What can be brought to a referendum?

Constitution 2004

http://www.wipo.int/wipolex/en/text.jsp?file_id=225262

Article 75 The Emir shall seek public opinion on important issues pertaining to the interests of the State in a referendum. The subject of such referendum shall be deemed acceptable if acknowledged by the majority of voters; and the results of the referendum shall be binding and effective from the date of its announcement. The results shall be published in the official Gazette.

Article 144 The Emir or one third of the Members of Al-Shoura Council each shall have the prerogative to apply for the amendment of one or more of the articles of this Constitution. If the majority Members of the Council accept the amendment in principle, the Council may discuss it article by article. The amendment shall be passed by a two-thirds majority of the Members of the Council. The said amendment shall not be into force before the approval of the Emir and its publication in the official Gazette. If, on the other hand, the proposal for amendment is rejected in principle or in subject, it may not be re-introduced before the lapse of one year from the date of its rejection.