If I understand you right, things like Improve Orcish Infrastructure and Foster Deep Ones involve the other faction paying the heroes doing it. They're supposed to be more likely to do it when they're low on gold. I'm trying to mostly make it so heroes and rulers get something out of the bargain rather than just doing evil things for the giggles - the same reason rulers who like Disease use Peddle False Cures instead of just Spread Plague