The true meaning of these words was not understood by everybody, and was
only manifest to those who were initiated in the secret of Bonaparte's
designs. He did not accept the offer of the Senate, because he wished
for something more. The question was to be renewed and to be decided by
the people only; and since the people had the right to refuse what the
Senate offered, they possessed, for the same reason, the right to give
what the Senate did not offer.

The moment now arrived for consulting the Council of State as to the mode
to be adopted for invoking and collecting the suffrages of the people.
For this purpose au extraordinary meeting of the Council of State was
summoned on the 10th of May. Bonaparte wished to keep himself aloof from
all ostensible influence; but his two colleagues laboured for him more
zealously than he could have worked for himself, and they were warmly
supported by several members of the Council. A strong majority were of
opinion that Bonaparte should not only be invested with the Consulship
for life, but that he should be empowered to nominate his successor. But
he, still faithful to his plan, affected to venerate the sovereignty of
the people, which he held in horror, and he promulgated the following
decree, which was the first explanation of his reply to the Senate

The Consuls of the Republic, considering that the resolution of the
First Consul is an homage rendered to the sovereignty of the People,
and that the People, when consulted on their dearest interests, will
not go beyond the limits of those interests, decree as follows:-
First, that the French people shall be consulted on the question
whether Napoleon Bonaparte is to be made Consul for life, etc.

The other articles merely regulated the mode of collecting the votes.