It depends on the subject. For example, if it's a zoning bylaw, the stakes may be very high, and so the turnout may be high. In cases like that, obviously it's the opponents who vote, to prevent the bylaw being passed. Whether it is a borrowing bylaw or a zoning bylaw, you have to understand that the result of the referendum is binding on the municipal council. In the case of a consultative referendum, however, the turnout may be very low.
On December 1st, 2009. See this statement in context.