Katniss showed the world in the first book that the Capitol can't control everything. Additionally, her experience with Rue won her a lot of credibility with some of the other poorer districts. The districts are starting to see that they have some modicum of power based on their numbers. There are a lot more districts that hate the Capitol than there are districts that like the Capitol, so rumors are beginning to circulate about standing up to the Capitol's control over everything. The other districts are starting to get vocal about it too, and the Capitol is realizing that they have to find a way to get rid of Katniss as a rebellious symbol. This is why the next Hunger Games forces Katniss and Peeta back into the arena against other former winners.
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