There are all kinds of “other” considerations that come into play that are well beyond the control of Ballard and the Colts. I think that more times than not, it is these other considerations that are the cause in not getting a guy.
A hypothetical example, if I am a successful hockey star FA ... and one of the teams hot for my services is the Montreal Canadiens, well, Sorry Hab fans, but I am simply not signing with your team, for the idea of donnng a Habs jersey repulses me to my core. Ergo, it would not matter how fantastic an offer you make, I am not signing with you. I WILL, however, not be shy in using the Habs to leverage myself a better deal from a team I’d actually like to play for.
I don’t think we should be so naive as to think the above example does not happen often in the NFL ... and in fact that it is our beloved Colts that are sometimes on the short end of that stick.