Sentence:  When the power of the latter was made both limited and explicit - when norms were clarified and made more precise and the creation of new norms was placed exclusively in parliamentary hands - two purposes were served : Government was made subservient to an institutionalized popular <WSD>will</WSD> , and law became a rational system for implementing that will , for serving conscious goals , for embodying the `` public policy '' . 
Meaning of the word marked with <WSD> tags:  the capability of conscious choice and decision and intention