Disgustipated
Deity
they believed was best for their people
what they believed was best for themselves. I fixed that for you. Only some modern leaders can I really attribute the above quote to, and even then they had to look out for themselves and their own career first and foremost. When Democracy works best, is when looking out for their career involves doing what's best for their people. But it doesn't always work out that way.
But you did throw that in there, but I'd say that's first on the list for most people. Leaders have an image in their mind what they want their country or Empire to be. It's not always what's best for the people.or just themselves.