I am not convinced that Locke really thinks that the legislature is the supreme power. I believe that Locke thinks the executive is the supreme power. Locke begins off in chapter 14 by perceiving that, in any thoughtful society, circumstances will emerge that must be managed before the administrative can be amassed to give laws to them. In these cases, the executive may practice official right, or essentially "good judgment." The official is qualified to take activities that are outside the laws' system, if their activities propel the general public's best advantage. He characterizes this right as "nothing but the power of doing public good without rule.” He Also notes that he does not think the the legislature should always be in sessions
