"If men were angels, no government would be necessary. If angels were to govern men, neither external nor internal controls on government would be necessary. In framing a government which is to be administered by men over men, the great difficulty lies in this: you must first enable the government to control the governed; and in the next place oblige it to control itself. A dependence on the people is, no doubt, the primary control on the government; but experience has taught mankind the necessity of auxiliary precautions."
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James Madison, Federalist No. 51 (6 February 1788) s:The_Federalist_Papers/No._51 Full text at Wikisource
https://en.wikiquote.org/wiki/Angels
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Angels
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