From the very beginning, when he boldly ordered the massacre of the Westerlands nobles, he knew he'd face backlash from the noble forces.
Both Oberyn and Viserys were rule-breakers.
Yet the nobles didn't dare to confront Viserys or the Dothraki. After all, they didn't want to become dragon food or negotiate with barbarians whose language they didn't understand. The consequences of defying the king were already clear to see.
So, they directed all their resentment at Prince Oberyn of Dorne.
He was seen as a savage, an uncivilized Dornishman who broke the rules of the noble's game. Hatred shouldn't involve families, and one shouldn't eradicate an entire lineage.
Had they all adhered to precedents like 'The Rains of Castamere' and kept to mutual slaughter, many ancient families that have lasted thousands of years wouldn't exist. They would have annihilated each other, lost in the rivers of history.
Before returning to King's Landing, Oberyn already received numerous condemnations and protests from the Seven Kingdoms' nobility.
Perhaps the Iron Throne didn't bestow him any titles due to the pressure, or perhaps because of the immense power backing Oberyn.
There was nothing left to bestow upon him. Any more titles, and he'd practically be a second 'king'.
As the Prince of Dorne, Oberyn had the mighty Dorne behind him. He also led the Second Legion, commanding 20,000 battle-hardened soldiers.
Moreover, he was a royal in-law. Historically, such figures were often embroiled in bloody internal struggles, and the Targaryens were no exception.
Bestowing any more lands or titles on Oberyn would be hard to control.
Thus, when the Small Council made their deliberations, Oberyn, as the Minister of Justice, was present. He himself proposed to forgo any titles, to keep a low profile, and to ensure a smooth transition.
In this game of thrones, many, like Petyr Baelish, would resort to any means to climb higher.
But for those truly intelligent and rational, sometimes taking a step back opens up a broader horizon.
Oberyn's calm suggestion to step back was unanimously agreed upon by the council.
Thus, he knew long ago that his name wouldn't be among those appointed as governors. Yet, he still held the position of Minister of Justice, wielding judicial power second only to the king, even above the regional governors. He commanded 20,000 elite soldiers stationed near the Kingswood, guarding the capital.
Oberyn's decision was wise, preserving his power by stepping back at the crucial moment.
The ennoblement ceremony wasn't over yet. All the non-native governors of Westeros were appointed. The remaining issues, like the overseas city-states, the Dothraki, and Dorne, had already been settled.
The overseas territories of Andalos and Pentos weren't included in the ennoblements, but were secretly decreed earlier.
Viserys had promised Illyrio a governorship, so he was appointed Governor of Andalos.
Besieged at Castle Black, the First Legion's commander, Bessie Joyce, connected by the black fog, was one of Viserys' most trusted and valued generals.
She was appointed as the Governor of Pentos, the only place in the kingdom where military and governance were combined, defending the kingdom's overseas territories. Miss Toyne's troops weren't stationed in the Westerlands.
Because Viserys knew that she, along with Kingsguard Mia and Commander Brynden Tully of the capital's defense, would never betray. The black fog had saved and enhanced them, but it also controlled their lives.
The Dothraki, who had made significant sacrifices in both the war against the White Walkers and the two conquest wars, were also granted lands.
They would return to Essos after the war, with the vast plains southeast of Pentos as their temporary homeland.
Viserys promised them that in the future, his whip would point east, conquering more vast lands. The entire Dothraki Sea would be their playground.
They would be superior to other Dothraki, becoming the top 'nobles' and sending lower tribesmen to war.
Viserys' grand promises excited the Dothraki warriors. They raised their arakhs, their shouts echoing across the battlefield of Sunspear.
As for Dorne, Viserys had made promises earlier. His reforms wouldn't touch Dorne, rewarding them for their early support.
Dorne retained its status, separate from the other Seven Kingdoms. They could continue with their traditional noble system — lords, farmers, warriors, etc. The Iron Throne wouldn't interfere much.
The Dornish nobles were ecstatic, loudly praising the king. Their gaze at the other Seven Kingdoms' nobles carried a hint of superiority.
They had 'earned their place by the dragon'. They had invested in Viserys early on, and even the queen was Dornish. They believed their status was only natural.
The other Seven Kingdoms' nobles, once looking down on the Dornish, now felt resentment. But they couldn't vent it out.
Everyone knew that Dorne had significantly contributed to the kingdom's establishment. Dornish traders became increasingly common in King's Landing, squeezing out other merchants.
Before, traders from other parts of the Seven Kingdoms bullied the Dornish. Now, the tables had turned.
However, with the Dornish becoming more arrogant, Tyrion, the king's personal advisor in the Small Council, took note. He avoided Oberyn and expressed his concerns to Viserys in private.
Tyrion claimed he held no resentment towards the Prince of Dorne because of the Lannister massacre.
But it was clear that even if Tyrion faced betrayal from his family, such a terrible incident, a massacre of his family, would leave some bitterness.
Tyrion feared that the Dornish, with their 'in-law' status and special sense of superiority, might become a tumor in the kingdom's system.
After all, every part of the Seven Kingdoms underwent reforms except Dorne.
However, Viserys didn't provide much explanation to Tyrion's concerns. He merely remained silent for a moment and asked him to think more deeply.
Tyrion, puzzled but intelligent, pondered upon Viserys' hint. When realization dawned, he was drenched in cold sweat.
He understood Viserys' method to keep Dorne in check.