Im so sorry this answer is very wrong im sorry
Answer:
The old regime was the social and political system of France in which people were separated into three social classes also known as the estates. ... The 1st estate owned 10% of the land in France and contributed 2% of their income towards the government. 2nd Estate
What Thomas Paine may have meant by that is that government is necessary for social and political change. Based off of enlightenment ideas such as unalienable rights and revolutions in the america’s, People have the right to life, liberty, and property. This led to revolutions in Haiti inspired by what happened in the United states a couple years back and the French Revolution. This “necessary evil” could be representing how bad things need to happen in order to make humanity progress because without it, humanity would most likely never learn and not be as developed as it is now.
