Answer:
2. Government is necessary, because people do not always behave perfectly.
Step-by-step explanation:
Option 1 is wrong because if the government cannot control people, there is no use of making policy. It contradicts James Madison's quota.
Options 3 and 4 are incorrect because the government is a necessary element.
Option 2 is correct, as the government is an essential element. Without government, people may become clueless and clumsy. To make peace in the nation, the government has to control its people.