Human experience tells us that some of the adverse capacities the state has sometimes had can have deleterious effects on the construction of legal order, reinforce indirect (fragmented) ruling structure, and erode the state’s fundamental ability to provide its citizens with justice and safety and to protect their rights. And these would precisely be the reasons why some states lack the mandate to govern, stability or support. Therefore, there is a question logically prior to that of state-building that is even more important, namely, how to distinguish among capacities of different kinds, so that the positive ones will be strengthened, while the society and even the state itself can be protected from the harm that might be caused by the negative ones.