Why was Tobi not proactive after all missing nins got recruited for Akatsuki?
Tobi was the brain behind the plan. But he used Nagato to carry out his plan. He exploited Nagato's hatred towards big countries. He was dead as obito for the world. So he wanted to hide and work behind the scene so that he could keep his identity hidden from all before he could collect all bijuus. Also, Land of Rain was always a secretive nation. And Akatsuki already had strong base. It gave him a perfect place to hide himself. But towards the end as more and more akatsuki members died he was forced to come to limelight.