Chapter 1

In every art and science which is not conversant in parts but in some one genus in which it is complete, it is the business of that art alone to determine what is fitted to its particular genus; as what particular exercise is fitted to a certain particular body, and suits it best: for that body which is formed by nature the most perfect and superior to others necessarily requires the best exercise-and also of what one kind that must be which will suit the generality; and this is the business of the gymnastic arts: and although any one should not desire to acquire an exact knowledge and skill in these exercises, yet it is not, on that account, the less necessary that he who professes to be a master and instruct the youth in them should be perfect therein: and we see that this is what equally befalls the healing, shipbuilding, cloth-making, and indeed all other arts; so that it evidently belongs to the same art to find out what kind of government is best, and would of all others be most correspondent to our wish, while it received no molestation from without: and what particular species of it is adapted to particular persons; for there are many who probably are incapable of enjoying the best form: so that the legislator, and he who is truly a politician, ought to be acquainted not only with that which is most perfect imaginable, but also that which is the best suited to any given circumstances. There is, moreover, a third sort, an imaginary one, and he ought, if such a one should be presented to his consideration, to be able to discern what sort of one it would be at the beginning; and, when once established, what would be the proper means to preserve it a long time. I mean, for instance, if a state should happen not to have the best form of government, or be deficient in what was necessary, or not receive every advantage possible, but something less. And, besides all this, it is necessary to know what sort of government is best fitting for all cities: for most of those writers who have treated this subject, however speciously they may handle other parts of it, have failed in describing the practical parts: for it is not enough to be able to perceive what is best without it is what can be put in practice. It should also be simple, and easy for all to attain to. But some seek only the most subtile forms of government. Others again, choosing [1289a] rather to treat of what is common, censure those under which they live, and extol the excellence of a particular state, as the Lacedaemonian, or some other: but every legislator ought to establish such a form of government as from the present state and disposition of the people who are to receive it they will most readily submit to and persuade the community to partake of: for it is not a business of less trouble to correct the mistakes of an established government than to form a new one; as it is as difficult to recover what we have forgot as to learn anything afresh. He, therefore, who aspires to the character of a legislator, ought, besides all we have already said, to be able to correct the mistakes of a government already established, as we have before mentioned. But this is impossible to be done by him who does not know how many different forms of government there are: some persons think that there is only one species both of democracy and oligarchy; but this is not true: so that every one should be acquainted with the difference of these governments, how great they are, and whence they arise; and should have equal knowledge to perceive what laws are best, and what are most suitable to each particular government: for all laws are, and ought to be, framed agreeable to the state that is to be governed by them, and not the state to the laws: for government is a certain ordering in a state which particularly respects the magistrates in what manner they shall be regulated, and where the supreme power shall be placed; and what shall be the final object which each community shall have in view; but the laws are something different from what regulates and expresses the form of the constitution-it is their office to direct the conduct of the magistrate in the execution of his office and the punishment of offenders. From whence it is evident, that the founders of laws should attend both to the number and the different sorts of government; for it is impossible that the same laws should be calculated for all sorts of oligarchies and all sorts of democracies, for of both these governments there are many species, not one only.

Every art and science that deals fully with a whole field, rather than its parts, has its own task. That art alone must determine what is suited to its field. For example, physical training must determine which exercise suits a particular body best. The body that is naturally the most perfect and superior to others necessarily requires the best exercise. Physical training must also determine which single kind of exercise suits most people. Even if someone does not want precise knowledge and skill in these exercises, the instructor must still master them fully. Anyone who claims to teach these exercises to young people must have that mastery. The same holds for medicine, shipbuilding, cloth-making, and indeed all other arts. Clearly, then, the same art must determine which form of government is best. It must identify the government that would best fulfill our wishes if nothing outside interfered with it. It must also determine which particular form suits particular people. For many people are probably incapable of enjoying the best form of government. So legislators and true statesmen must understand not only the most perfect government imaginable. They must also understand the government best suited to any given circumstances. There is also a third kind of government to consider, a hypothetical one. If such a government is proposed, the statesman must understand what it would be like at the beginning. He must also know how, once established, it could be preserved for a long time. Consider, for example, a state that does not have the best form of government. It may lack something necessary, or enjoy fewer than all the advantages possible. Besides all this, we must know what kind of government is best suited to all cities. Most writers on this subject have failed to explain its practical aspects, however convincing their other discussions may seem. For recognizing the best government is not enough unless that government can be put into practice. It should also be simple and easy for all to achieve. But some writers seek only the most elaborate forms of government. Others, choosing [1289a] instead to discuss common forms, criticize the governments under which they live. They praise the excellence of a particular state, such as the Lacedaemonian state or some other. But every legislator must establish a form of government that the people will most readily accept. That choice must reflect the people's present circumstances and attitudes. The legislator must also persuade the community to participate in that government. For correcting the faults of an established government is no less difficult than founding a new one. Likewise, relearning what we have forgotten is as difficult as learning something for the first time. Therefore, anyone who aspires to be a legislator must have another ability beyond those already described. As we mentioned before, he must be able to correct the faults of an established government. But no one can do this without knowing how many different forms of government exist. Some people think democracy and oligarchy each have only one form, but this is not true. Everyone must therefore understand the differences between these governments, how great those differences are, and how they arise. They must equally understand which laws are best and which are most suitable for each particular government. For all laws are, and ought to be, framed to suit the state they govern. The state should not be made to suit the laws. A constitution is an arrangement within a state. In particular, it determines how public offices are organized and where supreme power lies. It also determines the ultimate goal that each community pursues. But laws differ from the arrangements that define and express the constitution. Laws direct officials in carrying out their duties and punishing offenders. Clearly, then, lawmakers must consider both the number of forms of government and the differences between them. For the same laws cannot suit every kind of oligarchy or every kind of democracy. Both these forms of government have many varieties, not just one.