Assemblies have been elected by universal suffrage, whose tendencies have been reactionary and undemocratic, and who have been supported in this reactionary policy by an effective public opinion.

Or the French people have by means of a plebiscite delegated their Sovereign power to an Imperial dictator, whose whole political system was based on a deep suspicion of the source of his own authority.

A particular group of political institutions or course of political action may, then, be representative of the popular will, and yet may be undemocratic.

Popular Sovereignty is self-contradictory, unless it is expressed in a manner favorable to its own perpetuity and integrity.
The assertion of the doctrine of popular Sovereignty is, consequently, rather the beginning than the end of democracy.

There can be no democracy where the people do not rule; but government by the people is not necessarily democratic.