I have just found the answer to my own question in "Unfinished Tales". In the section about the Istari it says this : "
it was afterwards said that they came out of the Far West and were messengers sent to contest the power of Sauron, and to unite all those who had the will to resist him; but they were forbidden to match his power with power, or to seek to dominate Elves or Men by force or fear."
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