Various authors argue there is a conflict between the functional logic of decision-making processes in representative structures and that of participatory instruments. In this paper I argue that by using a different systematic approach for embedding citizen participation into representative systems, one can use direct democratic instruments to increase responsiveness while avoiding conflicts of the functional logic between the different types of decision-making processes. I propose to disaggregate the policy-making process into two stages: first, the definition of the ends of public policies and, second, the choice of the adequate means to reach the defined ends. I further argue for a division of labor in the institutional setup in which citizens set the ends through participatory instruments, while the representatives’ task is find measures to reach the ends. The paper concludes with the development of criteria for defining goals that allow for a real-world application of the division of labor.
