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act in several capacities: legislative, executive, administrative, and quasi-judicial.”

And because this Development 10 WORKERS, et al. v. TEMPE, we need not decide any broader questions, see Hayes v. Cont'l Ins.

“The County exercises its ‘legislative function’ by creating, defining, or regulating rights,” Yakima Compost, 224 Ariz. at 603, ¶ 35 (citations omitted), or prescribing a new plan or policy, (quotation omitted).

¶6 Respondents correctly note that the power of the people themselves to refer legislative actions to the ballot for approval or rejection extends only to legislative acts, rather than “bills under consideration,” and that “[t]o be considered legislation [a] measure must enact something.”

¶ 9 ; Wennerstrom v. City of Mesa , , 488, , 149 (1991) ("The sound rationale for limiting the referendum to legislative actions is that to permit referenda on executive and administrative actions would hamper the efficient administration of local governments.").

our supreme court held that a city ordinance or resolution that establishes a policy is a legislative act subject to referendum, while a measure that implements that policy is an administrative act not subject to referendum.

1, § 1, and thus “permits qualified electors to circulate petitions and refer to a popular vote legislation [that] has been enacted by their elected representatives.” (emphasis added).

(describing the two types of referendum measures recognized in the Arizona Constitution, one of which “permits the legislature to refer a legislative enactment to a popular vote”).

The City argues that the January 14 rezoning decision was the “initial step of the approval process” and the February 4 adoption of the ordinance was the “final step in the legislative process.” The trial court rejected this argument; , which held that an action becomes subject to a referendum when it is a final decision that circumscribes the freedom of the legislative body.

neither alters that view nor implies that zoning ordinances reflecting a city’s general plan thereby become administrative decisions.

Therefore, because it will enact specific rules or regulations, it qualifies as “legislation.” -90 , -51 (1991) (setting policy, enacting a law or permanent rule, or declaring a public purpose and the means of attainment are “legislative” acts); Fuldauer v. City of Cleveland, 32 Ohio St.2d 114 , 290 N.E.2d 546, 549 (1972) (voters’ adoption of city charter amendment setting salaries of firef

(bond election for street improvements a legislative act; council’s approval of specific project was not).