How would i paraphrase this quote?

Question

if men were angels, no government would be necessary. if angels were to govern men, neitehr external nor internal controls on government would be necessary.

-james madison in the federalist, no. 47

Answer 1

if those in charge of governing the people had the qualities of angels: integrity, decency, discipline, righteousness, etc.(and hopefully intelligence), the people need not be vigilant about the actions of government. But if all people were like that, then there is no need for government at all.

Answer 2

Man has both a good and an evil side while angels represent the good. In a society whose members lack of viciousness, there is no need of laws and rules. That's probably a description of the perfect society where men do not need rules in order to live together in harmony.