This research sought to explain the emergence of the Wyoming Core Area Strategy (WCAS), a state-based Greater Sage Grouse conservation plan. It presents a theoretical framework that is based on and adds nuance to the Advocacy Coalition Framework (ACF). The hypothesis this study explored was: if a subsystem's jurisdiction is threatened by a hierarchically superior subsystem's policy outputs and this jurisdiction is necessary to meet the threatened subsystem's goals, then policy change may occur as a result of a strategy by the agents in the threatened subsystem. The data used to examine the hypothesis included expert interviews, historical documents, and interviews from media sources (secondary source interviews). The hypothesis was supported; the WCAS emerged because the Endangered Species Act listing outputs within the Species Conservation Policy Subsystem threatened the Wyoming Land Use Policy (WLUP) Subsystem's jurisdiction, which was necessary to meet the WLUP Subsystem's economic and lifestyle goals; the Governor of Wyoming drove the development and enactment of the WCAS as a strategy to retain jurisdiction. The research demonstrated that in order to fully account for the WCAS's emergence, a less mechanistic view of the framework, one that accounts for the ability of agents in a subsystem to act strategically, was needed. The research also demonstrated that the Greater Sage Grouse conservation benefited from the ESA listing process despite its warranted but precluded listing status. The time frame the research explored was 2002 through March 2012. / Master of Arts