In our system, we elect representatives. They are the legislative branch. They legislate. Get it? Okay, let me keep going then. They create laws when they legislate. How bout now? Okay, I'll keep going. These laws are called statutes and ordinances. They have legal effect on everyone. This is no mind teaser as you seem to think it is, unless one is incapable of thought and merely existing to consume food, kind of like a flatworm or an amoeba.
"Two things are infinite: the universe and human stupidity; and I'm not sure about the the universe."-- Albert Einstein