The author argues that modern democratic citizens are largely detached from actual governance, unable to know or decide on complex public affairs. He critiques the ideal of a sovereign, omniscient public, distinguishing between agents who engage with policy and the passive mass of bystanders. Through analysis of public opinion, debate, institutions, and the mechanics of reform, he explores how expertise, leadership, and organizational structures mediate collective will and neutralize arbitrary force. The work identifies limits of popular participation, criteria for effective reform, and the dangers posed by absentee rulers and social disorder, proposing more realistic expectations for democratic governance.