An overview of existing approaches to less powerful states’ strategies in international relations shows that no theory explains the behaviour described in the introduction. By most logics, they should evade international attention or, if they do approach larger actors with ulterior motives in mind, they should become socialized to valuing the norms they once invoked with cynicism. On no account should they draw the attention of larger actors whose global missions they not only undermine, but depend on undermining for domestic stability. This chapter introduces two scope conditions that begin to explain this conduct. Domestically, these states rule by patronage, a logic of rule that distributes money, jobs, political voice and physical security as privileges rather than by right. Internationally, they are peripheral, which means that they lack material and agenda-setting power in relation to other countries. As such, when patronage rule brings them into conflict with the global rights-based order, they cannot afford to change the offending practices, but neither can they withdraw or bear punishment. A historical account of political development in several post-colonial regions illustrates why peripherality and patronage, while they do not always overlap, correlate highly.

In this chapter, we first summarize literature in public policy process theory, political institutions, state politics, and interest groups. We leverage this scholarship to offer a detailed argument about state budgeting that proceeds in three steps. The first step is about how policy issues provide motives for action. The second step is about how the formation of interest groups around issues makes those issues more or less amenable to policy change. The third step is about how the institutional strength of the executive – in this case, a governor – provides the means to change policy given the interest group context surrounding issues. Our claim is that issues provide the motives, interest groups provide the opportunities, but the extent to which governors act on those opportunities depends on their means.