The Aetolians were not highly regarded by other Greeks, who considered them to be semi-barbaric and reckless. However, their league had a complex political and administrative structure, and their armies were easily a match for the other Greek powers. According to Scholten, the Aetolian League consisted of elites at the top, but was fundamentally a society of farmers and herders. The league had a federal structure consisting of a federal council in which the level of representation was proportional to the size of a community's contribution to the league's army, a popular assembly of all citizens which met twice a year, and an inner council equivalent to a federal government. It could raise armies and conduct foreign policy on a common basis. It also implemented economic standardization, lev