Does policy capacity need to be improved? If so, what measures will work? The institutions of government might be altered or the decision-making process changed, and more opportunities for citizen participation might be offered. Policy analysis could assist in determining what particular changes are needed. For example, is it a good idea to create more state and local referendums to allow direct citizen participation in lawmaking? What has been the result of referendums and initiatives at the state and local level that could inform that choice (Cronin 1989; Ellis 2002)? What about term limits for legislators? The idea gained popularity in the late 1980s and early 1990s, but in 1994 the Supreme Court said it was unconstitutional at the federal level. If states continue to impose term limits, would the loss of experienced and knowledge legislators hurt state policymaking? Would term limits increase the power of special interests, whose expertise might be in greater demand under such conditions?