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regressive. Prior to 1965 school bond and tax referenda passed almost automatically over the entire country and in fact, in many cases the people put them on the ballot to counteract un- . . willing legislatures and local governments.10 This was viewed by many as being progressive. - Now, however, the trend to defeat these measures has been growing. This is seen as regressive. Oregonians voted down a cigarette tax three times and then later switched and voted twice to - ax- their- sale. MostII people would agree that the legislature was ahead of. the .people - - - • Minority or Majority Rule • Another controversy concerns whether I and R lets a minority of the citizenry legislate for the rest. • One studyll indicates that there is usually a drop in the number of people who vote on either initiative or referendum measures when compared to the number of people who v'bte for candidates for high office, such as governor or president. The study did not state how these percentages compare to the vote for candidates for other state office, such as secretary of state, attorney general, treasurer, etc. The trend is that voter interest declines with the importance of the office. , It is possible that because of apathy a very small minority can legislate for the majority. This is particularly true in special elections called to vote on one referendum and frequently happens at the county and municipal levels. Enforcing and Financing If there is insufficient popular support or if there is opposition from the legislature or executive, will a law passed by direct legislation be enforceable? • None of the studies indicated any evidence of overt effort by government to subvert laws enacted by the people nor did they indicate that enforcement is a problem, or at least no moreso than with laws passed by legislatures. The various laws against gambling, prostitution; drinking, etc. , whether passed by the people or by governmental bodies, have- all - -- run -into problems of enforcement when a large percentage of people disagree with them, - 4111 • . - When measures involving substantial appropriations are proposed, problems can - -ariseas to where the money will come from. In extreme- cases,-initiatives could- have:spelled financial disaster for the state if they had not been rejected by the people, ruled unconsti- tutional, or overturned by an overwhelming vote of the legislature. - • In most states, financing is handled as it would be for a bill passed by the legislature. Another method is that used by Nevada, which requires that any initiative which calls for appropriation or otherwise spends money must also provide for raising-the money by tax or other means. - Complexity of Issues 0 Proponents of I and R feel that the groups proposing or opposing- direct legis- lation may be as well informed, and perhaps more so, than the legislature. They point out .- that in most- cases the legislature enacts laws that have been studied thoroughly by only a - - few people'-and that legislators, often rushed and tired, can -rarely- devote- -the time-and :energy- --- -- . - required to study every issue in depth. Special interest groups, -they say, can and do devote - themselves to one issue and be expert on it. . - - Even though sponsors. o.f a measure offer a take it br leave it package, I and R - supporters-.feel' that modifications and compromises have usually already- been made by the ini- _• tiating group. They believe that the campaign itself will educate voters on the issue and stimulate debate and public interest. Minority opinion, they say, will have an opportunity • to state its case and take it to the public. They also point out that voters are usually - consistent even when faced with similar or conflicting measures on the same ballot, although opponents of I and R disagree and say that in some cases--voters have been- inconsistent,4 Proponents say there is no evidence to support the charge that voters tire or I become confused when faced with a long ballot because initiative measures receive great voter response although they are usually placed. at -the bottom of the ballot. They feel that though - -- a-majority •of initiatives fail, it is not because the voters became-tired- or--confused-but --- -- - because they doubted the merits of the measure. $ 'a •