ABSTRACT
A fundamental problem that faces legislators is how to organize the legislature so the will of the majority, if it exists, will be implemented. This problem is much like that posed by Madison in Federalist 51 when he discussed the more general problem of organizing a government that was simultaneously effective and accountable:
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.
