It seems to me that the "emissaries" idea is totally consistant with the Vala's strategy for dealing with Morgoth/Sauron problem. The sending forth of representatives out to meet and or deal with the various races, as opposed to greeting them en masse, and influencing them merely by the power of them as a host. The Istari had the twist of assuming coporal forms though, probably as a result decision not to directly intervene in ME affairs. Maybe this was concluded after the destruction of Beleriand\Numenor..?..?
But I always felt the "cult" theory was mabye his way of setting up the scene for his "New Shadow" project - where the cult angle gets played out..?..?
Im not sure this makes sense sorry!
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