Governing Cultures Governing Cultures Anthropological Perspectives on Political Labor, Power, and Government Edited by Kendra Coulter and William R. Schumann GOVERNING CULTURES Copyright © Kendra Coulter and William R. Schumann, 2012. Softcover reprint of the hardcover 1st edition 2012 978-1-137-00921-0 All rights reserved. First published in 2012 by PALGRAVE MACMILLAN® in the United States—a division of St. Martin’s Press LLC, 175 Fifth Avenue, New York, NY 10010. Where this book is distributed in the UK, Europe and the rest of the world, this is by Palgrave Macmillan, a division of Macmillan Publishers Limited, registered in England, company number 785998, of Houndmills, Basingstoke, Hampshire RG21 6XS. Palgrave Macmillan is the global academic imprint of the above companies and has companies and representatives throughout the world. Palgrave® and Macmillan® are registered trademarks in the United States, the United Kingdom, Europe and other countries. ISBN 978-1-349-43601-9 ISBN 978-1-137-00922-7 (eBook) DOI 10.1057/9781137009227 Library of Congress Cataloging-in-Publication Data Governing cultures : anthropological perspectives on political labor, power, and government / edited by Kendra Coulter and William R. Schumann. p. cm. 1. Political anthropology. 2. Government policy. 3. Legislative power. I. Coulter, Kendra, 1979– II. Schumann, William R. GN492.G67 2012 306.2—dc23 2012010456 A catalogue record of the book is available from the British Library. Design by Newgen Imaging Systems (P) Ltd., Chennai, India. First edition: September 2012 Contents Acknowledgments v ii 1 Government Matters: Intellectual Labor and the Work of Governing 1 Kendra Coulter and William R. Schumann 2 Navigating the Illegible State: The Political Labor of Government in Mexico 21 Tara A. Schwegler 3 A Project of Governing and its Contradictions: Maternal-Infant Care in Highland Ecuador 4 7 A. Kim Clark 4 Governing Beef: Program Implementation, Unintended Consequences, and BSE Control in Alberta 69 Alan Smart and Josephine Smart 5 Selling Clear Red Water: The Identity Politics of Governing in the National Assembly for Wales 9 3 William R. Schumann 6 Legislative Authenticity and the Politics of Recognition: Being a Ma¯ori Member of the New Zealand Parliament 1 11 Ilana Gershon 7 Gendering Government: Political Labor and the Production of Policy and Political Culture 137 Kendra Coulter 8 The Work of Being Governed: From the Welfare State to the “Big Society” in Britain 159 Susan Brin Hyatt vi Contents 9 The Will To End Hunger in the Age of Security: Food Security, National Security, and Community- Based Food Security in the United States 183 David V. Fazzino II 10 The Work of Governing 2 09 John Clarke List of Contributors 2 33 Index 2 35 Acknowledgments A s first-time editors and junior scholars interested in propelling anthropological analyses of government, the compilation of this book was itself a kind of political work. Through sessions at the Canadian Anthropology Society Annual Meetings in 2008 and 2009, and many, many discussions in person, on the phone, and via email, we worked through the struggles and possibilities of charting new ground in the anthropology and ethnography of politics. We are pleased with the result and hope this book will inspire future research, debate, and political action. Like all political work, intellectual labor is a collective endeavor. We are grateful to each of the contributors for their thoughtful work and dedication to this volume, and to advancing anthropological con- tributions to the study of government and politics. We thank Thomas Wilson for his encouragement and guidance in the early stages of this project. The capable workers at Palgrave Macmillan, particularly Robyn Curtis, are acknowledged with gratitude. I extend an enthusiastic thank you to my coeditor, Billy Schumann, for his sincere commitment, insightful contributions, and abundantly good humor. It was a pleasure to work with such a dedicated scholar and genuine person who managed to laudably balance commitment to his family with the large workload of coediting this book. Yet I still want to thank Billy’s family for their patience as we toiled with each stage of this project. The encouragement and insights of Kim Clark, John Clarke, Gavin Smith, Krystyna Sieciechowicz, Richard Lee, and Marjorie Griffin Cohen were greatly appreciated as I researched gov- ernment and grappled with how anthropologists can best articulate and analyze the production of politics. I owe my mother, Rebecca Priegert Coulter, immense thanks for a lifetime of personal and intellectual guidance, and for instilling in me a desire to bravely and boldly chart new ground, while always learning from history. I also viii Acknowledgments want to acknowledge the nonhuman members of my family, Buster, Macey, and Solidarity (Kozzie), whose joy and love have been indis- pensable, especially when the human world of scholarly and political work becomes most trying. To John Drew I say a very loving thank you, for his unwavering support of my work, my hopes, my mind, and my heart, and for bringing me immeasurable happiness. KENDRA COULTER I would like to acknowledge the effort and vision of my coeditor, Kendra Coulter, who has consistently met and exceeded the demands of this project. I thank Jessie, Garland, and Brecon, without whom I would not have the inspiration to be a teacher and scholar. I also thank my family and friends who have always been a source of sup- port. Finally, I am gratefully and forever indebted to Pat Beaver who has been a mentor and friend at every step of my intellectual journey. WILLIAM R. SCHUMANN 1 Government Matters Intellectual Labor and the Work of Governing Kendra Coulter and William R. Schumann G overnments matter. Governments initiate, manage, reconstruct, and/or retract vital public services such as health care, education, environmental protection, and social welfare. Governments influ- ence employment, labor relations, investment, and development. Governments affect projects of war and peace. Governments define and enforce the terms of citizenship and immigration, and shape how cultural ideals of belonging, value, and morality are reproduced and practiced. Yet none of these projects are complete or entirely uni- fied. Governments are also sites of struggle, possibility, contradiction, and compromise, and governing is always dependent on the complex interactions of social actors operating across legal, institutional, and cultural domains. Accordingly, this collection demonstrates how anthropologists can and do enhance our understanding of governing, principally by advancing ethnographically grounded analyses of the ideas and prac- tices of those who govern. The chapters unpack the work of govern- ing to illuminate how governments are produced, reproduced, and contested in local and state-level bureaucracies; in local, regional, and national parliaments; and in other multisited, multileveled govern- ing contexts. Through anthropological lenses, the social action and strategic inaction that justify, modify, and reproduce political power and social divisions are revealed. The contributors explore govern- ment work as negotiated within and across various social, political, and economic terrains, and through social, political, and economic discourses. To borrow from parallel discussions about ethnographic 2 Kendra Coulter and William R. Schumann studies of policy communities, we aim to marshal the theories and methods of anthropological inquiry to explain “how taken-for-granted assumptions channel policy debates in certain directions, inform the dominant ways policy problems are identified, enable particular clas- sifications of target groups, and legitimize certain policy solutions while marginalizing others” (Wedel et al. 2005: 34), thereby foster- ing broader and deeper understanding of government as socially con- structed. Such a multifaceted and influential political, economic, and cultural site begs for careful and diverse ethnographic exploration. By advancing the idea of “governing cultures,” we highlight the mul- tiple and dynamic relationships between culture(s) and government(s). The impacts of governing have often been a focus of ethnographic research. Less common in anthropology, however, are analyses of specific government cultures or studies of the cultural terrains that interpenetrate and shape government sites. Accordingly, this volume emphasizes the importance of analyzing such dynamics, and how actual practices of governing shape and are shaped by political workers in diverse cultural contexts. Across the social sciences, the keywords “government,” “govern- ing,” “governance,” and “governmentality” are used to identify the various complexities of legal-institutional, social, material, and dis- cursive frameworks that define political rule (see chapter ten by John Clarke in this volume). We explore the commonalities and differences across these approaches and seek to bring anthropology into broader discussions about politics and power. In our view, a cultural perspective on government is as essential to understanding the exercise and repro- duction of political power as the legal and institutional approaches that characterize other fields of government studies. At the same time, akin to colleagues in political science and allied disciplines who are taking seriously the value of ethnographic methods in their work (e.g., Schatz 2009), we seek to highlight the value of studying government sites as a means of broadening and deepening anthropological inquiry. Anthropology has been linked to government from the discipline’s earliest days, even when acts of governing were not the explicit focus of anthropological research. The study of “confederation, or the union of bodies . . . into societies for governmental or other purposes,” was proposed as a subset of anthropological inquiry as early as the late nineteenth century (Brinton 1892: 269). Even if few anthropologists took up this call at the time, the rationale behind such a proposal is obvious in retrospect. Government agents and agencies had substan- tial impacts on the non-Western cultures that were the initial subjects of ethnographic research. Powerful government forces such as the Bureau of Indian Affairs in the United States and numerous European