The abuses were explicitly being hidden from the leadership.
People's complaints about Meredith prior to Act 3 were because she was a hardass with a lot of influence, not because she was doing anything illegal.
But we know that Elthina knew about the attrition between fanatics and qunari and mage and templars.
[Hawke]You are useless ---> [Elthina]What do you want me to do? To set the mages free or to kick the qunari out of the city? Lolnope, I want it to continue like that. If it degenerates, not my problem!
Orsino as First Enchanter should have known about the abuses, and he should have talked to Elthina. But if he didn't, it doesn't matter: all the city know. Cullen is even upset about it, since people stopped helping templars. Do you think that the rumor didn't reach one of the most powerful personalities in the city? Improbable, but if it didn't, then Elthina was both incompetent and stupid, and that's doesn't make her innocent: it simply makes her guilty in a different way.





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