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The birds did not understand Snowball's long words, but they accepted his explanation, and all the humbler animals set to work to learn the new maxim by heart. FOUR LEGS GOOD, TWO LEGS BAD, was inscribed on the end wall of the barn, above the Seven Commandments and in bigger letters (3.10, 3.11)
The maxim of "Four legs good, two legs bad," which ultimately serves as a controlling device, arises because of the ignorance of the working animals. Its simplicity allows it to be easily altered and manipulated. This pig, however, would not agree.
At the Meetings Snowball often won over the majority by his brilliant speeches, but Napoleon was better at canvassing support for himself in between times. He was especially successful with the sheep. Of late the sheep had taken to bleating "Four legs good, two legs bad" both in and out of season, and they often interrupted the Meeting with this. It was noticed that they were especially liable to break into "Four legs good, two legs bad" at crucial moments in Snowball's speeches. (5.8)
As Snowball is more eloquent than Napoleon yet suffers later defeat, Animal Farm makes the argument that the ignorance of the masses can overcome the brilliance of an individual.
At last the day came when Snowball's plans were completed. At the Meeting on the following Sunday the question of whether or not to begin work on the windmill was to be put to the vote. When the animals had assembled in the big barn, Snowball stood up and, though occasionally interrupted by bleating from the sheep, set forth his reasons for advocating the building of the windmill. Then Napoleon stood up to reply. He said very quietly that the windmill was nonsense and that he advised nobody to vote for it, and promptly sat down again; he had spoken for barely thirty seconds, and seemed almost indifferent as to the effect he produced. At this Snowball sprang to his feet, and shouting down the sheep, who had begun bleating again, broke into a passionate appeal in favour of the windmill. (5.13)
The sheep have no consistency or loyalty to an individual. Their lack of intelligence or memory prevents it. They are the perfect pawns for a corrupt leader like Napoleon.