To act like a strict referee is to have strict rules and follow them but to not own the game itself.
Step-by-step explanation:
A strict referee is someone who ensures that the game is being played well and fare by all the players and strictly punishes anyone who commits a cheat or disobeys the law.
However, it is not the referee who is responsible for the game but the players themselves, the referee is their to help it happen in a disciplined manner.
So, the job of the government is to enforce the laws on the people but to not own the work of the people, merely facilitate it strictly in a lawful fashion.