IV.
THE PEOPLE AS LAW-MAKERS.
More is spoken of the two instruments of the Referendum and the Initiative (particularly the former) than is known about them; for in the countries where they have been adopted, folk use them and do not talk about them, and where they have not been adopted folk talk about them with ardour or with fear but without knowledge. Briefly they may be described as a retention by the sovereign people of sovereign authority over the making of laws.
The case is not without an historical parallel. In earlier times in other states the sovereign was the king, who said, "L’Etat, c’est moi." He was therefore the law-maker, by supreme right. He might summon the estates of his realm—Lords and Commons—to advise and counsel him; and he might, normally, allow their acts without his interference; but, being sovereign, he reserved the right to cause those acts to be referred to him for the final act of his will; and he at all times reserved the right to send a message to them instructing them to make laws on matters that seemed to him to require attention. This he did, being the sovereign. His parliament was the legislature of the State, but he preserved the Referendum and the Initiative, and held them as his sovereign authority over the authority deputed to the legislature.
When, however, sovereignty passed to the people, they assumed the attributes and the functions of that sovereignty. Where once the king’s person and the king's dwelling, for example, had been declared to be inviolable,
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