The third book treats of government and its exercise. In the State it is not sufficient to make laws, it is also necessary to enforce them. Although the sovereign or general will has the legislative power, it cannot exercise by itself the executive power. It needs a special agent, intermediary between the subjects and the sovereign, which applies the laws under the direction of the general will. This is precisely the part of the Government which is the minister of the sovereign and not sovereign itself.
Democracy is in practice impossible.
It demands conditions too numerous and virtues too difficult for the whole people. If there were a people of gods, its government would be democratic, so perfect a government is not for men. Aristocracy may be natural, hereditary, or elective. Kings seek to be absolute, and offices are given to intriguers. All things being equal, the best form of government for a country is the one under which the citizens, without any outside means, without naturalization or colonies, increase and multiply.