"Governmental subsidies to "major" political parties... or failure of state governments to provide funds to compensate school districts lacking "rich" property tax bases, are government actions that affirm some aspects of the status quo as inevitable. Such... are at present constitutional... Unable to support a challenge to such... power, a truly procedural... theory seems doomed... for without such challenge government may well be able to shape the "will" of the governed in the image of those who govern, reducing consent and representation to all but empty ideals."