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NO. The Arbiter is NOT the leader of all Elites or Spartans. Especially not during Halo 1 - 3.
The armor of The Arbiter was a symbol of shame and dishonor. The only way for the elite to get their honor back was to die in battle, usually a suicide mission that would help the Covenant. In Halo 2, the Arbiter learns what the Halo rings are and realized the Prophets were a bunch of asshats. Arbiter and Johnson made a shakey peace treaty to stop Tartarus and prevent a ring from firing...
The Arbiter only became the "Leader" after the Prophets betrayed the elites and ordered them to be killed by the brutes in a civil war. After the events of Halo 3, the Arbiter began his mission to wipe out what remained of the Covenant, his own detachment becoming "The Swords of Sanghelios"
It would be soooooo cool to have him back in series, especially in the next Halo game.