 Beside its sovereignty, what distinguishes Pufendorf’s state from other pact-based institutions is its size (DJN VII.2.2) – that is, its numbers must suffice for security in particular social and historical circumstances – and, more importantly, its manner of formation. Conceptually, it owes its origin to two agreements and an intervening decree (DJN VII.2.7–8). An initial contract of association occurs when members of a multitude, or the would-be citizens (in practice, family-fathers or patriarchs, who are the primary or direct citizens: DJN VII.2.20, 5.12), agree with one another to bond together for mutual security. This requires the accession of all (full or formal) members of the resultant group, who consent to it either absolutely or conditionally depending on whether they agree individually to bind themselves to any form of state selected by the majority, or only to a certain, preapproved form satisfactory to themselves. In either case, the band (coetus) thus constituted still lacks unity and has only “the rudiments and beginnings of a state” (DJN VII.2.7; Pufendorf 1994a, p. 212), although it suffices to prevent an immediate return to the state of nature if the second pact is temporarily suspended, as during an interregnum (DJN VII.7.6–7, VIII.11.1).