In the Federalist Papers James Madison claimed that, “If men were angels, no government would be necessary.” But is that true? James R. Rogers, an associate professor of political science at Texas A&M University, explains why some form of government would be necessary even if man were still in a prelapsarian state of nature:
[E]ven without the Fall, there would be a role for civil government for the duly recognized person who exercises civil authority. Even in an unfallen society, there is need for civil authority to minimize the cost of informational asymmetries and to minimize decision costs.
People in a prelapsarian society are not omniscient, which means that even without the Fall, there would be a role for civil authority to coordinate individual interactions to avoid suboptimal outcomes. For example, there is no morally correct answer to the question “What side of the road should people drive on?” Hence, even in a society populated by people with all the good will toward one another and all the moral virtue in the world, there would be a need to provide a consistent answer to these folks when they pulled out of the driveway.
And the question “Which side of the road should I drive on?” is a properly civil question. Answering this question belongs neither to familial nor ecclesiastical leadership. Nonetheless, the government need not use the sword in a prelapsarian society. The government would only need to be what in game theory is called a “focal arbitrator.” Civil authority would need only to announce “drive on the right side of the road,” and unfallen folk would follow the direction.