Somewhere in Letters Tolkien points out that the great moment of Frodo's heroism was at the Council, where he said "I will take the Ring," and compares it to Mary at the Annunciation. Frodo perhaps was *meant * to have the Ring, but he was not *mandated* to take it. Elrond understood this, and therefore ranked Frodo with the greatest heroes of the Elder Days simply for shouldering the burden, with no guarantee, or even likelihood, of success.
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The entire plot of The Lord of the Rings could be said to turn on what Sauron didn’t know, and when he didn’t know it.
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