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A government is an entity that has the power to make and enforce laws within a state. Though a government is not essential to the monopoly of the use of force of a state and the sovereignty a state, it is required to make decisions concerning internal affairs of a state.
In the most basic sense, a people of one nation will see the government of another nation as the enemy when the two nations are at war. For example, the people of Carthage saw the Roman government as the enemy during the Punic wars.