This monograph posits that the state must structure the delivery of public goods in a sequential and hierarchical basis with safety and security and rule of law providing a foundation upon which the state builds delivery of all other public goods prior to any discussion of higher level needs like participation and human rights. In support of this premise, this monograph defines a failed state as a state which cannot claim a monopoly on the legitimate use of physical force within a given territory. This research explores various state ranking systems, which purport to measure state delivery of public goods. These measurements are aggregated and interpreted to assess state fragility. These ranking systems carry a bias toward higher end development, like the development of human rights, rather than focusing on foundational aspects of state development, like safety, security, and rule of law. Mexico illustrates this monograph's thesis by showing that performance in other categories of governance cannot offset a lack safety and security for the citizens of Mexico. The implication of this premature focus on participation and human rights is the creation of weak and illegitimate state institutions since safety and security did not form the foundation of the state's contract.