According to homeland security secretary janet napolitano, what is the only branch of government that is able to initiate a reform bill?

According to the homeland security secretary Janet Napolitano, the only branch of government that is able to initiate a reform bill is the Congress. She was asked about this during a press conference in 2010 in the context of moving forward on comprehensive immigration reform. 

the two sets of lines are :

and remember beauty,five-wits,strength,and discretion ,they all at the last do everyman forsake (to leave forever ) for after death amends may no man make,for then mercy and pity doth him forsake.(to leave forever )