"The initiative and referendum are schemes for allowing the voters to make laws directly without using the legislature or asking its advice at all and to veto laws. The old idea was that the voters could not themselves know enough about government to decide policies, but that all they could do was to select representatives who should give their attention especially to government, relieving the voters of the task of bothering about anything except occasional elections of agents. Direct government, however, presupposes that the voters have made up their minds or can make up their minds on all matters, and that the officers whom they choose are merely agents to carry out their will. The system has an educational advantage through the publicity given to every proposal."