That ultimately doesn’t matter in modern lawmaking. Modern laws are far too complex for lawmakers to draft themselves. They largely have to rely on teams of lawyers to draft their policy goals into law. You think those geriatric Senators are drafting those thousand page bills themselves? They have teams of people behind them. They do this even though most Congress members come from a legal background. Modern society and its regulatory framework is just so complex, that you can’t just have individual law makers directly authoring all but the simplest most ceremonial bills. They get draft legislation from their staff, consulting groups, trade organizations, etc.

It’s the same thing here. You have teams of lawyers on staff to serve the Senate. Or individual Senators would get a budget to hire a team of lawyers to serve their needs. The Senate, or individual law makers, will consult with them and ask them to draft up a law to to do X, just like you would go to an attorney to ask them to draft up a will.

I really don’t see why the average person can’t be a lawmaker. If it’s all done by teams of people, and the person at the top is just pointing the team where to go, why can’t the average person do that?