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Who among the Undines is the will to war? Where is the person who is, for all intents and purposes, Emelon's backbone? We are witness to only two leaders of the Undines, those being Emelone and Ishiene.
This doesn't point to Ishiene being that person at all.
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In the end, the Queen probably would have talked peace had Ishiene let them through.
As it is said, she couldn't refuse her people's demands.
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It's one thing to protect a bridge, another to guard it against a white flag.
These humans are at war with you, you're a dying race, and you trust them?
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Of all the available info, the finger points to Ishiene as the primary instigator.
And she IS a general, that much is plain.
Actually, the available info doesn't point to there being a primary instigator at all. All we have is that there are "some" Undines who won't go lie down and die.
The fact that Ishine is the most likely candidate,
were there evidence of a primary instigator, is moot, since there are about three important Undines introduced, total.