The Bible generally uses two different terms for large groups: “people” and “nations.” When it uses “nation,” it is talking about a group with the desire for good as its ultimate underlying motivation; when it uses the term “people” it is talking about a group whose deep motivation is to seek true ideas and concepts. As with all symbolism in the Bible, this can be also used in a negative sense, to describe groups with the lust for evil or those driven by false concepts. It can also be used in the abstract, with “nation” representing desires for good themselves and “people” representing true ideas themselves. In a way, these meanings make sense if we look at the two words themselves. “People” brings to mind a collection of individuals, and that is somewhat how it is with ideas -- you can have many of them that inter-relate, but also stand somewhat on their own, individually. “Nation” is a more unified term, reflecting the way that a desire for good tends to unify other feelings.

716. And ten horns, signifies much power. This is evident from the signification of "horn," as being the power of truth against falsity and evil, and in the contrary sense the power of falsity against truth and good (of which above, n. 316, 567); also from the signification of "ten," as being all persons and all things, likewise many persons and many things (of which also above, n. 675; which shows that "ten horns" signify much power. That the dragon had much power is evident from what follows, namely, that because of him "the son a male that the woman brought forth was caught up unto God," that "his tail drew down from heaven the third part of the stars;" also that "he fought with Michael and his angels;" and afterwards that he stirred up Gog and Magog, and the nations in countless number, to war against the saints.

[2] "The dragon" had such power because "the dragon" means such as have separated faith from the goods of charity, which are works, and have confirmed this by the sense of the letter of the Word, which they thus twist from its genuine sense, and as it were draw it down from heaven; and because at the end of the church, which Revelation treats of, there is no charity, therefore the dragon then has power; for at the end of the church everyone wishes to live for himself, for the world, and according to his own bent, and few wish to live for the Lord, for heaven and eternal life; and the principle of faith alone, which is faith separated from charity, favors the former life, and like the current of a river draws in and carries away all to thus believing and living. This is why "the dragon," which signifies such persons and such things, was seen to have "ten horns."

[3] It has been said heretofore that falsities from evil have no power whatever; but it is to be known that falsities from evils have no power against truth from good; for truth from good is from the Lord, and the Lord has all power by His Divine truth. But falsities from evil have a power that is signified by "the ten horns of the dragon," because they prevail against those who are in falsities from evil, since such persons and such falsities act as one; moreover, man is in evil and in falsities therefrom hereditarily from his parents, and afterwards from actual life, especially at the end of the church; and these falsities from evil cannot be expelled from man in a moment, but little by little; for if they were expelled in a moment man would expire, because they constitute his life. Because such is man's state at the end of the church, the falsities of evil prevail, although they have no power whatever against truth from good. The Lord by His Divine truth might instantly cast out the falsities of evil that are with man, but this would be to cast the man instantly into hell; for these falsities must first be removed, and so far as they are removed, so far there is a place for implanting truths from good, and man is reformed. Such as are here meant by "the dragon" are meant also by "the he-goat" that fought with the ram (Daniel 8), and by "the goats" in Matthew 25; for "he-goats" there signify those who are in faith separated from charity, and "the ram" and "the sheep" those who are in charity.