Generally speaking, public opinion is a majority opinion. At least, it must become so, if it is to be the effective and ruling opinion. But neither in its formation nor in its nature is it necessarily a majority opinion. “Public opinion is not the name of a something, but a classification of a number of some things.” As we said above, it arises from a welter of several minority opinions struggling for acceptance by the bulk of the people but even if it is accepted by the majority, it may not be yet a public opinion.
Majority opinion is public opinion only when it aims at the common good and satisfies the general interests and well-being of the whole nation and embodies the willing consent of the minority or minorities in the nation. It is aptly remarked by a political scientist that “a majority is not enough for public opinion, and unanimity is not required, but the opinion must be such that while a minority may not share it, they feel bound by the conviction and not by fear to accept it.” In other words, it must be based on intelligence, educated opinion, and consent of all, and not on ignorance of this majority or fear and coercion of the minority.
A true public opinion it, therefore, one which is prompted with due regard to public welfare. It resli on weighing the facts of the case. It must be acceptable to the minority nol out of fear but willing acceptance of the common good, in which it also hll a share. Unanimity is thus not necessary to public opinion; what is essentiil is the common good or national welfare at which it must aim. A minority opinion can become public opinion, if it aims at common good. Willougliliy has rightly said, “In any community of men that which has assumed llic character of public opinion is the result not of the opinion of all is members but only of those persons, few or many, who are led to think and to form judgments regarding matters of general interest.”