The Elite–Mass Theory views society as divided into a small, organized, and influential minority and a large, relatively unorganized majority. In the sphere of public policy, it holds that state institutions and policies primarily reflect the interests, values, and preferences of elites rather than the direct will of the masses. Elites may consist of political leaders, senior bureaucrats, military officials, business magnates, intellectuals, and other groups possessing superior resources, expertise, and organizational capacity. According to this perspective, the masses generally lack the information, time, and cohesion necessary for sustained participation in policy-making. They are therefore expected to be passive recipients of policies formulated by elites. Elections and representative institutions provide legitimacy to the political system, but they do not fundamentally alter the concentration of decision-making power in elite hands. Policy change is consequently gradual and occurs