The decision was almost entirely made. As Chancellor of Gaia, he held tremendous power over how the future of Gaian Civilization would unfold. His de facto power was even greater; if he truly willed for something to be the case, then it would happen.
He knew that there were people who disagreed. For instance, he knew that the elves didn't like this kind of model at all, for they were a deeply communal species that didn't even have currency within their species when engaging in sharing resources within their civilization, although they did use currency when selling agricultural produce to the rest of the world.
