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One of the most marked features of the evolution of government in the United States was popular dissatisfaction with state legislatures during the late 19th century. Many people felt that the legislatures were no longer representative of the people but- were instead. dominated by political bosses and special interests, such as the railroads. .This growing dissatisfaction coincided with the growth of the labor movement and several strong "people's parties." Populist ideas peaked between the Civil War and World War I, then subsided and may again be on the rise. • Adding to the surge in the populist or progressive reform movement was a series of articles which appeared in England on the use of direct legislation in Switzerland. By 1888 the Swiss system of direct legislation was well known to many groups in the United States and England, and there was wide discussion about the desirability of adopting it as a defense against unpopular legislation. Switzerland had used the referendum in some cantons, political divisions corresponding to states, since the 16th century. Measures of national importance have to be submitted to popular vote if the governments of eight of the twenty- five cantons or if 30,000 voters throughout the country should so petition. This unique power of the Swiss people is attributed to the unusual federation of cantons consisting of French, Italian, German, and Romansch speaking people who united to form the modern Swiss nation. It serves as a pressure release for minorities who can put their case to the people when at odds with the government. Several other countries use the referendum from time to time, but only their governments can initiate the action.2 The first large well-organized body in the United States to favor adoption of I and R at the state level was the American Federation of Labor, which publicly supported it in 1892. Various populist parties and labor organizations also adopted it and it 1898, South Dakota became the first state to add it to its constitution. Twenty-six states have since adopted some form of direct legislation. CHART OF STATES WITH DIRECT LEGISLATION Initiative and Referendum Alaska Arizona + Nevada + Idaho Arkansas + North Dakota + • Maine • California + Ohio Montana Colorado + Oklahoma + South Dakota' Massachusetts + Oregon + Utah Michigan + Washington Missouri + + includes constitutional Wyoming Nebraska + amendment also Initiative only Florida - to amend its constitution only Illinois - to amend only Article IV: The Legislature, of its state constitution Referendum only Kentucky - on certain tax measures only Maryland • New Mexico No state which has I and R has ever dropped it from its constitution and some states, such as California, Oregon and Washington, use it frequently. Even in states that have not adopted it, it is used at the county and municipal level. Hawaii, which has no I and R for state government, has made it optional at the county level. For example, Kauai and Hawaii counties provide I and R for charter amendments and ordinances; Honolulu county allows only direct initiative for charter amendments; Maui county provides advisory initia- tive for charter amendments and Iaand R for ordinances. In the study The Initiative and Referendum in California, it is stated that "Every type of group representing population interest -- commercial, industrial, financial reform, religious, political -- has made use of the initiative. However, it 'adds, ". . .suc- cessful initiatives have originated only with substantial interest groups. At thesame time the successful initiative must have widespread appeal and must not depart too drastically • from established patterns of activity."3 Generally, more people vote on initiative measures than on referenda. The . more controversial the issue, the more -voter interest is evinced on both types of legisla- tion. However, initiative measures are more likely to be turned down than referenda. It appears that decisions by the legislature are received more favorably than measures proposed by the citizenry.