I don't think the assumption that "law = things the government is doing" is a good one.

I could imagine a law that specifically restricts the government's ability to do things. For example, maybe the federal government passes a law that makes it easier to sue its agents when those agents violate individual citizens constitutional rights.

Perhaps 65% of the population feels they are harmed if this law doesn't exist, and 35% of the population feels they are harmed if the law doesn't exist. Should that law be repealed?