After spending enough time reading laws in weak states you learn that law is often not the real problem. E.g. plenty of developing countries have special economic zones. One way to measure state capacity then, is to gauge the gap between the law de jure & de facto implementation.
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Trying to turn around a massive steam ship when you don't even know what the levers do or what the gauges mean is _hard_
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Clan based cultures struggle with implementation in particular.
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