Both, is what comes to mind. Especially judging by the way she'd bristled when he'd suggested she could be naive, but one would be more easy to manipulate than the other, and moreover keep her followers supportive.

"She seems to think of herself as their protector, hence why the threat needs to be serious and immediate." He gestures around them, "but. If we could suggest to some members of her circle that her complacency with the Council's new laws means that perhaps she doesn't have their best interests at heart after all... That may push her into action."