How to build a State in a non State environment?

[M-A Lagrange]

In certain societies money is not necessary or it consists of a natural resource or food item. In a more complex society that can support the infrastructure money is very important. I guess the protectorate would have to assume that responsibility.

For the best or the worst, such societies do not exist anymore. What ever you say, even in the most remote places everything is valued on a money base. It can even become silly but the concept of money is everywhere.
It's for example on of the biggest problematic of youth integration into post conflict South Sudan.

Also, the function of central state to edit money is tricky. In many places, populations will use a foreign currency to trade. You actually can govern without using national currency.