The law is the expression of the general will. All citizens have the right to take part in person or through their representatives in its formulation. It must be the same for all, whether it protects or whether it punishes.
Gist of Idea
The law expresses the general will, and all citizens can participate
Mirabeau and committee (Declaration of the Rights of Man , 06)
Now you are wondering who qualifies as a 'citizen'. Rousseau would have been excited until he found that the citizens could send 'representatives', instead of voting themselves. Rousseau aimed at foundational laws, not all of the laws.
'Les Philosophes', ed/tr. Torrey,Norman L. [Perigee 1980], p.285