tradition that ex-plicitly addressed the illusory character of the state andyet saw the need to construct it as an object of studyonce removed from "government" and thus twice re-moved from an empirical given "out there." Thus, I amholding onto not merely a term or a school hut a con-ceptual lineage and a theoretical apparatus that isevoked—if not fully deployed—every time that word isused.

If that theoretical apparatus is as sound as I think itis, if it is indeed the hest ahle to help us understand newhistorical forms, then the next issue is methodological.If the state is not a given "out there," what then is theobject of observation? The answer to this question mustproceed from the conceptualization. We cannot expectthe ohject of ohservation to come to the ethnographerwith "empirical clarity," lest we find in the field exactlywhat we came to find. Nor can we attrihute a priori all


deployments of power to the state—a theoretical movethat would implicitly reject most of the literature on thestate and most of the literature on power.

My development of the notion of state effects, asadapted from Poulantzas, is nothing but a small contri-bution to the construction of this object of observation.Since that object cannot be an empirical a priori, we needmiddle-ground notions that can help ethnographers iden-tify the actions, ideas, and facts that will constitute itin each particular case, I see the notion of state effectsas one of many possible methodological tools in thatsearch for the relevant empirical material. It makes thetask manageable inasmuch as it calls the ethnographer'sattention to particular forms of power deployment. Yetit does not preclude novelty inasmuch as it leaves openthe circumstances under which these effects obtain.Thus, it can be adapted to various situations in and outof the North Atlantic, In the end, the ethnocentrism ofindividual theorists matters less than anthropology'scontribution to disabling the methodological ethnocen-trism that has characterized the social sciences.

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