Aquinas:

1) Objection 1. It seems that the will of God is not always fulfilled. For the Apostle says (1 Timothy 2:4): “God will have all men to be saved, and to come to the knowledge of the truth.” But this does not happen. Therefore the will of God is not always fulfilled. . .

Reply to Objection 1. The words of the Apostle, “God will have all men to be saved,” etc. can be understood in three ways.

First, by a restricted application, in which case they would mean, as Augustine says (De praed. sanct. i, 8: Enchiridion 103), “God wills all men to be saved that are saved, not because there is no man whom He does not wish saved, but because there is no man saved whose salvation He does not will.”

Secondly, they can be understood as applying to every class of individuals, not to every individual of each class; in which case they mean that God wills some men of every class and condition to be saved, males and females, Jews and Gentiles, great and small, but not all of every condition.

Thirdly, according to Damascene (De Fide Orth. ii, 29), they are understood of the antecedent will of God; not of the consequent will. This distinction must not be taken as applying to the divine will itself, in which there is nothing antecedent nor consequent, but to the things willed.

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