330673_fm.qxd 02/02/05 1:04 PM Page i California Government CengageNot for Learning Reprint 330673_fm.qxd 02/02/05 1:04 PM Page ii CengageNot for Learning Reprint 330673_fm.qxd 02/02/05 1:04 PM Page iii ######## California Government Fourth Edition John L. Korey California State Polytechnic University, Pomona CengageNot for Learning Reprint Houghton Mifflin Company Boston New York 330673_fm.qxd 02/02/05 1:04 PM Page iv DEDICATION To Mary, always and to the newest family members— Welcome to California Publisher: Charles Hartford Sponsoring Editor: Katherine Meisenheimer Assistant Editor: Christina Lembo Editorial Assistant: Kristen Craib Associate Project Editor: Teresa Huang Editorial Assistant: Jake Perry Senior Art and Design Coordinator: Jill Haber Senior Photo Editor: Jennifer Meyer Dare Senior Composition Buyer: Sarah Ambrose Manufacturing Coordinator: Carrie Wagner Executive Marketing Manager: Nicola Poser Marketing Associate: Kathleen Mellon Cover image: Primary California Photography, © Harold Burch, New York City. California State Bear Photo © Bob Rowan, Progressive Image/CORBIS. Copyright © 2006 by Houghton Mifflin Company. All rights reserved. No part of this work may be reproduced or transmitted in any form or by any means, electronic or mechanical, including photocopying and recording, or by any information storage or retrieval system without the prior written permission of Houghton Mifflin Company unless such copying is expressly permitted by federal copyright law. Address inquiries to College Permissions, Houghton Mifflin Company, 222 Berkeley Street, Boston, MA 02116-3764. CengagePrinted in the U.S.A. Not for Learning Reprint Library of Congress Control Number: 2003116166 ISBN: 0-618-45234-6 123456789-QF-09 08 07 06 05 330673_fm.qxd 02/02/05 1:04 PM Page v ######## Contents Preface ix 1 “America, Only More So” 1 California and the Nation 1 Population Trends 2 Democracy, California Style 5 2 The State Constitution and Direct Democracy 9 A Different Sort of Document 9 Historical Background 9 Direct Democracy 11 The Initiative 12 The Referendum 12 The Recall 14 Changing the Constitution 15 The Continuing Controversy 16 3 Public Opinion and the Media 21 How People Think About Politics 21 Is California Different? 23 Regions 23 Ethnicity 25 CengageThe MediaNot 26 for Learning Reprint 4 Political Parties and Interest Groups 29 Parties 29 Party Organizations and Primary Elections 30 Party Organizations: Structures and Activities 32 v 330673_fm.qxd 02/02/05 1:04 PM Page vi vi Contents The Party in the Electorate 32 The Party in Government 33 Minor Parties 34 Interest Groups 36 5 Campaigns and Elections 40 Partisan Versus Nonpartisan Elections 40 Statewide Elections 41 The Primary 41 The General Election 42 Special Elections 42 Other Local Elections 42 Registration 42 The Ballot 43 Absentee Voting 45 Voting Turnout 45 Ethnicity and Voting 46 Parties and Elections 47 Is California Becoming a One-Party State? 47 Characteristics of Party Identifiers 48 Campaign Finance 48 Campaign-Management Firms 50 6 The State Legislature 52 Redistricting 52 Membership 55 Leadership 57 The Assembly: Jesse, Willie, and the Strong Speaker Era 57 The Senate 60 Lawmaking 61 The Role of Parties 62 Back to the Future? 64 Cengage7 The State’s PluralNot Executive for Learning Reprint 66 Governor 66 Separately Elected Officials 66 Tenure Potential 67 Appointment Power 67 330673_fm.qxd 02/02/05 1:04 PM Page vii Contents vii Budgetary Power 68 Veto Power 68 Party Control 68 Summary 69 Lieutenant Governor 70 Attorney General 71 Secretary of State 71 Insurance Commissioner 72 Superintendent of Public Instruction 72 Treasurer 73 Controller 73 Board of Equalization 74 Organization of the Executive Branch 74 The Governor’s Personal Staff 74 The “Agency Plan” 76 The Role of Other Elected Executives 77 Independent Boards and Commissions 77 The State Civil Service 77 Streamlining the Plural Executive 78 8 The Judicial Process 80 Court Structure 80 Trial Courts 80 Courts of Appeal 83 The California Supreme Court 84 Judicial Administration 86 Judicial Selection 86 Trial Courts 86 Appellate Courts 87 Removal of Judges 87 Accountability Versus Independence 88 Courts, Constitutions, and Federalism 89 The Criminal Justice System 91 Cengage9 Local GovernmentsNot and Tribalfor Learning Governments Reprint 93 Local Governments and the State 94 General-Purpose Governments 94 Cities 94 Counties 96 The Special Case of San Francisco 97 330673_fm.qxd 02/02/05 1:04 PM Page viii viii Contents Special-Purpose Governments 97 School Districts 97 Special Districts 98 Direct Democracy in Local Government 98 Contracting 99 Councils of Governments 99 Reorganizing Local Government 100 Tribal Governments and California Politics 100 10 Financing California Government 102 Trade-offs 102 Overview: California and Other States Compared 103 Budgetary Constraints 105 Tax Constraints 105 Spending Constraints 106 State Government Finance 108 The Budget Process 108 Where the Money Comes From, and Where It Goes 110 Local Government Finance 112 General-Purpose Governments 112 Special-Purpose Governments 113 Glossary 114 A Note on Sources 119 Notes 121 CengageIndexNot for Learning Reprint 141 330673_fm.qxd 02/02/05 1:04 PM Page ix ######## Preface hen our daughter, Meghan, was a little girl, she went to visit relatives on the East W Coast. While playing with friends, she drew a small butterfly on her knee, and convinced her playmates that this was a big fad in California. Soon, this “fad” spread among the other children. Meghan had caught on early to the Golden State’s cutting edge reputation, which has earned the fascination, though not always the admiration, of the rest of the country. In politics as well as culture, California can be just different enough to be confusing. Understanding the differences and the similarities is especially important given Califor- nia’s emphasis on direct democracy, which places especially high demands on citizens to act in an informed way. It remains the goal of this edition to help readers do so. The new edition retains the conciseness and clarity of the first three. Like previous editions, this fourth edition goes beyond description of the formal structures of politics and focuses on how people actually engage in political activity. Where necessary, I have undertaken original research to fill gaps in available information. REVISIONS The basic structure of the fourth edition resembles that of the third. All chapters have been thoroughly updated, and several have been significantly reworked. Chapters 2 and 9, for example, provide expanded analysis of the recall of state and local officials, respec- tively. Chapter 5 includes a new section on declining voter turnout. Chapter 8 contains new material on voting alignments within the state supreme court and on the criminal justice system. Chapter 9 contains a new section on Native American tribes and their role in state politics. CengageNot for Learning Reprint HELP FOR STUDENTS Glossary. Key terms that are either specific to or especially important in California politics are indicated in boldface when they first appear in the text (except when men- tioned incidentally). A glossary of these terms is provided in the back of the book. ix 330673_fm.qxd 02/02/05 1:04 PM Page x x Preface Surfing California: Internet Resources. Each chapter ends with a set of suggestions and URLs for students to use in exploring California politics on the world wide web. In addi- tion, the Houghton Mifflin College Division Web site (at college.hmco.com) includes an expanded book companion site where students will find chapter summaries, updates ex- plaining changes that have taken place in the political process, updated chapter links, and sample test questions. HELP FOR INSTRUCTORS The expanded book Web site at college.hmco.com also contains ancillary material for instructors, including the following: Test Item File. Instructors adopting California Government can obtain the password to ac- cess this online resource by contacting their Houghton Mifflin campus sales representative. Lecture Resources. These include PowerPoint™ presentations, essays providing in-depth analysis of selected topics, and links to Internet materials useful for faculty research. ACKNOWLEDGMENTS I remain in the debt of all whose contributions were acknowledged in the first three edi- tions. Doug Glaeser was particularly generous in guiding me through the constitutional issues addressed in Chapter 8. The reviewers for this edition contributed a number of in- sightful suggestions—Scott C. Heffner, De Anza College; James J. Kelleher, College of the Canyons; and Steven Holmes, Bakersfield College. I’d also like to thank the editors at Houghton Mifflin—Katherine Meisenheimer, Christina Lembo, and Teresa Huang—for their professionalism and their patience. Richard Stephens read the entire work and sig- nificantly improved its clarity and style, as did my wife, Mary Haggerty Korey. Michael Hout generously shared his analysis of ideological differences between Californians and residents of other states described in Chapter 3. Charles Gossett, Mark Schmuck, and Mark Lukasik shared their expertise regarding tribal governments, the courts, and the criminal justice system, respectively. Field Poll data were provided through the Social Science Data CengageBase Archive at CaliforniaNot State University, for Los LearningAngeles. Reprint J. L. K. 330673_fm.qxd 02/02/05 1:04 PM Page xi California Government CengageNot for Learning Reprint 330673_fm.qxd 02/02/05 1:04 PM Page