ABSTRACTIf representative democracy is not about elected officials responding directly to voters’ preferences, and if the voters do a poor job of voting their interests in referendums, then what is democracy about? In our view, a satisfactory theory of democracy would focus normatively on the social identities and political interests of citizens rather than on their expressed policy preferences, and empirically on the ability of organized or attentive groups to get those identities and interests effectively recognized and acted on in (...) the governmental process. A group-theoretic version of democratic theory along these lines would dispense with the most important illusions of the conventional “folk theory” of democracy. However, much hard work remains to clarify how actual democracies make policy and to construct a wise normative standard—inspirational but not innocent—against which they can be judged. (shrink)