On the other hand, there is a large part of the work of government, which must be delegated by the people to select individuals, because it can be efficiently exercised only by peculiarly experienced or competent men.

The people are capable of passing upon the general principle embodied in a proposed law; but they cannot be expected to decide with any certainty of judgment about amendments or details, which involve for their intelligent consideration technical and special knowledge.

Efficient law-making is as much a matter of well-prepared and well-tempered detail as it is of an excellent general principle, and this branch of legislation must necessarily be left to experts selected in one way or another to represent the popular interest.

How can they best be selected and what should be their functions?
An answer to these questions involves a consideration of the changes which the referendum should bring with it in the whole system of local government--an aspect of the matter which according to the usual American habit has hitherto been neglected.

In states like Oregon the power of initiating and consummating legislation is bestowed on the electorate without being taken away from the legislature; and a certain share of necessary political business is left to a body which has been expressly declared unworthy to exercise a more important share of the same task.