The budget process, so named, encompasses all influences of political organizations, trade unions, federal and local governments and is influenced externally from natural events, legal issues, the economy to name just a few. Rather than focus on spending, I would focus instead on attracting/retention of existing business. In 2008, California lost 257,000 jobs (more than any other state). With this loss comes the resulting loss of tax base and revenues shrink. There needs to be oversight of what agencies are doing with these revenues during 'good years', socking money away to see them through the dark times, rather than (as you describe) spending the excess funds in a 'use it or lose it' orgy of waste or on extravagent CEO getaways. Finally, why not institute a bi-annual budget process?