I recall mention of a Council in Gondor.
This would have been a body of men to advise the King or Ruling Steward when asked. It would not have any authority of its own and the Ruler wouldn't be bound to take its advice.
I doubt if there was anything democratic about the Council. It would consist of heretitary Lords like Imrahil of Dol Amroth and men co-opted by the King or Steward.
The only elected leader I can think of in Middle Earth, other than the Mayor of Michel Delving, was the Master of Lake Town in "The Hobbit". I assume he would have been chosen by a very narrow electorate, just the rich merchants of the town.
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