Here’s my thinking: In California, we have direct democracy, which means that sometimes twice a year, the population votes on referendums that determine taxes, bond issuances, city policy, etc. They are incredibly hard to understand all the nuances of, sometimes to the point where it seems the supporting and opposing parties don’t actually know what the referendum will result in. So, instead of trying to develop these as full legal text, the referendums should be written as intent.