Therefore, Mill continues, the primary problem in designing workable political institutions is to maximize the happiness of the community by minimizing the extent to which some of its members may encroach upon, and enjoy, the fruits of other people’s labor. This cannot happen, Mill maintains, in a monarchy (wherein a single ruler exploits his subjects) or in an aristocracy (wherein a ruling elite exploits the common people). Nor can communal happiness be maximized in a direct democracy, since the time and effort required for ruling would be subtracted from that available for engaging in productive labor (Mill 1992, 7–9). The only system that serves as a means to the end of individual and communal happiness is representative democracy, wherein citizens elect representatives to deliberate and legislate on their behalf and in their interest. The problem immediately arises, however, as to how representatives can be made to rule on the people’s behalf rather than their own. Mill’s answer is that frequent elections and short terms in office make it unlikely that elected representatives will legislate only for their own benefit. After all, representatives are drawn from the ranks of the people to which they can, after their term in office ends, expect to return. Given what we might nowadays call the incentive structure of representative government, representatives have every reason to promote the people’s interests instead of their own. Indeed, in a properly structured system, there will be an “identity of interests” between representatives and the electorate (Mill 1992, 22).