Typically, it’s a mix of what constituents want and what a lawmaker thinks is beneficial. The latter can be shaped by legislators’ previous work experience, according to Matt Lesenyie, an assistant professor of political science at California State University, Long Beach. It impacts their preferred committee assignments, which shapes which issues they tackle. Lawmakers also take an oath to not just advocate for their district, but for California as a whole, though often that statewide agenda is shaped by the political parties. 

But other groups have an influence, too — what are often called “special interests.” They can be industries, such as oil and gas, as well as labor unions or advocacy groups for the environment and other causes. And often, these interest groups are major campaign donors to many legislative candidates.

"Special interests" can even be other government officials: The associations representing California’s 58 counties and 482 cities and towns, plus individual local governments, rank as the biggest spenders in lobbying state government — a total of nearly $700 million since 2002.   

And the governor — Gavin Newsom was sworn into this second four-year term on Jan. 6 — often sets the agenda, either formally through his proposed budget or bills he supports, or more informally through public events and using the bully pulpit. To jump-start his new term, he went on a statewide tour to promote his policy priorities on homelessness, prisons and healthcare — a four-day series of events that cost taxpayers at least five times more than the traditional State of the State speech. 

For this new Legislature, Newsom called a concurrent special session to debate his plan for a "penalty" on the excess profits of oil refiners. He signed a version of that proposal in March, and the session ended.