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DanielLC comments on Kill the mind-killer - Less Wrong Discussion
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For the random members of the population thing, they can just hire advisers. There's no reason they have to come up with the laws. It's sort of like how in the US, there are several bills that the President comes up with, even though the constitution gives him no power to do so.
The Constitution expressly give him this power.
Article II Section. 3.
[The president] shall from time to time give to the Congress Information of the State of the Union, and recommend to their Consideration such Measures as he shall judge necessary and expedient; he may, on extraordinary Occasions, convene both Houses, or either of them, and in Case of Disagreement between them, with Respect to the Time of Adjournment, he may adjourn them to such Time as he shall think proper