1318b either a decision must be made by casting lots or some other such device must be adopted. But on questions of equality and justice, even though it is very difficult to discover the truth about them, nevertheless it is easier to hit upon it than to persuade people that have the power to get an advantage to agree to it; equality and justice are always sought by the weaker party, but those that have the upper hand pay no attention to them.

There being four kinds of democracy, the best is the one that stands first in structure, as was said in the discourses preceding these¹; it is also the oldest of them all, but by first I mean first as it were in a classification of the kinds of common people. The best common people are the agricultural population, so that it is possible to introduce democracy as well as other forms of constitution where the multitude lives by agriculture or by pasturing cattle. For owing to their not having much property they are busy, so that they cannot often meet in the assembly, while owing to their having² the necessaries of life they pass their time attending to their farm work and do not covet their neighbors’ goods, but find more pleasure in working than in taking part in politics and holding office, where the profits to be made from the offices are not large; for the mass of mankind are more covetous of gain than of honor. And this is indicated by the fact that men endured the tyrannies of former times, and endure oligarchies, if a ruler does not preventthem from working orrob them; for then some of them soon get rich and the others free from want. And also, if they have any ambition, to have control over electing magistrates and calling them to account makes up for the lack of office, since in some democracies even if the people have no part in electing the magistrates but these are elected by a special committee selected in turn out of the whole number, as at Mantinea, yet if they have the power of deliberating on policy, the multitude are satisfied. (And this too must be counted as one form of democracy, on the lines on which it once existed at Mantinea.) Indeed it is for this reason that it is advantageous for the form of democracy spoken of before, and is a customary institution in it, for all the citizens to elect the magistrates and call them to account, and to try law-suits, but for the holders of the greatest magistracies to be elected and to have property-qualifications, the higher offices being elected from the higher property-grades, or else for no office to be elected on a property-qualification, but for officials to be chosen on the ground of capacity. And a state governed in this way is bound to be governed well (for the offices will always be administered by the best men with the consent of the people and without their being jealous of the upper classes), and this arrangement is certain to be satisfactory for the upper classes and notables, for they will not be under the government of others inferior to themselves, and they will govern justly because a different class will be in control of the audits— since it is expedient to be in a state of suspense and not to be able to do everything exactly as seems good to one, for liberty to do whatever one likes cannot guard against the evil that is in every man’s character.

1319a Hence there necessarily results the condition of affairs that is the most advantageous in the government of states—for the upper classes to govern without doing wrong, the common people not being deprived of any rights. It is manifest therefore that this is the best of the forms of democracy, and why this is so—namely, because in it the common people are of a certain kind.

For the purpose of making the people an agricultural community, not only were some of the laws that were enacted in many states in early times entirely serviceable, prohibiting the ownership of more than a certain amount of land under any conditions or else of more than a certain amount lying between a certain place and the citadel or city (and in early times at all events in many states there was even legislation prohibiting the sale of the original allotments; and there is a law said to be due to Oxylus³ with some similar provision, forbidding loans secured on a certain portion of a man’s existing estate), but at the present day it would also be well to introduce reform by means of the law of the Aphytaeans, as it is serviceable for the purpose of which we are speaking; the citizens of Aphytis⁴ although numerous and possessing a small territory nevertheless are all engaged in agriculture, for they are assessed not on the whole of their estates, but on divisions of them so small that even the poor can exceed the required minimum in their assessments.⁵

After the agricultural communitythe best kind of democracy is where the people are herdsmen and get their living from cattle; for this life has many points of resemblance to agriculture, and as regards military duties pastoral people are in a very well trained condition and serviceable in body and capable of living in the open. But almost all the other classes of populace, of which the remaining kinds of democracy are composed, are very inferior to these, for their mode of life is mean, and there is no element of virtue in any of the occupations in which the multitude of artisans and market-people and the wage-earning class take part, and also owing to their loitering about the market-place and the city almost all people of this class find it easy to attend the assembly; whereas the farmers owing to their being scattered over the country do not attend, and have not an equal desire for this opportunity of meeting. Andwhere it also happens that the lie of the land is such that the country is widely separated from the city, it is easy to establish a good democracy and also a good constitutional government, for the multitude is forced to live at a distance on the farms; and so, even if there is a crowd that frequents the market-place, it is best in democracies not to hold assemblies without the multitude scattered over the country.⁶

It has then been stated how the best and first kind of democracy is to be organized, and it is clear how we ought to organize the other kinds also. For they must diverge in a corresponding order, and at each stage we must admit the next inferior class.

1319b The last kind of democracy, because all the population share in the government, it is not within the power of every state to endure, and it is not easy for it to persist if it is not well constituted in its laws and customs (but the things that result in destroying both this state and the other forms of constitution have been nearly all of them spoken of before⁷). With a view to setting up this kind of democracy and making the people powerful their leaders usually acquire as many supporters as possible and admit to citizenship not only the legitimate children of citizens but also the base-born and those of citizen-birth on one side, I mean those whose father or mother is a citizen; for all this element is specially congenial to a to democracy of this sort. Popular leaders therefore regularly introduce such institutions; they ought however only to go on adding citizens up to the point where the multitude outnumbers the notables and the middle class and not to go beyond that point; for if they exceed it they make the government more disorderly, and also provoke the notables further in the direction of being reluctant to endure the democracy, which actually took place and caused the revolution at Cyrene ⁸; for a small base element is overlooked, but when it grows numerous it is more in evidence. A democracy of this kind will also find useful such institutions as were employed by Cleisthenes⁹ at Athens when he wished to increase the power of the democracy, and by the party setting up the democracy at Cyrene; different tribes and brotherhoods must be created outnumbering the old ones, and the celebrations of private religious rites must be grouped together into a small number of public celebrations, and every device must be employed to make all the people as much as possible intermingled with one another, and to break up the previously existing groups of associates. Moreover the characteristics of a tyranny also are all thought to be democratic, I mean for instance licence among slaves, which may really be advantageous for the popular party up to a point, and among women and children, and indulgence to live as one likes; a constitution of this sort will have a large number of supporters, as disorderly living is pleasanter to the mass of mankind than sober living.

But it is not the greatest or only task of the legislator or of those who desire to construct a constitution of this kind merely to set it up, but rather to ensure its preservation; for it is not difficult for any form of constitution to last for one or two or three days. We must therefore employ the results obtained in the inquiries that we have made already¹⁰ into the causes of the preservation and the destruction of constitutions, and attempt in the light of those results to establish the safety of the state, carefully avoiding the things that cause destruction, and enacting such laws both written and unwritten