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    http://cnc.sagepub.com/Capital & Class

    http://cnc.sagepub.com/content/28/1/85

    The online version of this article can be found at:

    DOI: 10.1177/0309816804082001062004 28: 85Capital & Class

    Andreas Bieler and Adam David Mortonneo-Gramscian perspectives in International Relations

    A critical theory route to hegemony, world order and historical change:

    Published by:

    http://www.sagepublications.com

    On behalf of:

    Conference of Socialist Economics

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    85Neo-Gramscian perspectives in IR

    Situated within a historical materialist problematic

    of social transformation that deploys many of the

    insights of the Italian Marxist Antonio Gramsci, a

    crucial break emerged, in the s, in the work of

    Robert Cox from mainstream International Relations

    (IR) approaches to hegemony. This article provides a

    comprehensive state-of-the-discipline overview of

    this critical theory route to hegemony, world order

    and historical change. It does so by outlining the

    historical context within which various diverse but

    related neo-Gramscian perspectives emerged. Atten-

    tion subsequently turns to highlight how conditions of

    capitalist economic crisis and structural change in the

    s have been conceptualised, which inform contem-

    porary debates about globalisation. Significantly, the

    discussion is also responsive to the various controver-

    sies and criticisms that surround the neo-Gramscian

    perspectives whilst, in conclusion, directions along

    which future research might proceed are elaborated.

    Hence providing a thorough survey of this historical

    materialist critical theory of hegemony and thus forms

    of social power through which conditions of capitalism

    are reproduced, mediated and contested.

    A critical theory route tohegemony, world order andhistorical change:

    neo-Gramscian perspectives inInternational Relations

    Andreas Bieler and Adam David Morton

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    Capital & Class #8286

    Situated within a historical materialist problematic of

    social transformation and deploying many insights

    from the Italian Marxist Antonio Gramsci, a crucial

    break with mainstream International Relations ()

    approaches emerged by the s in the work of Robert

    Cox. In contrast to mainstream routes to hegemony in ,

    which develop a static theory of politics, an abstract

    ahistorical conception of the state and an appeal to universal

    validity (e.g. Keohane and ; Waltz ), debate

    shifted towards a critical theory of hegemony, world order

    and historical change (for the classic critique, see Ashley

    ). Rather than a problem-solving preoccupation with

    the maintenance of social power relationships, a critical

    theory of hegemony directs attention to questioning the

    prevailing order of the world.1 It does not take institutions

    and social and power relations for granted but calls them

    into question by concerning itself with their origins and

    whether they might be in the process of changing (Cox

    : ). Thus, it is specifically critical in the sense of

    asking how existing social or world orders have come into

    being, how norms, institutions or practices therefore emerge,

    and what forces may have the emancipatory potential to

    change or transform the prevailing order. As such, a critical

    theory develops a dialectical theory of history concerned

    not just with the past but with a continual process of historical

    change and with exploring the potential for alternative forms

    of development (Cox : , -). Coxs critical theory

    of hegemony thus focuses on interaction between particular

    processes, notably springing from the dialectical possibilities

    of change within the sphere of production and the

    exploitative character of social relations, not as unchanging

    ahistorical essences but as a continuing creation of new forms

    (Cox : ). The first section of this article outlines the

    conceptual framework developed by Robert Cox, linking it

    back to Gramscis own work. This includes situating the

    world economic crisis of the s within more recent debates

    about globalisation and how this period of structural change

    has been conceptualised. Then, attention will turn to what

    has been recognised (see Morton ) as similar, but diverse,

    neo-Gramscian perspectives in International Relations ()

    that build on Coxs work and constitute a distinct critical

    theory route to considering hegemony, world order and

    historical change. Finally, various controversies surrounding

    the neo-Gramscian perspectives will be traced, before

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    87Neo-Gramscian perspectives in IR

    elaborating in conclusion the directions along which future

    research might proceed.

    A critical theory route to hegemony, world order and

    historical change

    Unlike conventional theory, which reduces hegemony to

    a single dimension of dominance based on the economic

    and military capabilities of states, a neo-Gramscian perspec-

    tive developed by Cox broadens the domain of hegemony. It

    appears as an expression of broadly based consent, manifested

    in the acceptance of ideas and supported by material

    resources and institutions, which is initially established by

    social forces occupying a leading role within a state, but is

    then projected outwards on a world scale. Within a world

    order a situation of hegemony may prevail based on a

    coherent conjunction or fit between a configuration of material

    power, the prevalent collective image of world order

    (including certain norms) and a set of institutions which

    administer the order with a certain semblance of universality

    (Cox : ). Hegemony is therefore a form of domi-

    nance, but it refers more to a consensual order so that

    dominance by a powerful state may be a necessary but not

    a sufficient condition of hegemony (Cox : ). If

    hegemony is understood as an opinion-moulding activity,

    rather than brute force or dominance, then consideration

    has to turn to how a hegemonic social or world order is

    based on values and understandings that permeate the nature

    of that order (Cox /: ). Hence it has to be

    considered how intersubjective meaningsshared notions

    about social relationsshape reality. Reality is not only

    the physical environment of human action but also the

    institutional, moral and ideological context that shapes

    thoughts and actions (Cox : ). The crucial point to

    make, then, is that hegemony filters through structures of

    society, economy, culture, gender, ethnicity, class and ideology.

    Hegemony within a historical structure is constituted on

    three spheres of activity: the social relations of production,

    encompassing the totality of social relations in material,

    institutional and discursive forms that engender particular

    social forces; forms of state, consisting of historically

    contingent state-civil society complexes; and world orders,

    which not only represent phases of stability and conflict but

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    Capital & Class #8288

    also permit scope for thinking about how alternative forms

    of world order might emerge (Cox : -). These are

    represented schematically (Cox : ):

    Figure 1: the dialectical relation of forces

    If considered dialectically, in relation to each other, then it

    becomes possible to represent the historical process through

    the particular configuration of historical structures. Social

    forces, as the main collective actors engendered by the social

    relations of production, operate within and across all spheres

    of activity. Through the rise of contending social forces,

    linked to changes in production, there may occur mutually

    reinforcing transformations in forms of state and world order.

    There is no unilinear relationship between the spheres of

    activity and the point of departure to explain the historical

    process may equally be that of forms of state or world order

    (Cox : n.). Within each of the three main spheres

    it is argued that three further elements reciprocally combine

    to constitute an historical structure: ideas, understood as

    intersubjective meanings as well as collective images of world

    order; material capabilities, referring to accumulated resour-

    ces; and institutions, which are amalgams of the previous

    two elements and are means of stabilising a particular order.

    These again are represented schematically (Cox : ):

    Figure 2: the dialectical moment of hegemony

    The aim is to break down over time coherent historical

    structuresconsisting of different patterns of social relations

    of production, forms of state and world orderthat have

    existed within the capitalist mode of production (Cox :

    Social

    World

    orders

    Forms of

    state

    relations of production

    InstitutionsMaterial

    ca abilities

    Ideas

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    89Neo-Gramscian perspectives in IR

    -). In the following, the main characteristics of the three

    spheres of activity are outlined.

    The social relations of production

    According to Cox (: -), patterns of production

    relations are the starting point for analysing the operation

    and mechanisms of hegemony. Yet, from the start, this should

    not be taken as a move that reduces everything to production

    in an economistic sense.

    Production...is to be understood in the broadest sense. It

    is not confined to the production of physical goods used

    or consumed. It covers the production and reproduction

    of knowledge and of the social relations, morals and

    institutions that are prerequisites to the production of

    physical goods (Cox : ).

    These patterns are referred to as modes of social relations

    of production, which encapsulate configurations of social

    forces engaged in the process of production. By discerning

    different modes of social relations of production it is possible

    to consider how changing production relations give rise to

    particular social forces that become the bases of power within

    and across states and within a specific world order (Cox

    : ). The objective of outlining different modes of social

    relations of production is to question what promotes the

    emergence of particular modes and what might explain the

    way in which modes combine or undergo transformation

    (Cox : ). It is argued that the reciprocal relationship

    between production and power is crucial. To examine this

    relationship a framework is developed that focuses on how

    power in social relations of productionmay give rise to certain

    social forces, how these social forces may become the bases

    of power in forms of state and how this might shape world

    order. This framework revolves around the social ontology

    of historical structures. It refers to persistent social practices,

    made by collective human activity and transformed through

    collective human activity (Cox : ). An attempt is

    therefore made to capture the reciprocal relationship of

    structures and actors (Cox a: ; Cox : -; Bieler

    and Morton a).

    Hegemony is thus understood as a form of class rule

    linked to social forces, as the core collective actors, engen-

    dered by the social relations of production (Overbeek ).

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    Capital & Class #8290

    For Cox, class is viewed as an historical category and

    employed in a heuristic way rather than as a static analytical

    category (Cox : -, /: ). This means that

    class identity emerges within and through historical processes

    of economic exploitation. Bring back exploitation as the

    hallmark of class, and at once class struggle is in the forefront,

    as it should be (Ste. Croix : ). As such, class-

    consciousness emerges out of particular historical contexts

    of struggle rather than mechanically deriving from objective

    determinations that have an automatic place in production

    relations (see Thompson : -; ). Yet the focus on

    exploitation and resistance to it ensures that social forces are

    not simply reduced to material aspects, but also include other

    forms of identity involved in struggle such as ethnic, nationalist,

    religious, gender or sexual forms. In short, non-class

    issuespeace, ecology, and feminismare not to be set aside

    but given a firm and conscious basis in the social realities

    shaped through the production process (Cox 1987: 353).

    Forms of state

    The conceptual framework, outlined so far, considers how

    new modes of social relations of production become estab-

    lished. Changes in the social relations of production give

    rise to new configurations of social forces.State power rests

    on these configurations. Therefore, rather than taking the

    state as a given or pre-constituted institutional category,

    consideration is given to the historical construction of various

    forms of state and the social context of political struggle.

    This is accomplished by drawing upon the concept of

    historical bloc and by widening a theory of the state to include

    relations within civil society.

    An historical bloc refers to the way in which leading social

    forces within a specific national context establish a relationship

    over contending social forces. It is more than simply a political

    alliance between social forces represented by classes or

    fractions of classes. It indicates the integration of a variety of

    different class interests that are propagated throughout society

    bringing about not only a unison of economic and political

    aims, but also intellectual and moral unity...on a universal

    plane (Gramsci : -). The very nature of an historical

    bloc, as Anne Showstack Sassoon (: ) has outlined,

    necessarily implies the existence of hegemony. Indeed, the

    universal plane that Gramsci had in mind was the creation

    of hegemony by a fundamental social group over subordinate

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    91Neo-Gramscian perspectives in IR

    groups. Hegemony would therefore be established if the

    relationship between intellectuals and people-nation, between

    the leaders and the led, the rulers and the ruled, is provided

    by an organic cohesion ...Only then can there take place an

    exchange of individual elements between the rulers and ruled,

    leaders...and led, and can the shared life be realised which

    alone is a social forcewith the creation of the historical

    bloc (Gramsci : ).

    These issues are encompassed within the focus on different

    forms of state which, as Cox notes, are principally

    distinguished by the characteristics of their historic[al] blocs,

    i.e. the configurations of social forces upon which state power

    ultimately rests. A particular configuration of social forces

    defines in practice the limits or parameters of state purposes,

    and the modus operandi of state action, defines, in other

    words, the raison dtat for a particular state (Cox :

    ). In short, by considering different forms of state, it

    becomes possible to analyse the social basis of the state or

    to conceive of the historical content of different states. The

    notion of historical bloc aids this endeavour by directing

    attention to which social forces may have been crucial in

    the formation of an historical bloc or particular state; what

    contradictions may be contained within an historical bloc

    upon which a form of state is founded; and what potential

    might exist for the formation of a rival historical bloc that

    may transform a particular form of state (Cox : n.).

    In contrast, therefore, to conventional state-centric

    approaches in , a wider theory of the state emerges within

    this framework. Instead of underrating state power and

    explaining it away, attention is given to social forces and

    processes and how these relate to the development of states

    (Cox : ) as well as states in alternative conditions of

    development (Bilgin and Morton ). Considering diffe-

    rent forms of state as the expression of particular historical

    blocs and thus relations across state-civil society fulfils this

    objective. Overall, this relationship is referred to as the state-

    civil society complex that, clearly, owes an intellectual debt

    to Gramsci.

    For Gramsci, the state was not simply understood as an

    institution limited to the government of the functionaries

    or the top political leaders and personalities with direct

    governmental responsibilities. The state presents itself in a

    different way beyond the political society of public figures

    and top leaders so that the state is the entire complex of

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    Capital & Class #8292

    practical and theoretical activities with which the ruling class

    not only justifies and maintains its dominance, but manages

    to win the active consent of those over whom it rules

    (Gramsci : , ). This alternative conception of

    the state is inclusive of the realm of civil society. The state

    should be understood, then, not just as the apparatus of

    government operating within the public sphere (govern-

    ment, political parties, military) but also as part of the private

    sphere of civil society (church, media, education) through

    which hegemony functions (Gramsci : ). It can there-

    fore be argued that the state in this conception is understood

    as a social relation. The state is not unquestioningly taken

    as a distinct institutional category, or thing in itself, but

    conceived as a form of social relations through which

    capitalism and hegemony are expressed. It is this combination

    of political and civil society that is referred to as the integral

    state through which ruling classes organise intellectual and

    moral functions as part of the political and cultural struggle

    for hegemony in the effort to establish an ethical state

    (Gramsci : , ).

    Furthermore, different social relations of production

    engender different fractions of social forces. This means that

    foreign capital, for example, is not simply represented as

    an autonomous force beyond the power of the state but instead

    is represented by certain classes or fractions of classes within

    the constitution of the state apparatus. There are contradictory

    and heterogeneous relations internal to the state, which are

    induced by class antagonisms between nationally- and

    transnationally-based capital and labour. The state, then, is

    the condensation of a hegemonic relationship between domi-

    nant classes and class fractions. This occurs when a leading

    class develops a hegemonic project or comprehensive

    concept of control which transcends particular economic-

    corporate interests and becomes capable of binding and

    cohering the diverse aspirations and general interests of

    various social classes and class fractions (van der Pijl, ,

    ; Overbeek, , ). It is a process that involves

    the most purely political phase of class struggle and occurs

    on a universal plane to result in the forging of an

    historical bloc (Gramsci : ).

    Hegemony and world orders

    The construction of an historical bloc cannot exist without

    a hegemonic social class and is therefore a national

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    93Neo-Gramscian perspectives in IR

    phenomenon (Cox : , ). This is because the very

    nature of an historical bloc is bound up with how various

    classes and fractions of classes construct, or contest,

    hegemony through national political frameworks. Or, put

    another way, how such classes nationalise themselves

    through historically specific and peculiar socio-economic

    and political structures (Gramsci : ; Showstack

    Sassoon : -). Yet the hegemony of a leading class

    can manifest itself as an international phenomenon insofar

    as it represents the development of a particular form of the

    social relations of production. Once hegemony has been

    consolidated domestically it may expand beyond a particular

    social order to move outward on a world scale and insert

    itself through the world order (Cox : , Cox :

    -). By doing so it can connect social forces across

    different countries. A world hegemony is thus in its

    beginnings an outward expansion of the internal (national)

    hegemony established by a...social class (Cox : ).

    The outward expansion of particular modes of social relations

    of production and the interests of a leading class on a world

    scale can also become supported by mechanisms of

    international organisation. This is what Gramsci (: )

    referred to as the internal and international organisational

    relations of the state: i.e. movements, voluntary associations

    and organisations, such as the Rotary Club, or the Roman

    Catholic Church that had an international character whilst

    rooted within the state. Social forces may thus achieve

    hegemony within a national social order as well as through

    world order by ensuring the promotion and expansion of a

    mode of production. Hegemony can therefore operate at

    two levels: by constructing an historical bloc and establishing

    social cohesion withina form of state as well as by expanding

    a mode of production internationally and projecting

    hegemony through the level of world order. For instance, in

    Gramscis time, this was borne by the expansion of Fordist

    assembly plant production beyond the which would lead

    to the growing world hegemony and power of Americanism

    and Fordism from the s and s (Gramsci : -

    ).

    Pax Americana and globalisation

    In more recent times, it has been one of Coxs key objectives

    to explain additional processes of structural change,

    particularly the change from the post-World War order to

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    Capital & Class #8294

    globalisation. Cox argues that a -led hegemonic world

    order, labelledpax Americana,prevailed until the early s.

    It was maintained through the Bretton Woods system of fixed

    exchange rates and institutions like the International Mone-

    tary Fund () and the World Bank. Moreover, it was based

    on the principle of embedded liberalism, which allowed

    the combination of international free trade with the right

    for governments to intervene in their national economy in

    order to ensure domestic stability via social security and the

    partial redistribution of economic wealth (Ruggie ).

    The corresponding form of state was the Keynesian welfare

    state, characterised by interventionism, a policy of full

    employment via budget deficit spending, the mixed economy

    and an expansive welfare system (Gill and Law : -

    ). The underlying social relations of production were

    organised around the Fordist accumulation regime,

    characterised by mass production and mass consumption,

    and tripartite corporatism involving government-business-

    labour coalitions (Cox : -).2The forms and

    functions of -led hegemony, however, began to alter

    following the world economic crisis of the s and the

    collapse of the Bretton Woods system during a period of

    structural change in the world economy in the s. This

    overall crisis, both of the world economy and of social power

    within various forms of state, has been explained as the result

    of two particular tendencies: the internationalisation of

    production and the internationalisation of the state that led

    the thrust towards globalisation.

    Since the erosion of pax Americana principles of world

    order in the s, there has been an increasing international-

    isation of production and finance driven, at the apex of an

    emerging global class structure, by a transnational manager-

    ial class (Cox : ). Taking advantage of differences

    between countries, there has been an integration of production

    processes on a transnational scale with Transnational

    Corporations (s) promoting the operation of different

    elements of a single process in different territorial locations.

    It is this organisation of production and finance on a trans-

    national level, which fundamentally distinguishes globali-

    sation from the period ofpax Americana.Following the neo-

    Gramscian focus on social forces, engendered by production

    as the main actors, it is realised that the transnational

    restructuring of capitalism in globalisation has led to the

    emergence of new social forces of capital and labour. Besides

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    95Neo-Gramscian perspectives in IR

    the transnational managerial class, other elements of

    productive capital (involved in manufacturing and extrac-

    tion), including small- and medium-sized businesses acting

    as contractors and suppliers and import-export businesses,

    as well elements of financial capital (involved in banking

    insurance and finance) have been supportive of this internat-

    ionalisation of production. Hence there has been a rise in

    the structural power of transnational capital supported and

    promoted by forms of elite interaction that have forged

    common perspectives, or an emulative uniformity, between

    business, state officials and representatives of international

    organisations favouring the logic of capitalist market relations

    (Cox : ; Gill and Law : ; Gill a: -

    ). Significant contradictions are likely to exist between

    transnational social forces of capital and nationally-based

    capital. The latter, engendered by national production

    systems, may oppose an open global economy due to their

    reliance on national or regional protectionism against global

    competition. Parallel to the division between transnational

    and national capital, Cox identifies two main lines of division

    within the working class. Firstly, workers of s can be in

    conflict with workers of national companies, shadowing the

    split of capital. Secondly and related to this, there may be a

    rift between established workers in secure employment, often

    within the core workforce of s, and non-established

    workers in temporary and part-time positions at the peri-

    phery of the labour market (Cox : ). In other words,

    globalisation in the form of the transnationalisation of

    production has led to a fractionalisation of capital and labour

    into transnational and national social forces alike.

    During this period of structural change in the s, then,

    the social basis across many forms of state altered as the

    logic of capitalist market relations created a crisis of authority

    in established institutions and modes of governance. Whilst

    some have championed such changes as the retreat of the

    state (Strange ), or the emergence of a borderless world

    (Ohmae , ), and others have decried the global

    proportions of such changes in production (Hirst and Thom-

    pson ; Weiss ), it is argued here that the internation-

    alisation of production has profoundly restructuredbut not

    erodedthe role of the state. The notion of the internation-

    alisation of the state captures this dynamic by referring to the

    way transnational processes of consensus formation,

    underpinned by the internationalisation of production and

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    Capital & Class #8296

    the thrust of globalisation, have been transmitted through the

    policy-making channels of governments.3 The network of

    control that has maintained the structural power of capital

    has also been supported by an axis of influence, consisting

    of institutions such as the World Bank, which have ensured

    the ideological osmosis and dissemination of policies in favour

    of the perceived exigencies of the global political economy.

    As a result, those state agencies in close contact with the global

    economyoffices of presidents and prime ministers, treasuries,

    central bankshave gained precedence over those agencies

    closest to domestic public policyministries of labour and

    industry or planning offices (Cox : ). Across the different

    forms of state in countries of advanced and peripheral

    capitalism, the general depiction is that the state became a

    transmission belt for neo-liberalism and the logic of capitalist

    competition from global to local spheres (Cox : ).4

    From the internationalisation of the state to

    globalisation: further developments

    Although the thesis of the internationalisation of the state

    has received much recent criticism, the work of Stephen

    Gill has greatly contributed to understanding this process

    as part of the changing character of -centred hegemony in

    the global political economy, notably in his detailed analysis

    of the role of the Trilateral Commission (Gill ). Similar

    to Cox, the global restructuring of production is located

    within a context of structural change in the s. It was in

    this period that there was a transition from what Gill

    recognises as an international historical blocof social forces,

    established in the post-World War period, towards a trans-

    national historical bloc, forging links and a synthesis of

    interests and identities not only beyond national boundaries

    and classes but also creating the conditions for the hegemony

    of transnational capital. Yet Gill departs from Gramsci to

    assert that an historical bloc may at times have the potential

    to become hegemonic, thereby implying that a historical

    bloc can be established without necessarily enjoying hege-

    monic rule (Gill : ). For example, Gill argues that

    the current transnational historical bloc has a position of

    supremacy but not hegemony. Drawing in principle from

    Gramsci, it is argued that supremacy prevails, when a situation

    of hegemony is notapparent and when dominance is exercised

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    97Neo-Gramscian perspectives in IR

    through an historical bloc over fragmented opposition (Gill

    a: , , ).

    This politics of supremacy is organised through two key

    processes: the new constitutionalism of disciplinary neo-

    liberalism and the concomitant spread of market civilisation.

    According to Gill, new constitutionalism involves the

    narrowing of the social basis of popular participation within

    the world order of disciplinary neo-liberalism. It involves

    the hollowing out of democracy and the affirmation, in matters

    of political economy, of a set of macro-economic policies

    such as market efficiency, discipline and confidence, policy

    credibility and competitiveness. It is the move towards

    construction of legal or constitutional devices to remove or

    insulate substantially the new economic institutions from

    popular scrutiny or democratic accountability (Gill ,

    : ). Economic and Monetary Union () within

    the European Union () is regarded as a good example of

    this process (Gill ). New constitutionalism results in

    an attempt to make neo-liberalism the sole model of develop-

    ment by disseminating the notion of market civilisation

    based on an ideology of capitalist progress and exclusionary

    or hierarchical patterns of social relations (Gill a: ).

    Within the global political economy, mechanisms of

    surveillance have supported the market civilisation of new

    constitutionalism in something tentatively likened to a global

    panopticon of surveillance (Gill b).

    The overarching concept of supremacy has also been used

    to develop an understanding of the construction of foreign

    policy towards the Third World and how challenges were

    mounted against the in the s through the New Inter-

    national Economic Order () (Augelli and Murphy ).

    It is argued that the ideological promotion of American

    liberalism, based on individualism and free trade, assured

    American supremacy through the s and was reconstructed

    in the s. Yet this projection of supremacy did not simply

    unfold through domination. Rather than simply equating

    supremacy with dominance, Augelli and Murphy argue that

    supremacy can be maintained through domination or

    hegemony (Augelli and Murphy : ). As Murphy

    (: n.) outlines in a separate study of industrial

    change and international organisations, supremacy defines

    the position of a leading class within an historical bloc and

    can be secured by hegemony as well as through domination.

    Gramsci (: ) himself states, the supremacy of a social

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    99Neo-Gramscian perspectives in IR

    international organisations including the role of gender and

    womens movements (Lee ; Stienstra ; Whitworth

    ). There has also been a recent return to understanding

    forms of foreign policy intervention within countries of

    peripheral capitalism. This has included analysing the

    promotion of polyarchy defined as, a system in which a small

    group actually rules and mass participation in decision-

    making is confined to leadership choice in elections carefully

    managed by elites (Robinson : ). Polyarchy, or low

    intensity democracy, is therefore analysed as an adjunct of

    hegemony through institutions such as the Agency for

    International Development () and the National

    Endowment for Democracy () in the particular countries

    of the Philippines, Chile, Nicaragua, and Haiti and tenta-

    tively extended with reference to the former Soviet bloc and

    South Africa. Other recent research has similarly focused

    on the promotion of democracy in Southern Africa (Taylor

    ) as well as the construction and contestation of

    hegemony in Mexico (Morton c). Furthermore, aspects

    of neo-liberalism and cultural hegemony have been dealt

    with in a study of mass communications scholarship in Chile

    (Davies ). There are clearly a variety of neo-Gramscian

    perspectives dealing with a diversity of issues linked to the

    analysis of hegemony in the global political economy. The

    next section outlines some of the criticisms levelled against

    such perspectives and, in conclusion, indications are given

    of what direction future research might proceed.

    Welcome debate: controversies surrounding neo-

    Gramscian perspectives

    In broad outline, neo-Gramscian perspectives have been

    criticised as too unfashionably Marxist or, alternatively, too

    lacking in Marxist rigour. They are seen as unfashionable

    because many retain an essentially historical materialist posi-

    tion as central to analysisfocusing on the decisive nucleus

    of economic activity (Gramsci, : ). Hence the

    accusation that analysis remains caught within modernist

    assumptions that take as foundational the structures of

    historical processes determining the realms of the possible

    (Ashley : ). However, rather than succumbing to

    this problem, the fallibility of all knowledge claims is

    accepted across neo-Gramscian perspectives. A minimal

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    Capital & Class #82100

    foundationalism is therefore evident based on a cautious,

    contingent and transitory universalism that combines

    dialogue between universal values and local definitions within

    historically specific circumstances (Cox b: ; Cox :

    ).

    Elsewhere, other commentators have alternatively decried

    the lack of historical materialist rigour within neo-Gramscian

    perspectives. According to Peter Burnham () the neo-

    Gramscian treatment of hegemony amounts to a pluralist

    empiricism that fails to recognise the central importance of

    the capital relation and is therefore preoccupied with the

    articulation of ideology. By granting equal weight to ideas

    and material capabilities it is argued that the contradictions

    of the capital relation are blurred which results in a slide

    towards an idealist account of the determination of economic

    policy (Burnham : ). Hence, the categories of state

    and market are regarded as opposed forms of social

    organisation that operate separately in external relationship

    to one another. This leads to a supposed reification of the

    state as a thing in itself standing outside the relationship

    between capital and labour (Burnham ).

    In specific response to these criticisms, it was outlined

    earlier in this article how the social relations of production

    are taken as the starting point for thinking about world order

    and the way they engender configurations of social forces.

    By thus asking what modes of social relations of production

    within capitalism have been prevalent in particular historical

    circumstances, the state is not treated as an unquestioned

    category. Indeed, rather closer to Burnhams own position

    than he might admit, the state is treated as an aspect of the

    social relations of production so that questions about the

    apparentseparation of politics and economics or states and

    markets within capitalism are promoted. Although a fully

    developed theory of the state is not evident, there clearly

    exists a set of at least implicit assumptions about the state as

    a form of social relations through which capitalism and hege-

    mony are expressed. Moreover, ideas in the form of inter-

    subjective meanings are accepted as part of the global

    political economy itself. Yet, in contrast to Burnhams claim,

    they are not regarded as an additional independent variable

    next to material properties. Rather, the material structure

    of ideology is the principal emphasis, which demonstrates

    an awareness of the ideological mediations of the state

    through libraries, schools, architecture, street names and lay-

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    101Neo-Gramscian perspectives in IR

    out (Gramsci : -).5 Only those ideas, which are

    disseminated through or rooted in such structures, linked to

    a particular constellation of social forces engaged in an

    ideological struggle for hegemony are considered to be

    organic ideas (Bieler ). In Gramscis own words, only

    those ideas can be regarded as organic that organise human

    masses, and create the terrain on which men move, acquire

    consciousness of their position, struggle, etc.. These are

    contrasted with ideas that are merely arbitrary, rationalistic,

    or willed, based on extemporary polemics (Gramsci :

    -). This indicates an appreciation of the links intellec-

    tuals may have, or the wider social function they perform, in

    relation to the world of production within capitalist society

    to offer the basis for a materialist and social class analysis of

    intellectuals.6 It is therefore an appreciation of how ideas

    and intellectual activity can assume the fanatical granite

    compactness of . . . popular beliefs which assume the same

    energy as material forces (Gramsci : ).

    A different series of criticisms have separately centred on

    the thesis of globalisation and the internationalisation of

    the state proposed by neo-Gramscian perspectives. In

    particular, Leo Panitch has argued that an account unfolds

    which is too top down in its expression of power relations

    and assumes that globalisation is a process that proceeds

    from the global to the national or the outside-in. The point

    that globalisation is authored by states is thus overlooked

    by developing the metaphor of a transmission belt from the

    global to the national within the thesis of the international-

    isation of the state (Panitch , ). It has been added

    that this is a one-way view of internationalisation that respec-

    tively: overlooks reciprocal interaction between the global

    and the local; overlooks mutually reinforcing social relations

    within the global political economy; or ignores class conflict

    within national social formations (Ling ; Baker ;

    Moran ). The role of the state, following Panitchs (:

    ) argument, is still determined by struggles among social

    forces located within particular social formations, even

    though social forces may be implicated in transnational

    structures.

    In response, it will be recalled from the above discussion

    that the point of departure within a neo-Gramscian approach

    could equally be changing social relations of production

    within forms of state orworld order (Cox : n.).

    Indeed, Coxs focus has been on historical blocs underpinning

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    Capital & Class #82102

    particular states and how these are connected through the

    mutual interests of social classes in different countries.

    Further, following both Gramsci and Cox, the national context

    is the only place where an historical bloc can be founded and

    where the task of building new historical blocs, as the basis

    for counter-hegemony to change world order, must begin.

    Gill too, although he tends to take a slightly different tack

    on the application of notions such as historical bloc and

    supremacy, is still interested in analysing attempts to

    constitutionalise neo-liberalism at the domestic, regional and

    global levels (Gill a: ). Therefore, there is a focus

    on transnational networks of production and how national

    governments have lost much autonomy in policy-making,

    but also how states are still an integral part of this process.

    Extending these insights (Bieler and Morton ), it

    might also be important to recognise that capital is not simply

    something that is footloose, beyond the power of the state,

    but is represented by classes and fractions of classes within

    the very constitution of the state. The phenomenon now recog-

    nised as globalisation, represented by the transnationalisation

    of production, therefore induces the reproduction of capital

    within different states through a process of internalisation

    between various fractions of classes within states (Poulantzas

    : -). Seen in this way, globalisation and the related

    emergence of transnational social forces of capital and labour

    has not led to a retreat of the state. Instead, there has unfolded

    a restructuring of different forms of state through an

    internalisation within the state itself of new configurations

    of social forces expressed by class struggle between different

    (national and transnational) fractions of capital and labour.

    This stress on both internalisation and internationalisation

    is somewhat different from assuming that various forms of

    state have become simple transmission belts from the global

    to the national.

    Finally, Cox (: -, : ) has made clear that

    the internationalisation of the state and the role of trans-

    national elites (or a nbuleuse) in forging consensus within

    this process remains to be fully deciphered and needs much

    more study. Indeed, the overall argument concerning the

    internationalisation of the state was based on a series of linked

    hypotheses suggestive for empirical investigation (Cox /

    : ). The overall position adopted on the relationship

    between the global and the national, or between hegemony,

    supremacy and historical bloc, may differ from one neo-

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    103Neo-Gramscian perspectives in IR

    Gramscian perspective to the next, but it is usually driven

    by the purpose and empirical context of the research.

    Further criticisms have also focused on how the hegemony

    of transnational capital has been over-estimated and how

    the possibility for transformation within world order is

    thereby diminished by neo-Gramscian perspectives

    (Drainville ). For example, the focus on elite agency in

    European integration processes by Gill and van Apeldoorn

    would indirectly reinforce a negative assessment of labours

    potential role in resisting neo-liberalism (Strange ).

    Analysis, notes Andr Drainville (: ), must give way

    to more active sorties against transnational neo-liberalism,

    and the analysis of concepts of control must beget original

    concepts of resistance. It is therefore important, as Paul

    Cammack () has added, to avoid overstating the

    coherence of neo-liberalism and to identify materially

    grounded opportunities for counter-hegemonic action. All

    too often, a host of questions related to counter-hegemonic

    forms of resistance are usually left for future research,

    although the demonstrations during the Carnival Against

    Capitalism (London, June ), mobilisations against the

    World Trade Organisation (Seattle, November ), protests

    against the and World Bank (Washington, April

    and Prague, September ), and riots during the

    European Union summit at Nice (December ), as well

    as the G-8 meeting at Genoa (July ), all seemingly

    further expose the imperative of analysing globalisation as

    a set of highly contested social relations. Overall, while the

    point about a lack of empirical investigation into concrete

    acts of resistance is correct in many instances, it should not

    be exaggerated either. It has to be noted that an analysis of

    the current power configuration of social forces does not by

    itself strengthen this configuration nor does it exclude an

    investigation of possible resistance. Rather, the analysis of

    hegemonic practices can be understood as the absolutely

    essential first step towards an investigation into potential

    alternative developments; and resistance can only be success-

    fully mounted if one understands what precisely needs to be

    resisted. Moreover, several neo-Gramscian attempts dealing

    with issues of resistance have now been formulated and

    provide fertile avenues for further exploration (see Cox ;

    Gill, ; Morton ). The primary task of critical

    scholarship is to therefore clarify resistance to globalisation

    (Cox : ).

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    Capital & Class #82104

    The final and most recent criticisms arise from the call for

    a much needed engagement by neo-Gramscian perspectives

    with the writings of Gramsci and thus the complex

    methodological, ontological, epistemological and contextual

    issues that embroiled the Italian thinker (Germain and Kenny

    ). This emphasis was presaged in an earlier argument

    warning that the incorporation of Gramscian insights into

    and ran the risk of denuding the borrowed concepts of

    the theoretical significance in which they cohere (Smith :

    ). To commit the latter error could reduce scholars to the

    accusation of searching for gems in the Prison Notebooksin

    order to save from a pervasive economism (Gareau :

    ). To be sure, such criticisms and warnings have rightly

    drawn attention to the importance of remaining engaged with

    Gramscis own writings. Germain and Kenny also rightly call

    for greater sensitivity to the problems of meaning and

    understanding in the history of ideas when appropriating

    Gramsci for contemporary application. In such ways, then,

    the demand to remain (re)engaged with Gramscis thought

    and practice was a necessary one to make and well overdue.

    Yet the demand to return Gramsci to his historical context

    need not prevent the possibility of appreciating ideas both in

    and beyondtheir context. Rather than the seemingly austere

    historicism of Germain and Kennys demands, which limit

    the relevance of past ideas in the present, it is possible to

    acknowledge the role played by both past forms of thought

    and previous historical conditions in shaping subsequent ideas

    and existing social relations (Morton a). This method

    pushes one to consider what might be historically relevant as

    well as limited in a theoretical and practical translation of

    past ideas in relation to alternative conditions.

    Conclusion

    To summarise, it has been shown how an alternative critical

    theory route to hegemony improves on mainstream routes.

    Notably a case was made for a critical theory of hegemony

    that directs attention to relations between social interests in

    the struggle for consensual leadership rather than concen-

    trating solely on state dominance. With a particular historical

    materialist focus and critique of capitalism it was therefore

    shown how various neo-Gramscian perspectives provide an

    alternative critical theory route to hegemony.

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    105Neo-Gramscian perspectives in IR

    As a result it was argued that the conceptual framework

    developed by such neo-Gramscian perspectives rethinks preva-

    lent ontological assumptions in due to a theory of hegemony

    that focuses on social forces engendered by changes in the

    social relations of production, forms of state and world order.

    It was highlighted how this route to hegemony opens up

    questions about the social processes that create and transform

    different forms of state. Attention is thus drawn towards the

    raison dtat, or the basis of state power, that includes the

    social basis of hegemony or the configuration of social forces

    upon which power rests across the terrain of state-civil society

    relations. With an appreciation of how ideas, institutions and

    material capabilities interact in the construction and

    contestation of hegemony it was also possible to pay attention

    to issues of intersubjectivity. Therefore a critical theory of

    hegemony was developed that was not equated with dominance

    and thus went beyond a theory of the state-as-force. Finally,

    by recognising the different social purpose behind a critical

    theory, committed to historical change, this route to hegemony

    poses an epistemological challenge to knowledge claims

    associated with positivist social science.

    In a separate section, further developments by diverse,

    yet related, neo-Gramscian perspectives were outlined.

    Subsequently, a series of criticisms of the neo-Gramscian

    perspectives were discussed. Analysis can be pushed into

    further theoretical and empirical areas by addressing some

    of these criticisms. For example, in terms of further research

    directions, benefit could be gained by directly considering

    the role of organised labour in contesting the latest agenda

    of neoliberal globalisation (Bieler a and b, Strange

    ).7It is also important to problematise the tactics and

    strategies of resistances to neo-liberalism by giving further

    thought to new social movements, such as forms of peasant

    mobilisation in Latin America like the Movimento (dos

    Trabalhadores Rurais) Sem Terra(: Movement of Landless

    Rural Workers) in Brazil and the Ejrcito Zapatista de Liberacin

    Nacional (: Zapatista Army of National Liberation) in

    Chiapas, Mexico (Morton ). At a more explicitly theore-

    tical level, additional work could also be conducted in

    revealing Gramscis theory of the state and then situating this

    within a wider discussion of state theory (Bieler and Morton

    ). Overall, though, what matters is the way in which

    Gramscis legacy gets interpreted, transmitted and used so

    that it [can] remain an effective tool not only for the critical

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    Capital & Class #82106

    analysis of hegemony but also for the development of an

    alternative politics and culture (Buttigieg : ).

    Notes

    * We would like to thank Robert Cox and Kees van der Pijl for their

    comments on this article in draft as well as two anonymous referees

    of this journal, and Gerard Strange, for their supportive criticisms.

    Adam David Morton also acknowledges the financial support of an

    Economic and Social Research Council () Postdoctoral

    Fellowship (Ref.: ).

    1. Although overlaps may exist, the critical impetus bears a less than

    direct affiliation with the constellation of social thought known as

    the Frankfurt School represented by, among others, the work of Max

    Horkheimer, Theodor Adorno or, more recently, Jrgen Habermas

    (Cox a: ). Hence, Cox may not explicitly understand himself

    to be working within the fold of the Frankfurt School (Schecter

    : ). For a useful discussion of the contradictory strands and

    influences between Frankfurt School critical theory and critical

    theory see Wyn Jones ().

    2. It is worth noting that, whilst the Keynesian welfare state form is

    referred to by Cox as the neoliberal state, this precedent is not

    followed. This is because confusion can result when using his term

    and distinguishing it from the more conventional understanding of

    neo-liberalism related to processes in the late s and s,

    which he calls hyperliberalism.

    3. At first sight, this understanding of a restructured, but not eroded

    role of the state, resembles Cernys conceptualisation of the

    competition state in globalisation (Cerny a, b). Rather

    than withering away, Cerny argues that states play a crucial role as

    stabilisers and enforcers of the rules and practices of global society

    (Cerny b: ). In contrast to neo-Gramscian perspectives,

    however, the state is not understood as resting on and being

    constituted by a particular configuration of social forces. Rather,

    the state is understood as an independent actor intervening in the

    market in different ways. As a result, competition state analysis

    falls into the trap of separating economics from politics and the

    market from the state, resulting in an ahistoric analysis of different

    social forms specific to capitalism (see Burnham ). In contrast

    to competition state analysis, regulation theory places an emphasis

    on how a particular mode of regulation, constituted by the institu-

    tional ensemble of the state, is related to a specific accumulation

    regime, i.e. the way production is organised (for an overview of

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    107Neo-Gramscian perspectives in IR

    regulation theory approaches, see Jessop ). The problem here,

    however, is that theories of regulation are founded on a division of

    the world into a system of states and of multiple sovereignties and

    an identification of national modes of regulation (Dunford :

    ). As a result, the transnational dimension of globalisation and

    the related emergence of new social forces cannot be conceptualised.

    4. It is noteworthy that the metaphor of a transmission belt has been

    withdrawn from more recent work (Cox : ).

    5. James Scott () has extended this awareness in an interesting

    way by encompassing a variety of state naming practices, or state

    simplifications, that enhance the legibility of society.

    6. One way in which such enquiry has proceeded is through a detailed

    focus on the social function of the intellectual within conditions of

    socio-economic modernisation to highlight the mixture of critical

    opposition and accommodation that has confronted intellectuals in

    Latin America, with a specific focus on the Mexican novelist Carlos

    Fuentes (see Morton b).

    7. Many of Gramscis own insights on the conflict between capital and

    labour, arising from political action within new workers organisations

    known as Factory Councils in Turin during the biennio rosso(-

    ), might have relevance here and can be found in Gramsci (,

    , ).

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    Augelli, Enrico and Craig Murphy ()Americas Quest for Supremacy

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    Capital & Class #82108

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