According to this passage, what is the great difficulty in creating a government?

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.

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10 May, 20:55

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Shannon · Answer 1

The great difficulty is making sure that the government does their intended job, but does not overstep its boundaries

According to this passage, what is the great difficulty in creating a government?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.