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Rh convey the feelings of the mass. It will not even always be indicated by them. Where the incidence of policy is remote, all that is essential is that the program shall be verbally and emotionally connected at the start with what has become vocal in the multitude. Trusted men in a familiar role subscribing to the accepted symbols can go a very long way on their own initiative without explaining the substance of their programs.

But wise leaders are not content to do that. Provided they think publicity will not strengthen opposition too much, and that debate will not delay action too long, they seek a certain measure of consent. They take, if not the whole mass, then the subordinates of the hierarchy sufficiently into their confidence to prepare them for what might happen, and to make them feel that they have freely willed the result. But however sincere the leader may be, there is always, when the facts are very complicated, a certain amount of illusion in these consultations. For it is impossible that all the contingencies shall be as vivid to the whole public as they are to the more experienced and the more imaginative. A fairly large percentage are bound to agree without having taken the time, or without possessing the background, for appreciating the choices which the leader presents to them. No one, however, can ask for more. And only theorists do. If we have had our day in court, if what we had to say was heard, and then if what is done comes out well, most of us do not stop to consider how much our opinion affected the business in hand.