Pathways to develop state capacity in a weak state: the sub-national state of Bihar in India

ABSTRACT This article aims to unravel how a weak state develops state capacity – an aspect hitherto ignored in mainstream literature. This is a study of a sub-national case of Bihar in India. Historically, Bihar is considered a weak state, lacking state capacity. Yet, improvements have occurred in recent decades. By profiling two areas of improved outcomes: infrastructure (roads and bridges) and welfare (distribution of bicycles to school-going girls), the article argues that the improvements are the outcome of the political and bureaucratic elite’s ideas and political will. The case of Bihar shows that the rationalities within a state depend on social learning, puzzling, and powering, having a powerful impact on policy paradigms even in weak states.