THE question "What absolutely is the best government?" is unanswerable as well as indeterminate; or rather, there are as many good answers as there are possible combinations in the absolute and relative situations of all nations.
       But if it is asked by what sign we may know that a given people is well or ill governed, that is another matter, and the question, being one of fact, admits of an answer.
       It is not, however, answered, because everyone wants to answer it in his own way. Subjects extol public tranquillity, citizens individual liberty; the one class prefers security of possessions, the other that of person; the one regards as the best government that which is most severe, the other maintains that the mildest is the best; the one wants crimes punished, the other wants them prevented; the one wants the State to be feared by its neighbours, the other prefers that it should be ignored; the one is content if money circulates, the other demands that the people shall have bread. Even if an agreement were come to on these and similar points, should we have got any further? As moral qualities do not admit of exact measurement, agreement about the mark does not mean agreement about the valuation.
       For my part, I am continually astonished that a mark so simple is not recognised, or that men are of so bad faith as not to admit it. What is the end of political association? The preservation and prosperity of its members. And what is the surest mark of their preservation and prosperity? Their numbers and population. Seek then nowhere else this mark that is in dispute. The rest being equal, the government under which, without external aids, without naturalisation or colonies, the citizens increase and multiply most, is beyond question the best. The government under which a people wanes and diminishes is the worst. Calculators, it is left for you to count, to measure, to compare.[27]

Foreward
book i
   1. Subject of the First Book
   2. The First Societies
   3. The Right of the Strongest
   4. Slavery
   5. That We Must Always Go Back to a First Convention
   6. The Social Compact
   7. The Sovereign
   8. The Civil State
   9. Real Property
   Notes
book ii
   1. That Sovereignty is Inalienable
   2. That Sovereignty is Indivisible
   3. Whether the General Will is Fallible
   4. The Limits of the Sovereign Power
   5. The Right of Life and Death
   6. Law
   7. The Legislator
   8. The People
   9. The People (continued)
   10. The People (continued)
   11. The Various Systems of Legislation
   12. The Division of the Laws
   Notes
book iii
   1. Government in General
   2. The Constituent Principle in the Various Forms of Government
   3. The Division of Governments
   4. Democracy
   5. Aristocracy
   6. Monarchy
   7. Mixed Governments
   8. That All Forms of Government Do Not Suit All Countries
   9. The Marks of a Good Government
   10. The Abuse of Government and Its Tendency to Degenerate
   11. The Death of the Body Politic
   12. How the Sovereign Authority Maintains Itself
   13. The Same (continued)
   14. The Same (continued)
   15. Deputies or Representatives
   16. That the Institution of Government is not a Contract
   17. The Institution of Government
   18. How to Check the Usurpations of Government
   Notes
book iv
   1. That the General Will is Indestructible
   2. Voting
   3. Elections
   4. The Roman Comitia
   5. The Tribunate
   6. The Dictatorship
   7. The Censorship
   8. Civil Religion
   9. Conclusion
   Notes