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The process for making changes to the network involves both active token holders and the council coming together to make a decision about a network upgrade.
Proposals can come from either the public (token holders) or the council, but they must ultimately be put to a vote by all token holders. This process is called as a Referedum. The weight of each vote is determined by a combination of the amount added and the conviction (time period for which user locks their funds). You can find more details about it at Voting on a Referendum
Public Proposals are called as Democracy Proposals in Polkassembly, while Council Proposals are present in Council Motions and have a tag of Council
When the council votes on democracy proposals, they are categorized as Council. If they vote on Treasury Proposal, they are categorised as Treasury.