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The community comes to be umpire, settled standing rules, men having authority from sxecutin of those rules. Decides all differences between members, punishes offenses against society, using penalties the law has established

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[B]efore the names of just and unjust can have place, there must be some coercive power to compel men equally to the performance of their covenants, by the terror of some punishment greater than the benefit they expect by the breach of their covenant, and to make good that propriety which by mutual contract men acquire in recompense of the universal right they abandon: and such power there is none before the erection of a Commonwealth
If the populace held its deliberations (on the basis of adequate information) without the citizens communicating with one another, what emerged from all the little particular wills would always be the general will, and the decision would always be good. But when plots and deals lead to the formation of partial associations at the expense of the big association, the will of each of these associations—the general will of its members—is still a particular will so far as the state is concerned; so that it can then be said that as many votes as there are men is replaced by as many votes as there are associations. The particular wills become less numerous and give a less general result. And when one of these associations is so great as to prevail over all the rest, the result is no longer a sum of small particular wills but a single particular will;
Then what is government? An intermediate body set up between the subjects and the sovereign to enable them to communicate with one another; it's job is to apply the laws and to maintain civil and political liberty

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