Since he will not convert, Hrathen's plan is to incite a revolt to overthrow the king. He visits the top of the wall of Elantris and sees some Elantrians. He assumes, helped along with what seems to be misinformation from the fanatical Dilaf, that the Elantrians are unintelligent animals. He gets the idea of convincing people that they are demons to get people to hate them.
He notices the weakness of Kae's city walls and that the guards are mainly for show. He keeps saying that the Elantrians will be useful. Perhaps he is planning to release them and cause some sort of panic. He may be surprised to find how much agency they have.
We get a bit of insight into Arelon politics. High taxes and dwindling resources are problems.
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