In any democracy, the central problem of governance is how to inform, organize, and represent the opinions of the public in order to advance three goals: popular control over leaders, equality among citizens, and competent governance. In most political analyses, voting is emphasized as the central and essential process in achieving these goals. Yet democratic representation encompasses a great deal more than voter beliefs and behavior and, indeed, involves much more than the machinery of elections. Democracy requires government agencies that respond to voter decisions, a civil society in...