“Democracy functions insofar as individuals can participate meaningfully in the public arena, meanwhile running their own affairs, individually and collectively, without illegitimate interference by concentrations of power. Functioning democracy presupposes relative equality in access to resources—material, informational, and other—a truism as old as Aristotle. In theory, governments are instituted to serve their “domestic constituencies” and are to be subject to their will. A measure of functioning democracy, then, is the extent to which the theory approximates reality, and the “domestic constituencies” genuinely approximate the population.”