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

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.

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

a. Giving the government enough power while creating limitations

b. Making the government a good reflection of human nature

c. Making a government that avoids controlling the governed