To stay in power, rulers need to provide a scapegoat. In spite of best efforts, inevitably some projects will fail, some results won't match expectations, some people will get angry and critical. Small failings will assume undeserved attention while large scale positive results will be ignored. Having an external target for the inescapable resentment, anger, and ridicule that arise from failed ventures enables the possibility of trying new ones.
[Several chapters—3, 31, 88, 125—advise how to avoid becoming a scapegoat but this one suggests creating one. This contradicts Balthasar's general intent and attitude but blends in better if the idea of "scapegoat" is depersonalized and applied to an inanimate system or idea.]