Tradition
There is a tradition among Avatars more consistent than learning their identity at 16 or mastering the elements in order. Something that, while not necessarily required of them, is nonetheless a direct result of the nature of their station.
The thing is that the ambiguity of the Avatar role is both blessing and curse. They are a world figure with authority throughout the Four Nations. But at the same time, they are outside of the chains of command. Which is great in that it means that no one directly commands the Avatar, giving them the freedom to do their job. But it gets frustrating for the Avatar because they aren’t technically directly in charge of anyone either. They hold sway, but not command.
Which leads us to this oh so lovely tradition.
At some point, when trying to go through proper channels and wear their “diplomat” hat, the Avatar comes up against someone who recognizes the difference between sway and command, and simply refuses. Not caring about the lives that could be lost, because ignoring the visiting diplomat with no direct authority over you is more convenient.
And when the Avatar has had enough, they take off their diplomat hat.
