Paradox, the issue at hand is very much related to majority / minority math. Many times in history, the people who make the biggest noise have been the minority - even your example of revolution with 5% people participation verifies that is the case.

Referendum may sound like a good option but then again it will depend upon the participation. Even with a 90% voted constitution we are having a big issue. There is no guarantee that the minority will keep quiet about the result of the referendum.

A well placed minority action can adversely affect the entire majority as we have been seeing in Nepal's context currently.