Against the idealizations and obfuscations, Lippmann posits that society is made up of two types of people: agents and bystanders (also referred to as insiders and outsiders). The agent is someone who can act "executively" on the basis of his own opinions to address the substance of an issue, and the bystander is the public, merely a spectator of action. Only those familiar enough with the substance of a problem are able to then analyze it and propose solutions, to take "executive action." No one is of executive capacity at all times, the myth of the omnicompetent sovereign democratic citizen. Instead, individuals move in and out of these capacities: "The actors in one affair are the spectators of another, and men are continually passing back and forth between the field where they are executives and the field where they are members of a public. The distinction between agents and bystanders... is not an absolute one" (110). Most of the time, however, the public is just a "deaf spectator in the back row"(13) because, for the most part, individuals are more interested in their private affairs and their individual relations than in those matters that govern society, the public questions about which they know very little.