Plato’s principle of leadership is far removed from a pure personalism since it involves the working of institutions; and indeed it may be said that a pure personalism is impossible. But it must be said that a pure institutionalism is impossible also. Not only does the construction of institutions involve important personal decisions, but the functioning of even the best institutions (such as democratic checks and balances) will always depend, to a considerable degree, on the persons involved. Institutions are like fortresses. They must be well designed and manned.
This distinction between the personal and the institutional element in a social situation is a point which is often missed by the critics of democracy. Most of them are dissatisfied with democratic institutions because they find that these do not necessarily prevent a state or a policy from falling short of some moral standards or of some political demands which may be urgent as well as admirable. But these critics misdirect their attacks; they do not understand what democratic institutions may be expected to do, and what the alternative to democratic institutions would be. Democracy (using this label in the sense suggested above) provides the institutional framework for the reform of political institutions. It makes possible the reform of institutions without using violence, and thereby the use of reason in the designing of new institutions and the adjusting of old ones. It cannot provide reason. The question of the intellectual and moral standard of its citizens is to a large degree a personal problem. [ch. 7, 138]