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FEDERALIST No. 51

The Structure of the Government Must Furnish the Proper Checks
and Balances Between the Different Departments
From the New York Packet. Friday, February 8, 1788.

HAMILTON OR MADISON

To the People of the State of New York:
TO WHAT expedient, then, shall we finally resort, for maintaining
in practice the necessary partition of power among the several
departments, as laid down in the Constitution? The only answer
that can be given is, that as all these exterior provisions are
found to be inadequate, the defect must be supplied, by so
contriving the interior structure of the government as that its
several constituent parts may, by their mutual relations, be the
means of keeping each other in their proper places. Without
presuming to undertake a full development of this important idea,
I will hazard a few general observations, which may perhaps place
it in a clearer light, and enable us to form a more correct
judgment of the principles and structure of the government
planned by the convention. In order to lay a due foundation for
that separate and distinct exercise of the different powers of
government, which to a certain extent is admitted on all hands to
be essential to the preservation of liberty, it is evident that
each department should have a will of its own; and consequently
should be so constituted that the members of each should have as
little agency as possible in the appointment of the members of
the others. Were this principle rigorously adhered to, it would
require that all the appointments for the supreme executive,
legislative, and judiciary magistracies should be drawn from the
same fountain of authority, the people, through channels having
no communication whatever with one another. Perhaps such a plan
of constructing the several departments would be less difficult
in practice than it may in contemplation appear. Some
difficulties, however, and some additional expense would attend
the execution of it. Some deviations, therefore, from the
principle must be admitted. In the constitution of the judiciary
department in particular, it might be inexpedient to insist
rigorously on the principle: first, because peculiar
qualifications being essential in the members, the primary
consideration ought to be to select that mode of choice which
best secures these qualifications; secondly, because the
permanent tenure by which the appointments are held in that
department, must soon destroy all sense of dependence on the
authority conferring them. It is equally evident, that the
members of each department should be as little dependent as
possible on those of the others, for the emoluments annexed to
their offices. Were the executive magistrate, or the judges, not
independent of the legislature in this particular, their
independence in every other would be merely nominal. But the
great security against a gradual concentration of the several
powers in the same department, consists in giving to those who
administer each department the necessary constitutional means and
personal motives to resist encroachments of the others. The
provision for defense must in this, as in all other cases, be
made commensurate to the danger of attack. Ambition must be made
to counteract ambition. The interest of the man must be
connected with the constitutional rights of the place. It may be
a reflection on human nature, that such devices should be
necessary to control the abuses of government. But what is
government itself, but the greatest of all reflections on human
nature? If men were angels, no government would be necessary. If
angels were to govern men, neither external nor internal
controls on 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. A dependence on the people is, no doubt, the primary
control on the government; but experience has taught mankind the
necessity of auxiliary precautions. This policy of supplying, by
opposite and rival interests, the defect of better motives, might
be traced through the whole system of human affairs, private as
well as public. We see it particularly displayed in all the
subordinate distributions of power, where the constant aim is to
divide and arrange the several offices in such a manner as that
each may be a check on the other  that the private interest of
every individual may be a sentinel over the public rights. These
inventions of prudence cannot be less requisite in the
distribution of the supreme powers of the State. But it is not
possible to give to each department an equal power of
self-defense. In republican government, the legislative
authority necessarily predominates. The remedy for this
inconveniency is to divide the legislature into different
branches; and to render them, by different modes of election and
different principles of action, as little connected with each
other as the nature of their common functions and their common
dependence on the society will admit. It may even be necessary
to guard against dangerous encroachments by still further
precautions. As the weight of the legislative authority requires
that it should be thus divided, the weakness of the executive may
require, on the other hand, that it should be fortified. An
absolute negative on the legislature appears, at first view, to
be the natural defense with which the executive magistrate should
be armed. But perhaps it would be neither altogether safe nor
alone sufficient. On ordinary occasions it might not be exerted
with the requisite firmness, and on extraordinary occasions it
might be perfidiously abused. May not this defect of an absolute
negative be supplied by some qualified connection between this
weaker department and the weaker branch of the stronger
department, by which the latter may be led to support the
constitutional rights of the former, without being too much
detached from the rights of its own department? If the principles
on which these observations are founded be just, as I persuade
myself they are, and they be applied as a criterion to the
several State constitutions, and to the federal Constitution it
will be found that if the latter does not perfectly correspond
with them, the former are infinitely less able to bear such a
test. There are, moreover, two considerations particularly
applicable to the federal system of America, which place that
system in a very interesting point of view. First. In a single
republic, all the power surrendered by the people is submitted to
the administration of a single government; and the usurpations
are guarded against by a division of the government into distinct
and separate departments. In the compound republic of America,
the power surrendered by the people is first divided between two
distinct governments, and then the portion allotted to each
subdivided among distinct and separate departments. Hence a
double security arises to the rights of the people. The different
governments will control each other, at the same time that each
will be controlled by itself. Second. It is of great importance
in a republic not only to guard the society against the
oppression of its rulers, but to guard one part of the society
against the injustice of the other part. Different interests
necessarily exist in different classes of citizens. If a
majority be united by a common interest, the rights of the
minority will be insecure. There are but two methods of
providing against this evil: the one by creating a will in the
community independent of the majority that is, of the society
itself; the other, by comprehending in the society so many
separate descriptions of citizens as will render an unjust
combination of a majority of the whole very improbable, if not
impracticable. The first method prevails in all governments
possessing an hereditary or self-appointed authority. This, at
best, is but a precarious security; because a power independent
of the society may as well espouse the unjust views of the major,
as the rightful interests of the minor party, and may possibly be
turned against both parties. The second method will be
exemplified in the federal republic of the United States. Whilst
all authority in it will be derived from and dependent on the
society, the society itself will be broken into so many parts,
interests, and classes of citizens, that the rights of
individuals, or of the minority, will be in little danger from
interested combinations of the majority. In a free government
the security for civil rights must be the same as that for
religious rights. It consists in the one case in the
multiplicity of interests, and in the other in the multiplicity
of sects. The degree of security in both cases will depend on
the number of interests and sects; and this may be presumed to
depend on the extent of country and number of people comprehended
under the same government. This view of the subject must
particularly recommend a proper federal system to all the sincere
and considerate friends of republican government, since it shows
that in exact proportion as the territory of the Union may be
formed into more circumscribed Confederacies, or States
oppressive combinations of a majority will be facilitated: the
best security, under the republican forms, for the rights of
every class of citizens, will be diminished: and consequently the
stability and independence of some member of the government, the
only other security, must be proportionately increased. Justice
is the end of government. It is the end of civil society. It
ever has been and ever will be pursued until it be obtained, or
until liberty be lost in the pursuit. 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; and as, in the latter state, even the
stronger individuals are prompted, by the uncertainty of their
condition, to submit to a government which may protect the weak
as well as themselves; so, in the former state, will the more
powerful factions or parties be gradnally induced, by a like
motive, to wish for a government which will protect all parties,
the weaker as well as the more powerful. It can be little
doubted that if the State of Rhode Island was separated from the
Confederacy and left to itself, the insecurity of rights under
the popular form of government within such narrow limits would be
displayed by such reiterated oppressions of factious majorities
that some power altogether independent of the people would soon
be called for by the voice of the very factions whose misrule had
proved the necessity of it. In the extended republic of the
United States, and among the great variety of interests, parties,
and sects which it embraces, a coalition of a majority of the
whole society could seldom take place on any other principles
than those of justice and the general good; whilst there being
thus less danger to a minor from the will of a major party, there
must be less pretext, also, to provide for the security of the
former, by introducing into the government a will not dependent
on the latter, or, in other words, a will independent of the
society itself. It is no less certain than it is important,
notwithstanding the contrary opinions which have been
entertained, that the larger the society, provided it lie within
a practical sphere, the more duly capable it will be of
self-government. And happily for the REPUBLICAN CAUSE, the
practicable sphere may be carried to a very great extent, by a
judicious modification and mixture of the FEDERAL PRINCIPLE.
PUBLIUS.