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Wojczewski 2016 Global Power Shifts and World Order The Contestation of Wester
Wojczewski 2016 Global Power Shifts and World Order The Contestation of Wester
Thorsten Wojczewski
To cite this article: Thorsten Wojczewski (2018) Global power shifts and world order: the
contestation of ‘western’ discursive hegemony, Cambridge Review of International Affairs, 31:1,
33-52, DOI: 10.1080/09557571.2018.1476464
Thorsten Wojczewski
King’s India Institute, King's College London
Abstract Given growing awareness for ‘global power shifts’ and the ‘Western’-centrism
of International Relations (IR), this article re-conceptualizes the phenomena subsumed
under these two labels. By understanding ‘global power shifts’ and ‘world order’ as
discursive phenomena, the article argues that discourses by fixing particular meanings
and identities constitute the objects and subjects of which they speak. The discourses on
‘Global power shifts’ and ‘Post-Western IR’ are an expression of a hegemonic struggle over
meanings and identities, resulting from the dislocation of existing meaning-systems and
identities and enabling ‘new’ agents to assert particular representations of the world as
universal. Drawing on the notion of discursive hegemony, developed by Ernesto Laclau
and Chantal Mouffe, the article develops an analytical framework for conceptualizing the
evolution and implications of this shift in representational power in the field of IR.
Introduction
Scholars and practitioners of international relations today have a strong sense that
the twenty-first century will bring profound shifts in the global configuration of
power and a crisis of the ‘Western’-liberal world order. These ongoing challenges
and transformations are frequently linked to the rise of ‘non-Western’ powers such
as China and the recent surge in populism and nationalism in the US and Europe
(see Ikenberry 2011; Sørensen 2011; Layne 2012; Niblett 2017). The current crisis of
world order comes only two decades after the euphoria the US and its allies expe-
rienced after their victory over the Soviet Union and communism. It disrupts the
widespread conviction that the world’s great ideological and geopolitical strug-
gles were over and that the triumphant twin-model of liberal democracy and free
market economy would gradually spread across the world.1
At the same time, the International Relations (IR) discipline has increasingly
come under attack for its underlying ethnocentrism and parochialism, which cel-
ebrates, promotes and defends the ‘West’ as the privileged, proactive agent of and
highest normative reference point in world politics. As a result, there are calls for
‘re-writing’ IR by de-centring the ‘West’ and moving to a ‘Post-Western IR’ (see
Tickner 2003; Hobson 2012; Tickner and Blaney 2012).
I would like to thank the editors and the three anonymous reviewers for their very helpful
comments on earlier versions of this article.
1 This notion was most prominently articulated by Francis Fukuyama (1992), who coined ‘the end
of history’ thesis.
The emptiness of the signifier ‘order’ becomes apparent in the significance world
order is endowed with in the international relations discourse: though world order
is a key concept in IR, the notion of order itself is often not discussed.3 Instead,
scholars and policy-makers alike tend to take its meaning as self-evident and
regard world order as natural, desirable or necessary. Georg Sørensen (2006, 344),
for example, argues that world order is ‘about realizing the good life for man-
kind as a whole’, thus suggesting that it serves some kind of common universal
interest. In contrast to this normative understanding of world order, Hedley Bull
(2002 [1977], 3) writes from an English School perspective that the constituents
(for example states) of order ‘are related to one another according to some pattern,
that their relationship is not purely haphazard but contains some discernible prin-
ciple’. This reading suggests that world order is a politically and morally neutral
concept that serves purely analytical purposes.
However, world order, whether used in a descriptive-empirical or normative
way, cannot be simply treated as something ‘out there’ waiting to be observed
and discovered. Rather, it is a discursive formation endowed with meaning
through systems of significant differences. It gains its significance only through a
2 In other words, empty signifiers detach a signifier from its particular content, thereby allowing
different social forces to identify with the discourse. In the Brexit discourse, for instance, sovereignty
became an empty signifier that could represent this discourse, and the different demands articulated
therein such as democracy, housing, immigration, healthcare or fishery, as a whole: as soon as the
United Kingdom ‘gains back control’ all these problems can be addressed and solved.
3 Notable exceptions include: Rengger 2000 and Chaturvedi and Painter 2007.
38 Thorsten Wojczewski
common other that symbolizes a threat to this order and thus embodies disorder.
The discursive formation of a world order always involves a process of order-
ing—a process of hierarchical identity formations that demarcates ‘us’ from ‘them’
and orders the social in the context of radical contingency through the institution
of social antagonisms and thus the exclusion of alternate possibilities, actors, inter-
ests or demands. A hegemonic (discursive) order has managed to create a ‘com-
mon sense’ through establishing a range of empty signifiers and a broad chain of
equivalence between different demands, interests and subjects by placing them
into opposition to a common other. This universal political community, however,
can never be truly universal, because this would imply the inclusion of the forces
of ‘disorder’ as well.
In political and academic discourse of international relations, the ‘West’ has
obtained discursive hegemony in that a particular representation of world poli-
tics is naturalised and has acquired a seemingly universal significance. It repre-
sents ‘reality’ in accordance with the particular experiences and interests of the
‘West’. The ‘West’ is here not understood as a geographical entity, but rather as
a political community. It is formed when ‘a particular social force assumes the
representation of a totality that is radically incommensurable with it. Such a form
of ‘hegemonic universality’ is the only one that a political community can reach’
(Laclau and Mouffe 1985, x). The constitution and maintenance of this ‘Western’
subjectivity4 is premised upon various, changing antagonistic others, serving as
common negation that helps to establish a chain of equivalence between different
subjects, demands and interests. Thus, the ‘West’ continues to exist as a subjectiv-
ity and agent, because there are communities and actors in the world which are
explicitly—and often even violently—constituted as ‘non-Western’. Through this
process of ‘othering’, an ‘exclusive collectivity of societies’ is constructed, as Bahar
Rumelili (2013, 70) argues, with a
distinct and shared historical and cultural trajectory. This shared trajectory is
loosely defined in terms of Antiquity, Renaissance, Enlightenment and Modernity,
wherein the now universal values of humanism, secularism and rationalism have
originated. The fact that those values have originated in the unique historical tra-
jectory of the West sets the West apart from those societies whose experiences with
them are only second-hand.
What Rumelili describes here is the myth of the ‘West’s’ founding history, which
represents the ‘West’ as a pioneering agent that ‘self-generate[d] through its own
endogenous ‘logic of immanence’, before projecting its global will-to-power
outwards through a one-way diffusionism so as to remake the world in its own
image’ (Hobson 2007, 93f.). This mythical narrative obscures the role of agency
beyond the ‘West’ and how it shaped the ‘West’s’ trajectory. Hence, the story of
‘Western’ hegemony does not exist outside of discursive practices in that the claim
of hegemony is based on and reified by a particular, Western-centric representa-
tion of history.5
The emergence of the ‘West’ as a subject of world history and international
political community is insuperably intertwined with its encounter with and
colonial imposition on ‘non-Western’ communities. In this process of colonial
4 See for a broader discussion of the concept of the ‘West’: Browning and Lethi 2010.
5 I would like to thank an anonymous reviewer for raising this issue.
Global power shifts and world order 39
6 This implies that the hegemonic subject itself is no closed, stable and homogenous entity, but its
identity is exposed to discursive struggles and must be constantly reproduced. This also means that the
actors (states, policy-makers or scholars) which comprise the ‘West’ do not represent a homogenous
group, but rather draw on and shape different discourses which seek to fix the meaning of the ‘West’
and thus also its relation with the ‘non-West’.
40 Thorsten Wojczewski
struggling to fix meanings and identities and thus to re-produce a particular rep-
resentation of world order because of a shift in self-other relationships.
Two caveats are in order: first, this article’s focus on representational power
does not imply that economic or military power do not matter. Rather, a dis-
course-theoretical approach argues that material capabilities or events do not
determine their own effects but are endowed with meaning by discourses which
delineate, for example, the significance of military power for the status of states
or its role in providing order in world politics. Military power thus remains sig-
nificant as long as discourses re-produce it as such, but its meaning is ultimately
contingent and thus open to political contestation. In addition, discourses are
themselves configurations of power that place actors into a hierarchical web of
relations by allocating these actors more or less privileged subject positions and
different capacities to influence the discursive struggle for hegemony. In the polit-
ical and academic discourses of international relations, for instance, politicians
and scholars, respectively, are constituted as the prime actors who are given the
authority to participate in and shape relevant discourses. However, their particu-
lar capacities for discursive representation—located in government ministries,
universities, and think tanks—differ. By increasing the size and quality of its for-
eign service, investing in its universities or founding new think tanks, China, for
example, has more financial and human capacities compared to other developing
countries.7
Second, though political and academic discourses of world politics are closely
intertwined (they are both world-making practices), they belong to different gen-
res and thus play different roles in the discursive struggle for hegemony. Both
political discourses and academic discourses construct and re-produce the prob-
lems, subjects and objects of world politics. However, political discourses are more
concerned with formulating policies to address them (Hansen 2006, 19) and try
to succeed in the struggle for political power. As policymakers have the political
authority to implement these policies, the representation of the rise of China as a
security threat in the US foreign policy discourse, for instance, has different impli-
cations than such a representation in academic discourse. Yet, official political dis-
courses are situated in a wider discursive field—they are informed, shaped or
contested by representations articulated in academia or the media and vice versa.
The concept of intertextuality captures this interrelationship (Kristeva 1980),
demonstrating how different genres of foreign policy writings are interlinked and
how they establish authority by drawing upon one another, while also adopting
different forms of knowledge and following different conventions (Hansen 2006,
7/57). For example, academic texts, which seek to understand, explain or critique
the practices of international relations, are generally expected to address a particu-
lar issue as truthfully as possible and refer to theories and methods to substantiate
their arguments.
Against this backdrop, this article now turns to the shift in representational
power in the political and academic domains, as well as the related contestation
of the ‘Western’ discursive hegemony, which can be conceptualized as a three-
stage process: (1)dislocation, (2)discursive struggle, (3)re-hegemonization of the
discursive space:
7 I would like to thank an anonymous reviewer for raising this issue.
42 Thorsten Wojczewski
(1) In the first stage, the hegemonic discourse becomes dislocated. This rupture
in a seemingly stable order exposes not only the contingency and ultimately the
particularity of the discourse, but also throws the identities of actors into crisis, as
they can no longer fully identify with previous subject positions. The articulation
of a crisis of the liberal world order embodies this dislocation—as does the grow-
ing awareness of the ‘Western’-centrism of IR. Among IR scholars, there is talk of
‘The End of American World Order’ (Acharya 2014), a ‘Post-Western World’ (Stu-
enkel 2016), ‘The End of the Western World and the Birth of a New Global Order’
(Jacques 2009), ‘A Liberal World Order in Crisis’ (Sørensen 2011) or a ‘No one’s
World’ (Kupchan 2014). While some of these texts see this crisis as an opportunity
for building a more balanced, multipolar order, the prevalent view in the hegem-
onic discourse is that the relative shifts in economic and military capabilities from
the ‘West’ to ‘non-Western’ rising powers, such as China or Russia, is a challenge
or threat.
The notion of dislocation, by contrast, suggests that this crisis is not merely the
result of a shift in the material distribution of power but rather symbolizes a shift
in the self-other relationships that have underpinned the construction of meanings
and identities in the hegemonic political and academic discourse of international
relations. This discourse draws a hierarchical dichotomy between a privileged,
superior self (‘West’) and an inferior, passive or threatening other (‘non-West’),
thereby justifying the hegemonic position towards the other and largely negating
its agency in world politics. Deudney and Ikenberry (2009, 93) summarize the
policy implications of this discursive representation: ‘The foreign policy of the
liberal states should continue to be based on the broad assumption that there is
ultimately one path to modernity—and that it is essentially liberal in character.’
The hegemonic discourse is currently struggling to re-produce this representa-
tion of world politics and thus to articulate particular interests and experiences as
universal ones. The antagonist others that serve(d) as common negation for the
formation and maintenance of the ‘Western’ identity and its claim to universality
are undermining this very identity by (partially) deviating from the ‘Western’ path
to modernity or outperforming the ‘West’. In other words, the hierarchical identity
formation that constructs the ‘West’ as superior and leading agent is contested,
plunging the ‘West’ into an identity crisis. For example, China has generated high
economic growth despite authoritarian rule and stabilized its authoritarian sys-
tem of government in spite of economic liberalization, which should, according to
the ‘Western’ modernization theory, lead to a gradual political liberalization. This
questions the core of the ‘Western’ hegemonic project: the apparent natural link
between capitalism/market economy and liberal democracy and the belief in the
superiority and universality of this particular social order.
For example, US President George W. Bush (1999) declared in a campaign
speech: ‘Economic freedom creates habits of liberty. And habits of liberty create
expectations of democracy. […] Trade freely with China, and time is on our side’.
However, US Congressman Dana Rohrabacher lamented ten years later:
[T]here has been no political liberalization at all in China. We’ve let them profit from
one-way trade that has drained our financial resources and destroyed our manu-
facturing base even as we built their manufacturing base […] It’s not a partner for
peace nor is it a partner for world stability. […] China is already a deadly economic
competitor of our people and is openly hostile to the basic values which make us
Americans (Congressional Record 2009, H11104).
Global power shifts and world order 43
A dislocatory moment thus signifies the ‘real’ in the discourse and destabilizes the
hegemonic project, because there is something that exceeds discursive representa-
tion and thereby exposes the contingency and particularity of this discourse. What
actors took for granted and conceived as ‘reality’ suddenly appears questionable
and uncertain, making ‘Western’ scholars realize the particularistic nature of IR
theories. The ‘West’ could only be constituted and re-produced as a pioneering,
superior agent by drawing a political boundary between a privileged self and a set
of inferior, backward and passive others. The hegemonic discourse constructed the
‘Western’ international community as a zone of ‘order’ by placing it in opposition
to a zone of ‘disorder’ characterized by underdevelopment, turmoil, irrationality,
violence or authoritarian and failing states. This discursive order is now partially
reversed. On the one hand, the ‘others’, such as China or India, are now gradually
shedding their status as mere subalterns and are becoming rivals. They are acquir-
ing the characteristics the hegemonic discourse of international relations presup-
poses for power and influence in global politics and are (partially) deviating from,
or contesting, the ‘Western’ development model. On the other hand, the ‘West’
itself has partially become a zone of turmoil, with economic crises and the rise of
populism and nationalism challenging the discursive representation of the liberal
‘West’ as a space of progress, rationality, stability and prosperity, and of liberal
democracy and market economy as the social order that embodies these qualities.
(2) In the second stage, alternative discourses compete for establishing an
interpretative framework through which the dislocated discursive structure can
be ‘re-sutured’. This may involve attempts to overcome the ‘Western’-centrism
of IR or to make sense of the ‘rise’ of China and India. In other words, these dis-
courses establish or re-negotiate the relationship between the self and its others
and thereby delineate the appropriate means for dealing with the other.
For dealing with the other, the hegemonic international relations discourse
generally conceives only two alternatives: conflict/disciplining or conversion/
accommodation.8 The first perspective understands the current ‘power shift’ pri-
marily against the backdrop of ‘[t]he near-simultaneous emergence of the United
States, Germany, and Japan as great powers in the later nineteenth and early twen-
tieth centuries [that] triggered two world wars’ (Layne 2012, 206) and will poten-
tially follow similar patterns, thus requiring counter-balancing or containment to
discipline and curtail the other. As the US National Intelligence Council (2004, 9)
predicts in its report Mapping the Global Future: ‘The likely emergence of China
and India, as well as others, as new major global players—similar to the advent of
a united Germany in the nineteenth century and a powerful United States in the
early twentieth century—will transform the geopolitical landscape, with impacts
potentially as dramatic as those in the previous two centuries.’ Explaining the
dangers of ‘power transitions’, Aaron Friedberg (2005, 19–20) notes:
As they seek to assert themselves, rising powers are often drawn to challenge ter-
ritorial boundaries, international institutional arrangements, and hierarchies of
prestige that were put in place when they were relatively weak. […] As was true of
Adolf Hitler’s Germany, for example, a rising power may have ambitions that are
so extensive as to be impossible for the status quo powers to satisfy without effec-
tively committing suicide.
8 In IR theory, these two perspectives largely correspond to realism and liberalism.
44 Thorsten Wojczewski
This representation of global power shifts not only denies the current ‘emerging
powers’ any substantial or positive agency which would enable them to follow a
different path than previous ‘emerging powers’, but also discards the particular
domestic and international contexts in which Germany, Japan or the US ‘emerged’.
Hence, it utilizes a particular narrative about the ‘rise and fall of great powers’ to
make the intentions and practices of contemporary ‘emerging powers’ meaning-
ful. This narrative suggests that material characteristics determine behaviour and
equates material power capabilities with influence. As this narrative is primarily
constructed around the rise of Germany, Japan and the United States and links
this rise to two world wars, the contemporary ‘power transition’ automatically
becomes a challenge or threat to world order and peace. For example, China’s
territorial claims in the South China Sea are represented as a sign for the growing
assertiveness of a ‘rising power’, indicating that ‘China has no intention of con-
tenting itself with a secondary role in global affairs, nor will it accept the current
degree of US influence in Asia and the territorial status quo there’ (Mead 2014,
74). This article does not suggest that the contemporary ‘power shifts’ will neces-
sarily be peaceful, but rather emphasizes the social construction of knowledge. It
problematizes how discourses construct narratives which merely offer a particular
interpretative framework to make sense of events and phenomena. Since these
narratives often predetermine the behaviour of actors without contextualizing
their motivations and practices, they can easily become self-fulfilling prophecies
if policy-makers and scholars treat them as self-evident.
The conversion/accommodation perspective, by contrast, assumes the possi-
bility of integrating the rising powers into the existing order, believing either in
the ultimate evolution of a homogenous global polity, in the conversion of the ris-
ing powers along the ‘Western’ development model, or at least in their willingness
to adapt to the liberal world order (see Lardy 2002; Ikenberry 2011). Ikenberry
(2008, 29/33) explains:
unlike the imperial systems of the past, the Western order is built around rules and
norms of nondiscrimination and market openness, creating conditions for rising
states to advance their expanding economic and political goals within it. Across his-
tory, international orders have varied widely in terms of whether the material ben-
efits that are generated accrue disproportionately to the leading state or are widely
shared. In the Western system, the barriers to economic participation are low, and
the potential benefits are high. […] The Western order has the potential to turn the
coming power shift into a peaceful change on terms favorable to the United States.
This representation of the world order and global power shifts embodies not only
‘Western’ discursive hegemony by equating particular interests and concerns with
the interests and concerns of mankind. It also seeks to persevere this hegemony
by discarding the possibility that the ‘rising states’ will promote different rules
and norms and the fact that every political order involves a process of ordering
through which particular actors, interests and demands are privileged, while oth-
ers are marginalized or discriminated against.
Interestingly, even India, a liberal democracy and market economy, does not
endorse this representation of the liberal world order. Rather, India’s foreign
policy discourse represents it as ‘a highly discriminatory, exclusive and pre-
scriptive international order inherited from the last century’s wars’ (Sinha 2003,
191). It asserts that India does not want to be ‘simply co-opted into the existing
Global power shifts and world order 45
international order that is controlled by the west [sic]. It must find its due place
in it in its own right and be in a position to change the rules rather than simply
adhere to existing ones’ (Sibal 2012).
Though the second narrative tends to offer a more optimistic account of the
‘power shifts’, it also emphasizes the different regime types of the ‘rising powers’
and fears that non-democratic states such as China and Russia might turn out to
be revisionist powers that seek to alter the international status quo. Articulating
this concern, George W. Bush (1999) said:
the conduct of China’s government can be alarming abroad, and appalling at home.
Beijing has been investing its growing wealth in strategic nuclear weapons, new
ballistic missile, a blue-water navy and a long-range airforce. It is an espionage
threat to our country. Meanwhile, the State Department has reported that ‘all public
dissent against the party and government [has been] effectively silenced’—–a tragic
achievement in a nation of 1.2 billion people. China’s government is an enemy of
religious freedom and a sponsor of forced abortion—–policies without reason and
without mercy. […] China is a competitor, not a strategic partner. We must deal with
China without ill-will—–but without illusions.
This alleged ability to ‘bridge the global divides’ is often derived from India’s
Hinduist heritage. Not only the Hindu-nationalist Bharatiya Janata Party of Prime
Minister Narendra Modi draws this link, but also ‘Post-Western IR’ scholars such
as Arlene Tickner who cites ‘Hindu culture’ as an example of a successful ‘juxta-
position of numerous religious and cultural identities that constitute a singular
family in which each enjoys the same respect, importance and tolerance’ (Tickner
2003, 304).
Though this shift in representational power leads to an intensified discursive
struggle over interpretative dominance and thus the content of ‘world order’, cur-
rently hardly any indicators exist of an inchoate comprehensive counter-hegem-
onic project that seeks to overthrow the existing global order. Yet, the BRICS group,
which is often seen as the prime contenders for hegemony, features some elements
of a counter-hegemonic coalition. According to de Coning, Mandrup and Odgaard
(2015, 6), the BRICS promote the notion of ‘coexistence’ as an ordering-princi-
ple and thus ‘the co-management of global order by states that may subscribe
to different world views, different political systems and different approaches to
economic and development policies’. While this conception of world order rec-
ognizes the principles of sovereignty, peaceful conflict resolution and multilateral
diplomacy—cornerstones of the existing global order—it also contains a coun-
ter-hegemonic dimension. The BRICS representation of world order challenges
the existence of a single modernity and seeks to detach ‘Western’ hegemonic signi-
fiers, such as democracy, sovereignty or globalization, from their ‘Western’-centric
origins. If successful, this discourse would reverse the status hierarchy between
‘Western’ powers and the BRICS (and other ‘non-Western’ actors) and override
the normative dichotomy between a ‘Western’ universality and ‘non-Western’
particularities in world politics. In fact, in the BRICS counter-hegemonic project,
the ‘Western’ other is constructed as the obstacle that prevents the creation of a
true world order. The BRICS, on the other hand, serve as the alleged symbol of
‘coexistence’, elevated to a position from which they can fill the lack of world
order and represent the universal—a global political community that can despite
all its differences live in peaceful co-existence. As mentioned above, the creation
of a collective identity and understanding of world order presupposes that there
is a common other through which, in this case, the internal differences among
the BRICS can be cancelled out and their interests, preferences and demands
can be represented as equivalent. This counter-hegemonic project is, however,
48 Thorsten Wojczewski
and transition. Similarly, the extent to which a ‘power shift’ exists in the first place
is not independent of this discursive struggle but rather a part of it. How this
discursive struggle will evolve depends to a great extent on the degree of antago-
nism inherent in the emerging discourses and the development of an institutional
framework in which political antagonisms can be managed peacefully and iden-
tities are not constituted in an absolutist or entirely exclusive way. For instance,
discourses that highlight geo-cultural difference and obscure the mutual constitu-
tion of and various interlinkages between these different spaces rather impede the
possibility of a peaceful contention of antagonisms.
Conclusion
This article re-conceptualizes the phenomena that are subsumed under the labels
of ‘global power shifts’ and ‘post-Western IR’ as a shift of representational power
dislocating and contesting the ‘Western’ discursive hegemony. Unlike conven-
tional and critical approaches to hegemony, the concept of discursive hegemony
does not equate hegemony with (material) primacy, dominance or coercion but
instead refers to the hegemony of a discourse that elevates a particular representa-
tion of world politics to a hegemonic and thus apparently universal status.
The article argues that broader hegemonic struggles are symbolized by the
discourses on ‘global power shifts’ and ‘Post-Western IR’. This hegemonic battle
finds expression in the dislocation of existing identities, disclosure of the inherent
tensions in the prevalent concept of world order and the empowerment of ‘new’
actors to assert particular representations of the world as universal. The articu-
lation of a crisis of the liberal world order embodies this dislocation just as the
growing awareness for the ‘Western’-centrism of IR.
A discursive understanding of ‘global power shifts’ and ‘world order’ does
not treat these phenomena as material or objective facts ‘out there’ waiting to be
observed and discovered, but emphasizes the social construction of knowledge
and thus how discourses create particular interpretative frameworks that make
them intelligible in the first place. This urges us to highlight their contingent,
non-essentialist and political character and to find an institutional framework that
allows for the peaceful contention of antagonisms in global politics.
Disclosure statement
No potential conflict of interest was reported by the author.
Notes on contributor
Thorsten Wojczewski is a teaching fellow and post-doctoral researcher in the
India Institute, King’s College London. His research interests are: Indian
foreign policy, world order, global power shifts, poststructuralism, Post-Western
IR and critical security studies. He is the author of the book ‘India’s Foreign Policy
Discourse and its Conceptions of World Order: The Quest for Power and Identity’
(published by Routledge, 2018).
50 Thorsten Wojczewski
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