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The reason for there being many different sorts of governments is this, that each state consists of a great number of parts; for, in the first place, we see that all cities are made up of families: and again, of the multitude of these some must be rich, some poor, and others in the middle station; and that, both of the rich and poor, some will be used to arms, others not. We see also, that some of the common people are husbandmen, others attend the market, and others are artificers. There is also a difference between the nobles in their wealth, and the dignity in which they live: for instance, in the number of horses they breed; for this cannot be supported without a large fortune: for which reason, in former times, those cities whose strength consisted in horse became by that means oligarchies; and they used horse in their expeditions against the neighbouring cities; as the Eretrians the Chalcidians, the Magnetians, who lived near the river Meander, and many others in Asia. Moreover, besides the difference of fortune, there is that which arises from family and merit; or, if there are any other distinctions [1290a] which make part of the city, they have been already mentioned in treating of an aristocracy, for there we considered how many parts each city must necessarily be composed of; and sometimes each of these have a share in the government, sometimes a few, sometimes more.
It is evident then, that there must be many forms of government, differing from each other in their particular constitution: for the parts of which they are composed each differ from the other. For government is the ordering of the magistracies of the state; and these the community share between themselves, either as they can attain them by force, or according to some common equality which there is amongst them, as poverty, wealth, or something which they both partake of. There must therefore necessarily be as many different forms of governments as there are different ranks in the society, arising from the superiority of some over others, and their different situations. And these seem chiefly to be two, as they say, of the winds: namely, the north and the south; and all the others are declinations from these. And thus in politics, there is the government of the many and the government of the few; or a democracy and an oligarchy: for an aristocracy may be considered as a species of oligarchy, as being also a government of the few; and what we call a free state may be considered as a democracy: as in the winds they consider the west as part of the north, and the east as part of the south: and thus it is in music, according to some, who say there are only two species of it, the Doric and the Phrygian, and all other species of composition they call after one of these names; and many people are accustomed to consider the nature of government in the same light; but it is both more convenient and more correspondent to truth to distinguish governments as I have done, into two species: one, of those which are established upon proper principles; of which there may be one or two sorts: the other, which includes all the different excesses of these; so that we may compare the best form of government to the most harmonious piece of music; the oligarchic and despotic to the more violent tunes; and the democratic to the soft and gentle airs.
We ought not to define a democracy as some do, who say simply, that it is a government where the supreme power is lodged in the people; for even in oligarchies the supreme power is in the majority. Nor should they define an oligarchy a government where the supreme power is in the hands of a few: for let us suppose the number of a people to be thirteen hundred, and that of these one thousand were rich, who would not permit the three hundred poor to have any share in the government, although they were free, and their equal in everything else; no one would say, that this government was a democracy. In like manner, if the poor, when few in number, should acquire the power over the rich, though more than themselves, no one would say, that this was an oligarchy; nor this, when the rest who are rich have no share in the administration. We should rather say, that a democracy is when the supreme power is in the [1290b] hands of the freemen; an oligarchy, when it is in the hands of the rich: it happens indeed that in the one case the many will possess it, in the other the few; because there are many poor and few rich. And if the power of the state was to be distributed according to the size of the citizens, as they say it is in Ethiopia, or according to their beauty, it would be an oligarchy: for the number of those who are large and beautiful is small.
Nor are those things which we have already mentioned alone sufficient to describe these states; for since there are many species both of a democracy and an oligarchy, the matter requires further consideration; as we cannot admit, that if a few persons who are free possess the supreme power over the many who are not free, that this government is a democracy: as in Apollonia, in Ionia, and in Thera: for in each of these cities the honours of the state belong to some few particular families, who first founded the colonies. Nor would the rich, because they are superior in numbers, form a democracy, as formerly at Colophon; for there the majority had large possessions before the Lydian war: but a democracy is a state where the freemen and the poor, being the majority, are invested with the power of the state. An oligarchy is a state where the rich and those of noble families, being few, possess it.
We have now proved that there are various forms of government and have assigned a reason for it; and shall proceed to show that there are even more than these, and what they are, and why; setting out with the principle we have already laid down. We admit that every city consists not of one, but many parts: thus, if we should endeavour to comprehend the different species of animals we should first of all note those parts which every animal must have, as a certain sensorium, and also what is necessary to acquire and retain food, as a mouth and a belly; besides certain parts to enable it to move from place to place. If, then, these are the only parts of an animal and there are differences between them; namely, in their various sorts of stomachs, bellies, and sensoriums: to which we must add their motive powers; the number of the combinations of all these must necessarily make up the different species of animals. For it is not possible that the same kind of animal should have any very great difference in its mouth or ears; so that when all these are collected, who happen to have these things similar in all, they make up a species of animals of which there are as many as there are of these general combinations of necessary parts.
The same thing is true of what are called states; for a city is not made of one but many parts, as has already been often said; one of which is those who supply it with provisions, called husbandmen, another called mechanics, [1291a] whose employment is in the manual arts, without which the city could not be inhabited; of these some are busied about what is absolutely necessary, others in what contribute to the elegancies and pleasures of life; the third sort are your exchange-men, I mean by these your buyers, sellers, merchants, and victuallers; the fourth are your hired labourers or workmen; the fifth are the men-at-arms, a rank not less useful than the other, without you would have the community slaves to every invader; but what cannot defend itself is unworthy of the name of a city; for a city is self-sufficient, a slave not. So that when Socrates, in Plato's Republic, says that a city is necessarily composed of four sorts of people, he speaks elegantly but not correctly, and these are, according to him, weavers, husbandmen, shoe-makers, and builders; he then adds, as if these were not sufficient, smiths, herdsmen for what cattle are necessary, and also merchants and victuallers, and these are by way of appendix to his first list; as if a city was established for necessity, and not happiness, or as if a shoe-maker and a husbandman were equally useful. He reckons not the military a part before the increase of territory and joining to the borders of the neighbouring powers will make war necessary: and even amongst them who compose his four divisions, or whoever have any connection with each other, it will be necessary to have some one to distribute justice, and determine between man and man. If, then, the mind is a more valuable part of man than the body, every one would wish to have those things more regarded in his city which tend to the advantage of these than common matters, such are war and justice; to which may be added council, which is the business of civil wisdom (nor is it of any consequence whether these different employments are filled by different persons or one, as the same man is oftentimes both a soldier and a husbandman): so that if both the judge and the senator are parts of the city, it necessarily follows that the soldier must be so also. The seventh sort are those who serve the public in expensive employments at their own charge: these are called the rich. The eighth are those who execute the different offices of the state, and without these it could not possibly subsist: it is therefore necessary that there should be some persons capable of governing and filling the places in the city; and this either for life or in rotation: the office of senator, and judge, of which we have already sufficiently treated, are the only ones remaining. If, then, these things are necessary for a state, that it may be happy and just, it follows that the citizens who engage in public affairs should be men of abilities therein. [1291b] Several persons think, that different employments may be allotted to the same person; as a soldier's, a husbandman's, and an artificer's; as also that others may be both senators and judges.