‘Then the satraps, the deputies and the governors, the judges, the treasurers, the counsellors, the sheriffs and all the rulers of the provinces, were gathered together to the dedication of the image that Nebuchadnezzar the king had set up. And they stood before the image that Nebuchadnezzar had set up.'
We must maintain a sense of proportion. We need not see every single one as gathered here, although few of importance would dare to miss the ceremony without good reason. But some might be engaged on urgent official business which could not wait, while others were possibly abroad and unable to get back. Skeleton staff would have to be maintained and arrangements made for the keeping of order, for such a gathering would require weeks, if not months, to organise. But it would be a brave official (and foolish) who was absent without a valid reason. This was an expression of loyalty and submission.
Around the king himself would be his most distinguished and trustworthy courtiers, which probably included Daniel, the ‘Rab signin' (chief overseer) over the wise men of Babylon. They would be overseeing the scene with the king, and would not necessarily be expected to take part. Their loyalty was unquestioned.