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from using an emergency clause?" No. Whether financing is by revenue bonds or by COPs, no tax is being imposed. Therefore, the restriction on adoption of a county ordinance by emergency clause found at ORS 203.045(4) does not apply. :4. "Do the answers to any of these questions change if the method of financing differs? That is, is there a difference if it is COP versus Revenue Bonds?" Yes. Revenue bonds are issued pursuant to the Uniform Revenue Bond Act, ORS 288.805 through 288.945. As mentioned above, the BOC has adopted a resolution authorizing issuance of revenue bonds to finance courthouse square. Pursuant to ORS 288.815(5) electors may petition the county to refer the issuance of revenue bonds to a vote. The petition must be filed within 60 days of the last publication of notice. In this case, the last publication of notice was March 17, 1997. The 60 days has passed. There is no further opportunity to refer this matter to a vote. On the other hand, COPs are authorized by ORS 271.390. This statutory authorization does not provide for any referendum or initiative process. The only basis for a referendum or initiative would be pursuant to the Constitution of Oregon, Article IV, Section 1(5): "The initiative and referendum powers reserved to the people by subsections (2) ~, and (3) of this section are further reserved to the qualified voters of each municipality and district as to all local, special and municipal legislation of every character in or for their municipality or district." In other words, only "municipal legislation" is subject to initiative and referendum. Legislation is the making of laws of general applicability and is permanent in nature. Administration, on the other hand, is the impiementation of such general rules. Foster v. Clark, 309 Or 464, 472 (1990) and Monahan v. Funk, 137 Or 580, 584-85 (1931). Administrative actions are not subject to initiative or referendum, and must be removed from the ballot. Id. Adoption of an ordinance or resolution to carry out legislative policies and purposes already declared, and for which no further legislation is needed, is an administrative act. Such an act is not subject to local initiative or referendum. Lane Transit District v. Lane Co , 327 Or 161, 167-69 (1998). ORS 271.390 is a complete legislative scheme. It authorizes issuance of COPs as the "...governing body determines is needed...". It authorizes all the terms necessary to complete the issuance of COPs, including such things as authority to secure the contracts by mortgage, to designate revenues for payment of the COPs, to covenant to budget for payments and appropriate the necessary funds, and to fix terms the governing body determines are necessary or appropriate to secure its obligations. No further legislation is necessary. All necessary authority '`- has already been delegated to the BOC. The determination of whether to issue COPs is an