"Laws are partly formed for the sake of good men, in order to instruct them how they may live on friendly terms with one another, and partly for the sake of those who refuse to be instructed, whose spirit cannot be subdued, or softened, or hindered from plunging into evil."
But that's my take on him and this quote.
The flip side to this is that there can, in fact, be too much law and/or too much government, certainly:
The curse of me and my nation is that we always think things can be bettered by immediate action of some sort, any sort rather than no sort.
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