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Rh nominally carries on the national business; determines its foreign relations, raises taxes, levies soldiers, orders war or peace, and otherwise becomes the arbiter of the national fortune. The invisible government is that exercised by all energetic and intelligent men, each in his sphere, regulating the inner will and secret ways of the people, essentially forming its character, and preparing its fate. Visible governments are the toys of some nations, the diseases of others, the harness of some, the burdens of more, the necessity of all. Sometimes their career is quite distinct from that of the people, and to write it, as the national history, is as if one should number the accidents which befall a man's weapons and wardrobe, and call the list his biography. Nevertheless, a truly noble and wise nation necessarily has a noble and wise visible government, for its wisdom issues in that conclusively.

123. Visible governments are, in their agencies, capable of three pure forms, and of no more than three.

They are either monarchies, where the authority is vested in one person; oligarchies,