I have enrolled in a course of **Public Administration** and there is a paper called *State, society, and Public Administration*. Unfortunately it is a course which a student needs to study him/herself without the guidance of professors. (Open University)

There, in the first chapter *Nature of the state* and section *Defining the state* I came across the following lines:

> 
> The State has been considered as a problematic institution. The theorists are unable to decide when States first arose or what States actually are. The trajectory of the State involves a long and chequered journey ‘from’ tribal communities-city communities-city states of Greece and Rome-feudal societies – Absolutist Sovereign States ‘to’ Fascist States-Communist States and Welfare States. Some define the State in terms of morality, while others see it as an instrument of exploitation. Some regard it simply as an aspect of society, still others as a synonym for government. The State has even been viewed as a unique and separate association, which stands apart from social institutions. There are also metaphysical and quasi-religious interpretations of the State. Some point toward the legitimacy of the State, while some to the character of power it enjoys. Yet, we must define the State in order to grapple with its so-called
>  ‘problematique’. 
> 
> 
> 

I didn't understand why state has been considered as a **problematic institution** in the context. 

I will really appreciate any help. 

**Link to the chapter:**

<http://egyankosh.ac.in/bitstream/123456789/25349/1/Unit-1.pdf>