To take up great resolutions, and then to lay them aside, only ends in dishonor. - Óláfs saga Tryggvasonar
Times can make great quotes change with time. I would think that at the time of that particular quote it was more about the failure of a leader who talked his clan into raiding or warring with another only to at the last moment back out and sell out his people, greed has run in the world since we first started trading things.
A caution to the leader, or to the people? or to both?
I imagine this quote to be in relation to, or inspired by, some warlike endeavour; Maybe the plan to conquer a rival village or town, maybe the actual battle itself...And then the failure of those involved to carry through with the hard work required to effect the desired result.
You make a good point. A warning to those in positions of power or the general populace who often follow those in power. Then again, maybe both as you say.
I'm really enjoying these quotes and the way people see them from perspective or the other. It's making me consider a quotes community actually.