The process of building state capability involves people, who are the ultimate complex phenomena; embedded within organizations, which are complex; and organizations are embedded in rules systems (e.g. institutions, cultures, norms), which are themselves complex. In this video, Michael Woolcock, highlights the fact that reforms do not take place in a vacuum. You can watch the video below or on YouTube.
If you are interested in learning more, read Escaping Capability Traps through Problem Driven Iterative Adaptation (PDIA) and Limits of Institutional Reform.