“[D]emocracy can be in tension with itself: efforts to increase levels of democratic participation and transparency can actually decrease the democratic representativeness of the system as a whole. The great mass of individuals living in a democracy are not able by background or temperament to make complex public policy decisions, and when they are asked to do so repeatedly the process is often taken over by well-organized interest groups that can manipulate the process to serve their narrow purposes. Excessive transparency can undermine deliberation.”