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."

FACTIONS
Madison worried about what he termed "factions"; these are groups of citizens,
either a majority or minority, who share a cause of interest that interferes with the
rights of other citizens or with the interests of the community. The fundamental
challenge of the constitutional construction was to control factions while also
allowing the_people to control government. Madison wrote that the purpose of all

<T-

this is to achieve justice:

"Justice is the end of government. It is the end of civil society. In a
society under the forms of which the stronger faction can readily unite
and oppress the weaker, anarchy may as truly be said to reign as in a
state of nature where the weaker individual is not secured against the
violence of the stronger. In a free government, securing civil rights
consists in the one case in the multiplicity of interests and in the other

in the multiplicity of sects."                                              ^

Y