"Hayek thought that the state is necessary, though, because, like and following John Locke, he thought that there must be a body— government—in society that possesses the monopoly of coercive power; otherwise, the condition of men and women would be barbarous. The critical goal, in both Locke's and Hayek's minds, therefore became how to control the power of government. As James Madison wrote in The Federalist: “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.” Both Hayek and Locke thought that this is best achieved by limiting government's potential actions and restricting these potential actions to known general rules applicable to all. Both sought a government of rules rather than commands, the latter of which, by their nature, are not known in advance and may be arbitrary—not applicable to all. Hayek's goal was the society of law."