If men were angels, no 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. the main idea that madison addresses is why the us governmentis needed. must control people. is not needed. must not control people. if men were angels, no 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. the main idea that madison addresses is why the us governmentis needed. must control people. is not needed. must not control people.