Towards a relational view of the shadow state

The shadow state concept emerged nearly two decades ago as part of scholarsʹ efforts to critically analyze welfare state restructuring. Recent restructuring has introduced new arrangements of power that have engendered multiple ways in which institutions of the state and civil society interact. This paper seeks to broaden the shadow state concept in order to incorporate the relational interaction of government agencies and nonprofit organizations. Many different types of interaction are possible and this paper elaborates on two through case studies of immigrant-serving nonprofit organizations in the United States. The specific cases illustrate some of the particular differentiated arrangements of power between government agencies and nonprofits, which animate contemporary shadow state relationships in the US. Moreover, the case studies highlight the general value of working towards a relational view of the shadow state to understand the evolving and constitutive nature of relationships between state and civil society in welfare states.