In a famous scene in Season 5 of Game of Thrones, Daenerys Targaryen compares the struggle for power in Westeros to a spinning wheel that elevates one great noble house and then another. She vows that she does not merely intend to turn the wheel in her own favor: “I’m not going to stop the wheel. I’m going to break the wheel.”

In the world of the show, Daenerys’s statement resonates because the rulers of Westeros have made a terrible mess of the continent. Even those who are not sadistic (like King Joffrey), or venal (like many of the leaders of the great houses) do little to benefit the common people, and often end up making their lot even worse than before. Their conflicts have left Westeros devastated and poorly prepared to face the menace of the undead White Walkers, who are about to invade from the north. Even such seemingly idealistic leaders as Ned and Robb Stark and Stannis Baratheon end up exacerbating the carnage rather than improving things.

Even in earlier, more peaceful times, the ruling class mostly preyed on the people rather than provide useful public goods. Both George R.R. Martin’s Song of Ice and Fire book series and the HBO series based on it drive home the point that Westeros’s political system is dysfunctional and that its problems go beyond the flaws of any one ruler.

Daenerys’s desire to “break the wheel” suggests the possibility of a better approach. But, what exactly, does breaking the wheel entail?

Good Intentions and Flawed Execution

Even in the late stages of the still-ongoing Season 7, Daenerys seems to have little notion of what it means beyond defeating her enemies and installing herself as Queen on Westeros’s Iron Throne. She recognizes that Westeros’s previous rulers — including her father, the “Mad King” Aerys – committed grave injustices. But it is not clear how she intends to avoid a repetition of them.

Even if Daenerys herself can be trusted to rule justly and wisely as an absolute monarch, what will happen after she is gone? Recent occupants of the Iron Throne have had a short life expectancy. None of the last five have died a natural death. In a recent episode, Daenerys’s chief adviser, Tyrion Lannister, asked: “After you break the wheel, how do you make sure it stays broken?” Daenerys has no good answer to this important question.
Unlike most of the other rulers we see in the series, Daenerys has at least some genuine interest in improving the lot of ordinary people. Before coming to Westeros, she and her army freed tens of thousands of slaves on the continent of Essos. She delayed her departure from Essos long enough to try to establish a new government in the liberated areas that would — hopefully — prevent backsliding into slavery.

Nonetheless, it is not clear whether Daenerys has any plan to prevent future oppression and injustice other than to replace the current set of evil rulers with a better one: herself. The idea of “breaking the wheel” implies systemic institutional reform, not just replacing the person who has the dubious honor of planting his or her rear end on the Iron Throne in King’s Landing. If Daenerys has any such reforms in mind, it is hard to say what they are.

Daenerys most recently restated her desire to break the wheel in episode 4 of season 7, when she announced it to a group of captured enemy soldiers. Immediately afterwards, she proceeded to execute two of the prisoners, Lord Randyll Tarly and his son Dickon, because they refused to swear allegiance to her. Daenerys orders one of her dragons to burn them to death.

Lord Tarly is a far from sympathetic character, one who has committed significant injustices. Dickon was, arguably, complicit in some of them. Nonetheless, this is an example of Daenerys ordering a brutal execution of prisoners without any due process, primarily because they refused to “bend the knee” to her.

It is not a massive injustice on the scale of those committed by her enemies and predecessors. But it also does little to reassure the people that the new regime will be fundamentally different from the old. Life and death are still decided by the word of the king or queen, with no institutional safeguard against the abuse of such arbitrary power.

The King in the North

Daenerys’s failure to give serious consideration to institutional problems is shared by the other great leader beloved by fans of the show: Jon Snow, the newly enthroned King in the North. Perhaps even more than Daenerys, Jon has a genuine concern for ordinary people. He at one point even sacrificed his life in an attempt to save them (he was later, of course, resurrected). Unlike Daenerys — to say nothing of the other contenders for the Iron Throne — Jon seems to have little in the way of lust for power. He clearly did not really want the northern lords to make him King in the North, and views the position as more a burden than a privilege.

To an even greater extent than Daenerys, however, Jon does not have any real notion of institutional reform. Almost by default, he accepts traditional institutional forms, including the kingship of the North itself. In fairness, Jon has been preoccupied first with retaking the North from the villainous Ramsay Bolton, and later with preparing for the war against the White Walkers. But there is little evidence that he even perceives the need for institutional change, much less has a plan to effectuate it.

Heroes and Villains vs. Institutions

What kind of institutional reform can realistically be achieved in Westeros? It is difficult to say with certainty. The continent is, after all, a fantasy world, and only its creators can really say what might be possible there.

But in Medieval Europe, on which Westeros is roughly based, parliaments, merchants’ guilds, autonomous cities, and other institutions eventually emerged to challenge and curb the power of kings and nobles. These developments gradually helped lead to the Renaissance, the Enlightenment, and the economic growth that led to modern liberal democracy. Few if any such developments are in evidence in Westeros, which seems to have had thousands of years of economic, technological, and intellectual stagnation.

The characters in the books and the TV show are not the only ones who largely ignore the need for institutional change. We the fans are often guilty of the same sin. Few fans watch the show with an eye to institutional questions.

Rather, we are fascinated by the doings of the more prominent characters. Who will prevail in the struggle for power? Who will score an impressive victory in battle or single combat? Will Cersei ever completely alienate her increasingly disillusioned brother Jaime, with whom she has had a longstanding incestuous relationship? Will Daenerys and Jon finally develop the long-foreshadowed incestuous relationship of their own? Unbeknownst to either, she is likely his aunt.

These are the kinds of questions that excite many fans. Relatively few wonder whether and when Westeros will get a parliament, secure property rights, or establish some semblance of the rule of law.

All of this is entirely understandable. Most of us read fantasy literature and watch TV shows to be entertained, not to get a lesson in political theory. And it is much easier to develop an entertaining show focused on the need to replace a villainous evil ruler with a good, heroic, and virtuous one, than to produce an exciting story focused on institutional questions. Writers and showrunners tend to follow the former approach.

The Star Wars series, one of the few sci-fi/fantasy franchises even more popular than Game of Thrones, is just one of many pop culture products that exemplify the same trend. Game of Thrones/Song of Ice and Fire is comparatively unusual in even raising the possibility that institutional reform is the real solution to its fictional world’s problems, and in making this idea one of the central themes of the story.

The Real World Has a Dangerous Wheel of Its Own

However understandable, the pop culture fixation on heroic leaders rather than institutions reinforces a dangerous tendency of real-world politics. The benighted people of Westeros are not the only ones who hope that their problems might go away if only we concentrate vast power in the hands of the right ruler. The same pathology has been exploited by dictators throughout history, both left and right.

It is also evident, in less extreme form, in many democratic societies. Donald Trump won election by promising that he could solve the nation’s problems through his brilliant leadership if only we gave him enough power: “I alone can do it,” he famously avowed at the 2016 Republican National Convention. Before him, Barack Obama promised that he could transcend the ordinary limitations of politics and bring “change we can believe in.”

More generally, voters are prone to support charismatic leaders who promise to change the flawed status quo, without giving much thought to the possibility that the new policies may be as bad or worse than the old. They also rarely consider the likelihood that real improvements require institutional reform, not merely a new leader. The spinning wheel of Westeros has its counterpart in the wheel of American politics, where one set of dubious politicians replaces another, each promising that they are the only ones who can give us the “change” we crave.

For all its serious flaws, our situation is not as bad as that of Westeros. But we too could benefit from more serious consideration of ways to break the wheel, as opposed to merely spin it in another direction. And our popular culture could benefit from having more stories that highlight the value of institutions, as well as heroic leaders. However much we love Daenerys and Jon, they and their real-world counterparts are unlikely to give us a better wheel on their own.