State Weakness in Eastern Europe: concept and causes

State weakness has come to be recognized as a key problem for the transformations in a number of Eastern European countries, particularly those East and South of enlargement. This paper addresses the issue firstly by asking how state capacity can be assessed and observed empirically, and secondly, by considering the variables which may explain why some countries have developed weaker states than others. The paper is divided into three broad sections. The first section discusses the issue of how to assess state capacity. As a starting point, I distinguish between the state as a provider of solutions and the state as a source of problems. Both aspects need to be addressed in any evaluation of a state's capacity. Subsequently, the section discusses a number of qualitative and quantitative indicators which can yield useful information on the 'state of the state'. The second section turns to possible explanatory approaches. It considers the potential importance of legacies, of international integration, of the level of development, and of political consolidation. I conclude that the latter appears most directly relevant to the relative level of state capacity, while legacies and the level of development are important background conditions. International integration appears to be driven by higher capability rather than being a factor for stifling state capacity. The third and final section suggests some ways forward from situations of low state capacity. A first path is to promote learning and incremental improvements within the state. A second option is to enhance the capacity of citizens and civil society to demand more and better solutions from the state and to be able to challenge the state when it becomes a source of problems. A third option is to redesign the political systems in such a way as to increase coherence and to clearly attribute responsibility.