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Davis-Schwarzenegger Gubernatorial Transition & First 60 Days

January 12, 2005
Final update of text and links.

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     - Recall in California
    


Introduction

Gubernatorial transitions in California are normally conducted over a period of approximately eight weeks, from the time of the general election in November until the new governor takes office in early January. In the case of the recall of Gov. Gray Davis the transition period lasted only 40 days. Thus, the Davis-Schwarzenegger transition was abnormally abbreviated and unprecedented. Nevertheless, the transition period generally followed the processes of its predecessors: There are several major issues that an administration must address during the transition period. The governor-elect must appoint a personal staff and the heads of the state's administrative agencies, commissions and bureaus, and begin preparations on the state budget. The new governor also begins to set the tone of his administration, defining policy issues and processes by which the administration will govern.

Who pays for the transition? In years with scheduled gubernatorial elections the California Dept. of Finance automatically includes funding to assist gubernatorial transitions in the appropriate fiscal year appropriation. However, in the case of this unexpected recall there was no appropriation included in the 2003/04 budget and the Finance Department had to make a special appropriation to cover transition expenses.


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Davis-Schwarzenegger Transition, 2003

Gray Davis was recalled as governor of California and Arnold Schwarzenegger was elected to replace him on Oct. 7, 2003. The counties had 29 days to certify their returns and submit them to the Secretary of State who had 10 days to certify the counties' returns and declare the official results of the election. The new governor took office on Nov. 17, 2003. During the transition period the former governor continued to govern and began to define his administration by appointment, policy declaration and communication. Governor-elect Schwarzenegger appointed a 65 member transition team on Oct. 10 headed by Rep. David Dreier, R-San Dimas (Los Angeles County), "Eclectic Transition Group is Selected", San Francisco Chronicle, Oct. 10, 2003.

Schwarzenegger appointed 150-200 people to his personal staff, including his chief of staff, and there are approximately 1,000 administrative appointments the governor needs to make early in his administration. The California Department of Finance allotted $650,000 to cover the costs of the transition, $100,000 of the appropriation allotted to the out-going governor. In accordance with his campaign promise "to open the books" on California's state finances, Schwarzenegger appointed Donna Arduin, state budget director of Florida, to direct an audit of California's budget. In another follow-up on a campaign pledge, the governor-elect directed his lawyers to investigate a mechanism to repeal the increase in the vehicle license fee, a controversial measure approved by Gov. Davis to close part of the state budget short-fall. Immediately after his inaguration, Gov. Schwarzenegger signed an executive order rescinding the increase in the license fee. Additional issues the governor-elect faced immediately upon assuming office include preparation of the 2004/05 state budget, which must be submitted to the state printer by mid-December for submittal to the Legislature in early January. He must also forge a relationship with a legislature controlled by the Democrats, and deal with special interest groups including the Indian tribes, whose influence in California politics Schwarzenegger pledged to control during his campaign.


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Selected Background Readings

MacManus, Susan A.
"Gubernatorial Transition in Florida: A Look at How Politics, Budgeting, and Policy Analysis Interface,"Public Budgeting and Finance, v. 20, n. 3, Fall 2000, p.139-155.
MacManus, Susan A.
"Gubernatorial Transition in Florida: A Look at How Politics, Budgeting, and Policy Analysis Interface,"Public Budgeting and Finance, v. 20, n. 3, Fall 2000, p.139-155.
Block, A.G.
"Two Cents: Transitions," California Journal, v. 30, n. 1, Jan. 1999, p.4.
Lesher, David
"California and the West; Davis Names Barry Munitz to Head Transition Team; Administration: Governor Elect Says Choice of Former Cal State Chancellor Signifies Commitment to Education," Los Angeles Times, Nov. 10, 1998.
"Gubernatorial Transitions," Snap Shots in Californiana v. 8, n.2, Fall 1998.
Foley, Janet
"The Language of State Agency Executive Transitions," American Review of Public Administration, v. 24, n.1, Mar. 1994, p.[43]-66.
Governor Pete Wilson: Gubernatorial Transition Period / Newspaper clippings, Nov. 1990- Apr. 1992.
Collection housed in the Institute of Governmental Studies Library.
Gable, Richard
Changing Governors: The 1982-83 Transition in California, Institute of Governmental Affairs, UC Davis, Dec. 1983.

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Selected Websites

Join Arnold
Arnold Schwarzenegger's official transition site.
March 2, 2004 Voter Information Guide and Supplemental Ballot Pamphlet
From the California Secretary of State.
Los Angeles Times politics page
San Francisco Chronicle's politics page
California Spending Plan 2003-04: The Budget Act and Related Legislation
Analysis by the California Legislative Analysts Office
San Diego Union Tribune recall page
San Jose Mercury's recall page

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Selected Newspaper Articles


"Governor Makes Pro-Business Pick: Chamber of Commerce executive Named Schwarzenegger's Deputy Chief of Staff" San Francisco Chronicle, Nov. 20, 2003.
Chorneau,Tom
"Schwarzenegger Wants Big Bond, Spending Cap to Face Voters" San Francisco Chronicle, Nov. 18, 2003.
Lawrence, Steve
"Schwarzenegger Sets Sessions On Budget, Workers' Comp, Licenses" San Francisco Chronicle, Nov. 18, 2003.
Salladay, Robert; Marinucci, Carla.
"Schwarzenegger Vow: ‘Miracle of Sacramento’: New Governor Takes Office Before Throngs of Invited Guests, Global TV Audience" San Francisco Chronicle, Nov. 18, 2003.
Lucas, Greg
"Budget Analyst Sees Gap of $62 Billion by 2007: Huge Shortfall Only If Nothing Done to Fix It" San Francisco Chronicle, Nov. 18, 2003.
"2003 California Recall" California Journal, v.34, no.11 (Nov. 2003), p.[6]-37.
Contents: Mixed Messages by David Lesher -- Californians Make Their Choices by Mark Baldassare, Bruce Cain and Johnathan Cohen -- Democratic Daze by Philip J. Trounstine -- Which Way Arnold? by Peter Schrag -- Can Arnold Lift an Elephant? by Dan Schnur -- Arnold and George by Marc Sandalow -- Dangerous Distractions by Bill Whalen -- Why I Voted For Arnold by Bill Lockyer -- Gray Memories by Daniel Borenstein -- Reading Recall Tea Leaves in L.A. by Sherry Bebitch Jeffe.
"Gov. Arnold Schwarzenegger's Inaugural Address " San Francisco Chronicle, Nov. 17, 2003.
"Arnold Schwarzenegger Sworn In As Governor of California" San Francisco Chronicle, Nov. 17, 2003.
Lucas, Greg
"Analyst Warns Against Borrowing: State Urged to Shun Future Perils of Debt" San Francisco Chronicle, Nov. 15, 2003.
Lucas, Greg
"Schwarzenegger Plans to Trim Workers' Comp: Bid Would Limit Doctor Visits, Recovery Time" San Francisco Chronicle, Nov. 13, 2003.
Chorneue, Tom
"Schwarzenegger Rounding Out Cabinet With Democrats" San Francisco Chronicle, Nov. 13, 2003.
Martin, Mark
"Gov.-elect's EPA Choices Both Anger, Thrill Activists: Environmentalist to Head Agency; Timber Exec to be Undersecretary" San Francisco Chronicle, Nov. 13, 2003.
Simon, Mark
"STATE of TRANSITION: The Inauguration: Schwarzenegger Prepares For a Low-key Swearing-in" San Francisco Chronicle, Nov. 13, 2003.
Martin, Mark
"Schwarzenegger Recruits Press Aide From CNN: 3rd Wilson Staffer Joins Eclectic Mix From Left, Right " San Francisco Chronicle, Nov. 11, 2003.
Kirby, Carrie
"Auto Buyers Stall, Wait For Fee Cut Dealers Eager For Schwarzenegger To Keep Promise" San Francisco Chronicle, Nov. 6, 2003.
Lucas, Greg
"Property Taxes Back to Cities? Schwarzenegger's Plan to Account For Lack of Vehicle Fees" San Francisco Chronicle, Nov. 6, 2003.
Berthelson, Christina
"4 Named to Schwarzenegger's Staff: Inauguration Nov. 17, to be Invitation Only" San Francisco Chronicle, Nov. 5, 2003.
Gledhill, Lynda; Marinucci, Carla
"Gov.-elect Names Finance Chief Riordan to be Education Secretary" San Francisco Chronicle, Nov. 4, 2003.
Matier, Andrew; Ross, Phillip
"Davis May Be Down But Don't Count Him Out Yet" San Francisco Chronicle, Nov. 3, 2003.
Gledhill, Lynda
"Schwarzenneger's Plan for Budget Would Cost: State Controller Warns of $10 Billion in Fees for Deep Borrowing" San Francisco Chronicle, Oct. 30, 2003.
Sandalow, Marc; Coile, Zachary
"State's Leader Takes Show to D.C.: Schwarzenegger Treated like Visiting Royalty" San Francisco Chronicle, Oct. 30, 2003.
Gledhill, Lynda
"Profile: Donna Arduin; Schwarzenegger's Adviser Hits the Books" San Francisco Chronicle, Oct. 27, 2003.
Salladay, Robert
"'Open Arms' For Schwarzenegger: Cordiality Rules the Day as Governor-Elect Meets Top Democrats" San Francisco Chronicle, Oct. 24, 2003.
Lucas, Greg
"Davis Gives Posts to Key Staff: Supporters Quietly Appointed to Plum Jobs After Recall" San Francisco Chronicle, Oct. 24, 2003.
Morain, Dan
"HMO Exec Named Schwarzenegger's Chief of Staff: Patricia Clarey, Veteran of Washington and Sacramento, Has Been Lobbying For Health Net" Los Angeles Times, Oct. 23, 2003.
Martin, Mark
"Pete Wilson Worker to be Chief of Staff: Health Care Lobbyist Clarey is Schwarzenegger's First Hire" San Francisco Chronicle, Oct. 23, 2003.
Jones, Greg; Morain, Dan
"Rocky Recall Road Ending in Smooth Shift: Officials From the State's Incoming and Outgoing Administrations Report a Professional Transition" Los Angeles Times, Oct. 22, 2003.
Morain, Dan
"HMO Exec a Top Candidate for Schwarzenegger Chief of Staff" Los Angeles Times, Oct. 19, 2003.
Sheppard, Harrison
"So Who Will Join Arnold? Governor-Elect Acting With Haste to Pick His Team" The Daily News of Los Angeles, Oct. 19, 2003.
Wasserman, Jim; Chorneau, Tom
"Schwarzenegger Team Heavy on Business, Tax Conservatives" San Francisco Chronicle, Oct. 18, 2003.
Lucas, Greg; Gledhill, Lynda
"Schwarzenegger Collects Resumes: Governor-elect Says He's Forming a Team" San Francisco Chronicle, Oct. 17, 2003.
Martin, Mark; Simon, Mark
"Schwarzenegger Hears From Job Seekers: Hundreds of Applications Received by Governor-elect" San Francisco Chronicle, Oct. 14, 2003.
"Governor-elect Pumps Up Transition With Lawyers " The Recorder, Oct. 13, 2003.
"Winds of Change Are Coming to Sacramento" San Diego Union Tribune, Oct. 12, 2003.
Orlov, Rick
"Arnold's Daunting Task: Modera Both Parties in Capital," Los Angeles Daily News, Oct. 11, 2003.
"California Transition: Schwarzenegger's Team" San Francisco Chronicle, Oct. 10, 2003.
Simmerman, John; Ashley, Guy; Booth, Claire
"Countdown to Transition Begins," Contra Costa Times, Oct. 9, 2003.
Murphy, Dean E.
"Schwarzengger Lays Foundation For Transition to Power," New York Times, Oct. 9, 2003.
Marinucci, Carla.
"Governor-elect Has Aggressive Agenda," San Francisco Chronicle, Oct. 9, 2003.
Stanton, Sam.
"Schwarzengger Embarks On His Transition to Power: Office Will Get His Full Attention, He Says," Sacramento Bee, Oct. 9, 2003.
Fouhy, Beth.
"Governor-elect Names Transition Team, Vows to Open State Books," San Diego Union-Tribune, Oct. 9, 2003.

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First 60 Days

Governor Arnold Schwarzenegger was inaugurated on Nov. 17, 2003. He immediately took steps to make good on some campaign promises including rescinding the vehicle license fee which he did immediately upon taking office, Executive Order S-1-03. He also issued an executive order imposing a state government hiring freeze, Executive Order S-3-03. Gov. Schwarzenegger also fulfilled a campaign promise by signing a bill that repealed the law that would have allowed undocumented immigrants to obtain driver's licenses, SBX3.1, Oller. He also brokered a deal with the Legislature concerning California's growing budget deficit by negotiating a fiscal package that will appear on the March 2004 primary ballot. Two separate propositions, nos. 57 and 58, will ask California voters to approve a $15 billion bond to retire the state's current debt,"The Economic Recovery Bond Act", and an initiative constitutional amendment, "The California Balanced Budget Act", which would amend the Constitution to require a balanced budget, establish state budget reserve requirements, and limit future borrowing to finance state budget deficits, (see proposition summaries). However, the Governor did renege on his promise to appoint an independent commission to investigate allegations that he harassed women during his acting career. On January 6, 2004 Governor Schwarzenegger delivered his first State of the State Address, reassuringCalifornians that a more promising economic future lies ahead if economic sacrifices are made in the next fiscal year.

On January 9 Gov. Schwarzenegger released his 2004-05 budget, a $99.1 billion spending plan for California. The Governor's budget includes cuts in public welfare, education and local government programs to reduce the projected $14 billion deficit in 2004-05. Without the passage of Proposition 57, "The Economic Recovery Bond Act" which would authorize the state to sell bonds to retire the 2003-04 deficit, and the cuts the Governor proposes in his 2004-05 budget, the total state budget deficit by June 30, 2005 could approach $27 billion.



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Selected Articles

Chorneau, Tom
"California Budget Plan Relies on Cuts and Borrowing to Avoid Tax Hike." San Francisco Chronicle, Jan. 10, 2004.
"Governor Releases Proposed 2004-05 Budget." California Budget Project, Jan. 9, 2004.
[Budget Analyses] California Capitol Hill, vol. 11, Bulletin 1, Jan. 9, 2004.
Martin, Mark; Gledhill, Lynda; Berthelsen, Christian.
"Upbeat Schwarzenegger Warns State Lawmakers: Fiscal Crisis: He'll Solve It With Their Help or Take His Case to the Voters." San Francisco Chronicle, Jan. 7, 2004.
Nicholas, Peter; Rabin, Jeffrey L.
"Governor's Budget Bill Comes Due: Schwarzenegger Has Said He Can Set State Finances Straight Without Raising Taxes." Los Angeles Times, Jan. 5, 2004.
Gledhill, Lynda.
"Governor's Fund-Raising Gambit Draws Ire: One of New Committees Isn't Covered by Contribution Caps, Has Nearly $200,00" San Francisco Chronicle, Jan. 4, 2003.
Gledhill, Lynda; Martin, Mark.
"Schwarzenegger Restores Funds to Cities, Disabled: He Uses Executive Power, Quiets Some Critics" San Francisco Chronicle, Dec. 19, 2003.
Gledhill, Lynda; Martin, Mark; Kim, Ryan.
"State to Make Up Lost Vehicle Fees: Governor to Declare Emergency, Pay Counties, Cities " San Francisco Chronicle, Dec. 18, 2003.
Jones, Gregg
"Crusty Democrat May Be Key to Governor's Success" Los Angeles Times, Main News; Part 1; Page 1; Metro Desk, Dec. 14, 2003.
Becerra, Hector; O'Connell, Chris
"Latino License Protest Hits Schools" Los Angeles Times, California Metro; Part 2; Page 1; Metro Desk, Dec. 13, 2003.
Berthelsen, Christian; Salladay, Robert
"Budget Deal Not the 'Usual' Effort: Dems Applaud Schwarzenegger's Compromise" San Francisco Chronicle, Dec. 13, 2003.
Berthelsen, Christian; Gledhill, Lynda
"Governor, Lawmakers Reach Deal On Budget: Bipartisan Pact Seen as a Win for Schwarzenegger" San Francisco Chronicle, Dec. 12, 2003.

"Details of the State Budget Proposal That Has Gained Assembly Approval" Los Angeles Times, Main News; Part 1; Page 48; Metro Desk, Dec. 12, 2003.
Vogel, Nancy; Halper, Evan.
"Governor, Democrats Close to Deal on Spending Limit, Bonds" Los Angeles Times, Dec. 11, 2003.
Salladay, Robert; Berthelsen, Christian; Lucas, Greg
"Governor Loses Battle On Budget: Schwarzenegger's Next Move May Be November Initiative" San Francisco Chronicle, Dec. 6, 2003.
"Davis' Driver's License Bill Killed: Latino Activists Planning One-Day Economic Strike In Protest " San Francisco Chronicle, Dec. 4, 2003.
Gledhill, Lynda
"Immigrant Driver License Repeal Passes: Rewrite of Measure Planned -- Governor Says He'll Work For a 'Sensible Solution'" San Francisco Chronicle, Dec. 2, 2003.
Gledhill, Lynda; Martin, Mark
"Governor's Spending Cap Called Power Grab: Democratic Lawmakers Balk at Rushing Action on Budget Plan" San Francisco Chronicle, Nov. 26, 2003.
Lucas, Greg
"Governor Proposes Midyear Budget Cuts: Plans to Slash $2 Billion Would Hit Health-and-Welfare Programs Hardest" San Francisco Chronicle, Nov. 25, 2003.
DelVecchio, Rick; Stannard, Matthew B.; Burress, Charles;
"Cities Inherit State's Budget Woes: License Fee Rollback a Drain on Revenues " San Francisco Chronicle, Nov. 24, 2003.
Chiang, Harriet
"Governor Paroles Killer -- Apparent New Policy: Schwarzenegger, Unlike Davis, Heeds Judgment of Board" San Francisco Chronicle, Nov. 22, 2003.
Lucas, Greg
"Governor: Pass Bond or Raise Taxes: Schwarzenegger Rejects Reductions in Social Programs" San Francisco Chronicle, Nov. 21, 2003.
Lucas, Greg
"Rancher to Lead Resources Agency: Environmentalists Extol Governor's Pick" San Francisco Chronicle, Nov. 22, 2003.

"Schwarzenegger's Progress On Plans For First 100 Days as Governor" San Francisco Chronicle, Nov. 21, 2003.

Prepared by the staff of the IGS Library.
Send comments to igsl@uclink.berkeley.edu.
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