I don't think that empowerment is necessarily a silver bullet. I actually don't think all people want to be empowered, that some genuinely want to be led, and that they derive a sense of empowerment from being followers.
Saying it's up to "the people" ignores that politicians are the embodied sovereignty of the same in a representative democracy, they aren't separate. A referendum is a political tool that controls and subjugates the most amount of people possible, and is in no way expressive of collective will. It's a way for politicians to make decisions, not a result of indecision. Whether it is for good or ill, it's a poor solution for me.