This article begins by questioning the transferability of Western conceptualisations of the 'state' to the developing world, particularly to those areas in which security concerns are extreme. It proposes that the complicated relationship between security and political liberalisation produces a reform- security dilemma, which in turn may result in dual-governance structures consisting of an autonomous 'state' bureaucracy and a relatively newer, political 'government'. The dynamics of such a duality are explored through a longitudinal comparison of two critical cases: Iran and Turkey. Both cases reveal evidence of the 'state' and 'government' as distinct bodies, emerging over time in response to conflicting pressures for security and liberalisation. While the Iranian case remains entrenched in a static duality with an advantaged 'state', the Turkish case provides optimism that, under certain conditions, an eventual subordination of the state to the political government can take place.