And again, if a people have omitted, or from outward pressure have not
had it in their power to give themselves a constitution by the
tentative process of applying a corrective to each evil as it arose,
or as the sufferers gained strength to resist it, this retardation of
political progress is no doubt a great disadvantage to them, but it
does not prove that what has been found good for others would not have
been good also for them, and will not be so still when they think fit
to adopt it.

On the other hand, it is also to be borne in mind that political
machinery does not act of itself. As it is first made, so it has to be
worked, by men, and even by ordinary men. It needs, not their simple
acquiescence, but their active participation; and must be adjusted to
the capacities and qualities of such men as are available. This
implies three conditions. The people for whom the form of government
is intended must be willing to accept it, or, at least not so
unwilling as to oppose an insurmountable obstacle to its
establishment. They must be willing and able to do what is necessary
to keep it standing. And they must be willing and able to do what it
requires of them to enable it to fulfill its purposes. The word "do"
is to be understood as including forbearances as well as acts. They
must be capable of fulfilling the conditions of action and the
conditions of self-restraint, which are necessary either for keeping
the established polity in existence, or for enabling it to achieve the
ends, its conduciveness to which forms its recommendation.

The failure of any of these conditions renders a form of government,
whatever favorable promise it may otherwise hold out, unsuitable to
the particular case.