In the last paragraph of Of The Social Contract, Or Principles of Political Right by Jean Jacques Rousseau, book I, chapter 6, there is the following paragraph:
At once, in place of the individual personality of each contracting party, this act of association creates a moral and collective body, composed of as many members as the assembly contains votes, and receiving from this act its unity, its common identity, its life and its will. This public person, so formed by the union of all other persons formerly took the name of city,4 and now takes that of Republic or body politic; it is called by its members State when passive. Sovereign when active, and Power when compared with others like itself. Those who are associated in it take collectively the name of people, and severally are called citizens, as sharing in the sovereign power, and subjects, as being under the laws of the State. But these terms are often confused and taken one for another: it is enough to know how to distinguish them when they are being used with precision.
What is the difference between passive and active in the sentence "it is called by its members State when passive. Sovereign when active"?
I tried to find in the text, but the keywords "passive" and "active" are not defined or explained before.