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Madison believed that men in society tended to form factions, defined as groups that promoted their own interest at the expense of the rest. Factions posed a special problem for democratic societies because a faction composed of the majority of the people could easily oppress the minority. To combat this, as he argued in Federalist Paper No. 51 , power must be set against power, and “ambition must be made to counteract ambition.” Madison therefore favored the separation of powers within the central government and a division of power between the national and state governments. This latter concept, federalism, was a radical idea in the late eighteenth century. Few people at the time believed that power in a nation could be divided between two levels of government, each supreme in its own sphere.

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