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When it really comes down to an emergency hobbits would give the authority to whoever is most capable to deal with it. Merry and Pippin were no Thains or Mayors or even heads of families, but they had the right abilities for hobbits to obey them. Not forever, although they were forever held in high respect, but for the time of the emergency they had all the power that was needed to deal with it.
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You passed from under darkened dome, you enter now the secret land. - Take me to Finrod's fabled home!... ~ Finrod: The Rock Opera
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