The Uneven State: Center and Periphery in Shaping State Capacity in Thailand

abstract: This article examines the state's uneven capacity to deliver public social goods to the periphery. It does so through a comparative analysis of two agencies in Thailand, the Ministry of Public Health and the Ministry of Education, which have exhibited a marked disparity in serving rural citizens over the past twenty-five years. The author traces these outcomes to a divergence in how the agencies perceive the significance of their rural policies in meeting Thailand's security threats and economic growth strategy. This perception produces contrasting organizational norms between central and local bureaucrats, which informs incentives for capacity-building. When an agency's central office believes that rural policy matters significantly for national goals, norms develop that encourage local agents to invest in serving rural needs. But when an agency deems rural policy to be less urgent in meeting key national objectives, the converse ensues. The article finds that how an agency strategically considers the rural sector influences its decisions to invest in the periphery, with lasting consequences for state capacity and the rural-urban divide.