After Agadir he had often been called a coward behind his back, and it was whispered that his throne would be in danger if that surrender were repeated. He had merited these reproaches because no one had done more than he to inflate the arrogance of his people, and his eldest son took the lead in exasperating public opinion behind the scenes. The militarists, with considerable backing from financial and commercial groups, were bent on war, and war appeals to the men in the streets of all but the weakest countries. The mass of the people had not made up their mind for a war that was not defensive; but modern governments have ample means for tuning public opinion, and with a people so accustomed as the Germans to accept the truth from above, their rulers would have little difficulty, when once they had agreed upon war, in representing it as one of defence. It is, however, impossible to say when, if ever, the rulers of Germany agreed to attack; and to the last the Imperial Chancellor, Bethmann-Hollweg, struggled to delay if not to avert the breach. But he gradually lost his grip on the Kaiser. The decisive factor in the Emperor's mind may have been the rout in 1912-13 of the Turks, on whom Germany had staked her credit in return for control of the Berlin-Baghdad route; for the free Balkan confederation, which loomed on the horizon, would bar for ever German expansion towards the East. The Balkan States themselves provided the German opportunity; the Treaty of Bukarest in 1913 entrenched discord in their hearts and reopened a path for German ambition and intrigue. Austria, not without the usual instigation, proposed to Italy a joint attack upon Serbia; the offer was not accepted, but by the winter of 1913-14 the Kaiser had gone over to the party which had resolved upon war and was seeking an occasion to palliate the cause.