Winston Churchill? Guy Henson? Plato? Israel Zangwill? William Ralph Inge? Robert Briffault? Herbert Hoover? Anonymous?

Question for Quote Investigator: The flaws in the democratic form of government are numerous, yet the alternatives such as oligarchy and autocracy inevitably become oppressive and tyrannical. A famous saying states that democracy is the worst form of government except for all others which have been tried.
Winston Churchill popularized this notion, but I do not know who should receive credit for originating it. Would you please explore this topic?
Reply from Quote Investigator: In November 1947 Winston Churchill delivered a speech to the U.K. House of Commons. He made a memorable remark about democracy, but he employed the prefatory phrase “it has been said”. Thus, he signaled that the remark was already in circulation. Boldface added to excerpts by QI:1
Many forms of Government have been tried, and will be tried in this world of sin and woe. No one pretends that democracy is perfect or all-wise. Indeed, it has been said that democracy is the worst form of Government except all those other forms that have been tried from time to time; but there is the broad feeling in our country that the people should rule, continuously rule, and that public opinion, expressed by all constitutional means, should shape, guide, and control the actions of Ministers who are their servants and not their masters.
Churchill was correct that the saying was circulating before his remark. QI has located a match written by Canadian educator Guy Henson in May 1946 within “A Report On Provincial Support of Adult Education in Nova Scotia”. Henson did not take credit; instead, the attribution was anonymous:2
This dilemma in education depends for solution on the meaning of democracy in practice. This is commonly called the most difficult form of government in the world; it has even been called the worst form of government, except for all others which have been tried. Certainly it is the form of government which our people are agreed to make work.
Below are additional selected citations in chronological order.
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