A Bill is a proposal for a new law, or to change an existing law, and comes from lots of places, like governing and opposition parties, public inquiries, civil servants or campaign groups.
To the extent that the people can be relied on to behave in a loyal and responsible manner, the government does not require armies of police and civil servants to keep them in order.
The Swedes were the first to recognize that public officials like civil servants, police officers, health inspectors or tax-collectors can make mistakes or act over-zealously in the belief that they are serving the public.