In The Return of the King, Gandalf contrasts Denethor’s mode of stewardship, which thinks of the good of “Gondor only,” with Gandalf’s own, much wider stewardship concerned with the preservation of anything that may “still grow fair or bear fruit and flower again in days to come,” and with “other men and other lives, and time still to come.” In a response he wrote to W.H. Auden’s review of the book, Tolkien articulated this antithesis in terms of the supremacy of the “humane” over the merely “political.” Objecting to Auden’s use of the word “political” to describe the central conflict of The Lord of the Rings, Tolkien wrote:
I dislike the use of ‘political’ in such a context; it seems to me false. It seems clear to me that Frodo’s duty was ‘humane’ not political. He naturally thought first of the Shire, since his roots were there, but the quest had as its object not the preserving of this or that polity, such as the half republic half aristocracy of the Shire, but the liberation from an evil tyranny of all the ‘human’–including those …. that were still servants of the tyranny.
Denethor was tainted with mere politics: hence his failure, and his mistrust of Faramir. It had become for him a prime motive to preserve the polity of Gondor, as it was, against another potentate, who had made himself stronger and was to be feared and opposed for that reason rather than because he was ruthless and wicked. Denethor despised lesser men, and one may be sure did not distinguish between orcs and the allies of Mordor. If he had survived as victor, even without use of the Ring, he would have taken a long stride towards becoming himself a tyrant, and the terms and treatment he accorded to the deluded peoples of east and south would have been cruel and vengeful. He had become a ‘political’ leader: sc. Gondor against the rest.
But that was not the policy or duty set out by the Council of Elrond. Only after hearing the debate and realizing the nature of the quest did Frodo accept the burden of his mission. Indeed the Elves destroyed their own polity in pursuit of a ‘humane’ duty. This did not happen merely as an unfortunate damage of War; it was known by them to be an inevitable result of victory, which could in no way be advantageous to Elves. Elrond cannot be said to have a political duty or purpose. (Letters 240-1)