Tax and Revenue Policy Glossary

Authorizes agencies, departments, and other entities to spend money or create obligations from a specific fund for a specific purpose. Only budget bills may contain more than a single item of appropriation.

Reviews the governor’s budget proposals and develops the Assembly’s version of the state budget. Most of the committee’s work is done through subcommittees that focus on specific policy areas.

An increase to a previously authorized appropriation.

A state constitutional mandate for estimated revenues to equal or exceed estimated spending. It applies both to the governor’s proposed budget and to the budget bill as passed by the Legislature.

A bill authorizing the sale of state general obligation bonds.

State funds that account for the receipt and disbursement of proceeds from general obligation bonds.

The initial budget bill passed by the Legislature and signed into law by the governor, after any line-item vetoes. The Budget Act can be referred to by the year in which it becomes law (“Budget Act of 2022”) or by the fiscal year to which it applies (“2022-23 Budget Act”).

A bill that provides authority to spend money (appropriations) across an array of public services and systems for a single fiscal year. Each year’s budget package typically contains multiple budget bills, including the Budget Act and at least one Budget Bill Jr. Budget bills move through budget committees rather than through the Legislature’s policy bill process. The Legislature can pass budget bills with a simple majority vote of each house.

The informal term to describe any budget bill that amends the Budget Act. Multiple Budget Bill Jrs. may be described using Roman numerals (Budget Bill Jr. I, Budget Bill Jr. II, etc.).

Explains how appropriations in the Budget Act must be administered, such as by specifying constraints on expenditures or providing additional or exceptional authority. Provisional language is inserted after an appropriation, or a set of appropriations, and is distinct from the control sections in the Budget Act.

A proposal by an agency, department, or other entity to revise a currently authorized level of service, create a program, or eliminate a program. BCPs that are approved by the governor and submitted to the Legislature for consideration are posted to the Department of Finance website.

A small group of legislators from both houses who work to reconcile differences between the Assembly and Senate versions of the state budget. Members are appointed by the leadership of each house, typically in late May or early June, with the majority party controlling most of the allotted seats. Lawmakers do not have to form a conference committee to create a unified legislative budget. Instead, they may reconcile differences through private negotiations, which may or may not include the participation of the minority party.

The combined set of budget bills and trailer bills — potentially numbering into the dozens — that make up the state budget for a fiscal year. The Legislature typically sends the initial set of bills in the budget package to the governor in late June and sometimes early July. Additional budget-related legislation is enacted at other times during the fiscal year, thus increasing the size and scope of the initial budget package. From time to time, bills that move independently of the Budget Act — and therefore are not trailer bills — may be considered part of the budget package. This could include, for example, legislation to place a constitutional amendment before the voters.

California’s main state budget reserve. Deposits into and withdrawals from the BSA are governed by rules added to the state Constitution by Proposition 2 (2014). The BSA is commonly referred to as the state’s “rainy day fund.”

The upcoming state fiscal year, which begins on July 1. See also Current Year.

Expenditures to acquire land; construct, modify, or expand buildings; and/or purchase construction-related equipment. Certain types of capital outlay expenditures — including for housing-related projects — are excluded from appropriations that are subject to the state spending cap (Gann Limit).

A resolution to change the language of the state Constitution. Such resolutions require a two-thirds vote of each house of the Legislature and must be approved by voters in a statewide election (simple majority vote). Constitutional amendments also can be placed on a statewide ballot through the initiative process, thus bypassing the Legislature. On rare occasions, legislative proposals to amend the state Constitution may be integral to the state budget framework, and in these cases would typically be recognized as part of the overall budget package.

An appropriation for a specific amount that is available for more than a single year. Not to be confused with continuous appropriation.

An expenditure that is authorized by the state Constitution or by state law that is renewed each year without additional action by the Legislature. Not to be confused with continuing appropriation.

The individual sections of the Budget Act, beginning with 1.00. Control sections define the terms used in the budget, identify restrictions on appropriations, and provide other instructions and information related to the budget.

An adjustment in spending that reflects the change in the cost of living. The Legislature and the governor may provide “discretionary” COLAs through the annual state budget process. In contrast, “statutory” COLAs are required by state law. However, the Legislature may suspend a statutory COLA for a fiscal year by a simple majority vote of each house.

The present state fiscal year, which ends on June 30. See also Budget Year.

Occurs when expenditures exceed revenues under current law and policy. “Revenues” includes any balance, positive or negative, carried in from the prior fiscal year. In contrast to an operating deficit, which applies to a single fiscal year, the term “deficit” is generally used in assessments of the state’s fiscal condition over multiple fiscal years.

Leads the development of the governor’s budget proposals, prepares the governor’s budget documents, testifies on behalf of the governor at budget committee hearings, develops economic and demographic forecasts, and performs several other functions. The DOF’s director (Director of Finance) is the governor’s chief fiscal advisor.

The initial set of bills in the budget package as passed by the Legislature and approved by the governor. The Legislature typically sends these bills to the governor in late June and sometimes early July.

A bill that is passed by both houses of the Legislature and signed by the governor — or allowed to become law without the governor’s signature — is “enacted into law.”

The obligation of an appropriation, in whole or in part, such as for an unfulfilled purchase order or an outstanding contract. Outstanding encumbrances recognize commitments that will be logged as spending when goods or services are received. The purpose of an encumbrance is to prevent an appropriation from being overspent.

Proposals from the Department of Finance to revise the governor’s proposed budget as provided to the Legislature in January. These requested changes are outlined in letters from the Director of Finance to the chairpersons of the Assembly Budget Committee and the Senate Budget and Fiscal Review Committee. Finance Letters are due to the Legislature by April 1, May 1, or May 14, depending on the subject matter.

The 12-month period (July 1 to June 30) that the state budget is in effect.

A constitutional spending limit established in 1979 through voter approval of Proposition 4. The Gann Limit — also known as the State Appropriations Limit — restricts the growth of certain appropriations from tax proceeds. At the state level, the cap is tied to California’s 1978-79 spending level and is adjusted each year for changes in population and per capita personal income. (The limit works differently for local governments.) If the state limit is exceeded over two consecutive years, half of the revenue above the limit goes to taxpayers and the other half goes to K-12 schools and community colleges.

The state’s major operating fund, which accounts for revenues that are not designated for a specific purpose. The three major sources of General Fund revenues are the state personal income tax, the state sales and use tax, and the state corporation tax. Most General Fund expenditures go toward K-12 and higher education, health and human services programs, and the state prison system.

Funds borrowed from investors generally to finance infrastructure projects. Repayment of GO bonds typically comes from the state’s General Fund and, in all cases, is guaranteed by the full faith and credit of the state. GO bonds require a two-thirds vote of each house of the Legislature and must be approved by voters in a statewide election (simple majority vote). GO bonds may also be placed on the ballot through the initiative process, thus bypassing the Legislature. See also Lease-Revenue Bonds.

Provides the governor’s economic and revenue outlook, highlights major policy initiatives in the governor’s proposed budget, and summarizes proposed state expenditures. The governor’s budget summary is released — along with the proposed budget — on or before January 10.

Provides a detailed overview of the governor’s proposed expenditures for the upcoming fiscal year, estimated expenditures for the current fiscal year, and actual expenditures for the prior fiscal year. The proposed budget is released — along with the governor’s budget summary — on or before January 10.

The state constitutional deadline for the governor to propose a budget for the upcoming fiscal year. The budget bill, as prepared by the Department of Finance, reflects the governor’s proposal and is introduced immediately into each house of the Legislature by the chairpersons of the Assembly Budget Committee and the Senate Budget and Fiscal Review Committee.

The state constitutional deadline for the Legislature to pass the initial budget bill for the upcoming fiscal year. If lawmakers miss this deadline, they permanently forfeit both their pay and their reimbursement for travel and living expenses (“per diem”) for each day after June 15 that the budget is not passed and sent to the governor. Budget-related trailer bills do not have to be passed by June 15.

Funds borrowed from investors generally to finance infrastructure projects. Lease-revenue bonds are repaid with lease payments — typically General Fund dollars — made by state agencies that use the facilities they finance. These facilities include prisons, courthouses, and university buildings. Lease-revenue bonds are not guaranteed by the full faith and credit of the state. They require a simple majority vote of each house of the Legislature, but do not need voter approval. See also General Obligation Bonds.

An independent, nonpartisan office that conducts research and analysis on state budget issues, analyzes statewide ballot measures, and provides fiscal and policy advice to the Legislature. The LAO is overseen by the Legislature’s bipartisan Joint Legislative Budget Committee.

The governor’s power to reduce or eliminate specific items of appropriation while approving other portions of a bill. The governor must offer reasons for any items that are reduced or eliminated. The Legislature may override a line-item veto with a two-thirds vote of each house. See also Veto.

Expenditures for the support of local governments or other locally operated activities.

The deadline set in state law for the governor to release the May Revision.

Released on or before May 14, the May Revision updates the governor’s economic and revenue outlook; adjusts the governor’s proposed expenditures to reflect revised estimates and assumptions; revises, supplements, or withdraws policy initiatives that were included in the governor’s proposed budget in January; and outlines adjustments to the minimum funding guarantee for K-14 education required by Proposition 98 (1988).

Occurs when expenditures for a fiscal year exceed revenues for that same fiscal year under current law and policy. “Revenues” excludes any balance, positive or negative, carried in from the prior fiscal year.

Occurs when revenues for a fiscal year exceed expenditures for that same fiscal year under current law and policy. “Revenues” excludes any balance, positive or negative, carried in from the prior fiscal year. An operating surplus provides policymakers with discretionary revenues to allocate through the state budget process. However, the existence of an operating surplus does not indicate that Californians’ needs have been fully met or that additional state investments are unnecessary. In fact, an operating surplus may result — at least in part — from maintaining spending cuts that were made in prior fiscal years, which leaves spending lower than it otherwise would be and thus contributes to the operating surplus.

A proposed change to state law that is reviewed by the Legislature’s policy committees and, if required, by appropriations committees to estimate the cost of the proposal. In general, policy bills need only a simple majority vote of each house and take effect on the following January 1 if signed by the governor or allowed to become law without a signature. A policy bill may take effect immediately if it receives a two-thirds vote of each house (“urgency statute”). On rare occasions, policy bills may be integral to the state budget framework, and in these cases would typically be recognized as part of the overall budget package.

Governs deposits into and withdrawals from the Budget Stabilization Account and the Public School System Stabilization Account. Prop. 2 also requires the state to pay down certain debts. Funding for these two reserves and for the debt payments comes from state General Fund revenue based on formulas in the state Constitution.

Allows the Legislature to pass budget bills and certain trailer bills by a simple majority vote of each house. Bills passed under the rules of Prop. 25 take effect immediately upon being signed by the governor or on a date specified in the legislation. To qualify as a Prop. 25 trailer bill, the bill must be identified in the budget bill and contain an appropriation of any amount. Bills that require a supermajority vote of the Legislature — such as a bill to increase a tax — cannot be passed as Prop. 25 majority-vote trailer bills, although they still may move through budget committees along with other trailer bills.

Requires a two-thirds vote of each house of the Legislature to increase any tax. Prop. 26 also expanded the definition of a tax to include some charges that were previously considered “fees” and could be passed by a simple majority vote of each house. These redefined “taxes” require a two-thirds vote of each house.

Requires bills to be distributed to legislators and published on the internet, in their final form, at least 72 hours before being passed by the Legislature. This rule applies to all bills, including bills that are part of the budget package.

Guarantees a minimum annual level of funding for K-12 schools and community colleges. The amount of the guarantee is calculated each year using one of three tests that apply under varying fiscal and economic conditions. Two of these tests include adjustments for changes in statewide K-12 attendance. Prop. 98 funding comes from the state General Fund as well as from local property tax dollars.

A state budget reserve for K-12 schools and community colleges. Deposits into and withdrawals from the PSSSA are based on rules added to the state Constitution by Proposition 2 (2014).

See Budget Stabilization Account (BSA).

Funds received by the state, generally derived from taxes, licenses, fees, or investment earnings. Revenues are deposited into specific funds and are not available for expenditure until appropriated.

A General Fund reserve created in 2018 to help pay for higher state costs in the CalWORKs and Medi-Cal programs during recessions.

Reviews the governor’s budget proposals for the upcoming fiscal year and develops the Senate’s version of the state budget. Most of the committee’s work is done through subcommittees that focus on specific policy areas.

State funds that account for taxes, fees, and licenses that are designated for a specific purpose. The state has more than 500 special funds.

California’s discretionary General Fund budget reserve. The SFEU serves as a buffer against unanticipated revenue shortfalls or spending increases. The reserve level is equal to the difference between General Fund resources and General Fund expenditures in a fiscal year. Due to California’s constitutional balanced-budget requirement, the projected SFEU balance cannot be less than zero at the time the budget is adopted. If revenues come in lower than projected or spending unexpectedly rises, the SFEU balance will decline and can become negative if spending exceeds revenues.

See Gann Limit.

Expenditures for the support of state government, excluding capital outlay and local assistance. State support for the California State University and the University of California, for example, primarily consists of state operations funding.

A law that has been formally approved and recorded; an enacted bill. See also Enactment.

Typically refers to money that is spent as local assistance and allocated based on a formula, rather than being provided selectively as grants.

Occurs when revenues exceed expenditures under current law and policy. “Revenues” includes any balance, positive or negative, carried in from the prior fiscal year. In contrast to an operating surplus, which applies to a single fiscal year, the term “surplus” is generally used in assessments of the state’s fiscal condition over multiple fiscal years. A surplus provides policymakers with discretionary revenues to allocate through the state budget process. However, the existence of a surplus does not indicate that Californians’ needs have been fully met or that additional state investments are unnecessary. In fact, a surplus may result — at least in part — from maintaining spending cuts that were made in prior fiscal years, which leaves spending lower than it otherwise would be and thus contributes to the surplus.

Refers to exceptions to “normal tax law” that reduce the revenue that governments would otherwise collect. These exceptions include, but are not limited to, exemptions, deductions, exclusions, tax credits, deferrals, elections, and preferential tax rates. Tax expenditures are commonly referred to as tax breaks, tax loopholes, or tax preferences.

Generally makes changes to state law needed to implement the policies assumed in the Budget Act. For example, if the Budget Act includes funding for a new program, the details of the program would be outlined in a trailer bill. Trailer bills move through the Assembly and Senate budget committees, with each bill addressing a specific policy area, such as health, housing, higher education, or transportation. The Department of Finance is required to post trailer bill language that is needed to implement the governor’s proposed budget by February 1.

Under rules established by Proposition 25 (2010), trailer bills generally can be passed by a simple majority vote of each house of the Legislature and take effect immediately upon being signed by the governor. The only requirements for trailer bills are that they (1) be listed in the Budget Act and (2) contain an appropriation of any amount. Still, even with Prop. 25, some types of trailer bills require a supermajority — generally two-thirds — vote of each house. This includes, for example, trailer bills that would raise taxes or amend a state law that was approved by voters through a ballot initiative. However, most trailer bills in a budget package will need only a simple majority vote to pass.

A budget mechanism that is typically used to reduce certain expenditures automatically if revenues fail to reach a predetermined target. A trigger also can be used to automatically increase certain expenditures if revenues exceed a predetermined level.

Revenue collections that are expected to exceed prior projections, such as the revenue forecast assumed in the enacted budget. Not to be confused with surplus.

The governor’s power to reject a bill by returning it with any objections to the house of origin. The Legislature may override a veto by passing the bill with a two-thirds vote of each house. See also Line-Item Veto.

The estimated cost of currently authorized services in the upcoming fiscal year. To determine the workload budget, current-year costs are adjusted to reflect changes in student enrollment, program caseloads, and the prison population; statutory cost-of-living adjustments; recently enacted legislation; expenditures required by court orders or by the federal government; one-time expenditures; and several other factors. A workload budget is also known as a “baseline budget.”