[quote=GreivousKhan]
I think what Wit meant is that they 'rely' on it more then another nation. Where most might march to war or at least act directly, someone who rely's on agents/spies/etc almost always settles for the more subtle approach.
[/quote]

Aye, this. Is why I also separated between 'defensive' and 'proactive'. Agents and Inquisitors are still a manner of espionage, though centered more around counter-intelligence. In much the same way, I'd argue the difference between 'proactive' spy nations and 'offensive' spy nations are the role they play.