Off the cuff, I think it was Lenin who originated the phrase. It refers to the
question of wqho makes the laws, in whose favour etc., etc., and was his res
ponse to the (as he saw it) alleged impartiality of the "rule of law".
Incidentally, Hayek has a whole chapter titled "Who, whom?" in The Road
to Serfdom, which might be of some interest.
Robert Orr