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In democratic systems, an important criticism is that masses are not allowed to participate in public policy formation: directly. Experts, politicians, and elites are dominating pc group in policy making, and mass participation is abandoned because it is costly, time consuming and complicated. To solve this problem, a model is introduced, which has two dimenstions: purpose of participation and nature of alternative to decide about it. It is claimed that by application of the model, mass participation in public policy formation is achiewed and consolidation of democratic systems is guaranteed.