By way of The Libertarian Alliance Blog, which leads to an old article discussing the political thought underpinning the Lord of the Rings, there is this answer that Gandalf gives to Aragorn about Sauron in The Two Towers:
Of course, I'm not equating Sauron with government. Well, not exactly. Really.
[Sauron] “supposes that we were all going to Minas Tirith; for that is what he would himself have done in our place. And according to his wisdom it would have been a heavy stroke against his power. Indeed he is in great fear, not knowing what mighty one may suddenly appear, wielding the Ring, and assailing him with war, seeking to cast him down and take his place. That we should wish to cast him down and have no one in his place is not a thought that occurs to his mind.”
Of course, I'm not equating Sauron with government. Well, not exactly. Really.
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