Why Would the Legislature Request?

We know in drafting California statutes, the term “shall” is mandatory and the term “may” is permissive. In other words, required conduct found in a statute uses the word “shall,” while discretionary conduct found in a statute used the word “may.” So, would the Legislature “request” something? In other words, why would the Legislature not tell someone or some entity to do something or authorize them to do something, rather than request them to do something?

Although it is not common in California statute for the Legislature to request something, this term does need to be used when it comes to legislation affecting the University of California, which enjoys some degree of constitutional autonomy. As a result, although the Legislature can require the California State University system and the community colleges in this state to do something, it is actually the UC Board of Regents that enacts policy for the 10-campus UC system.

Because of this partial constitutional autonomy, the reader will come across a statement similar to the following in some UC-related legislation: “The Legislature requests that the Regents of the University of California….”

Other than UC-related legislation, how often does the Legislature request something? Not often. But there are instances in California law where we do find this term. For example, in the Unemployment Insurance Code, in Section 9912, it provides in subdivision (a): “The Legislature requests that the Senior Worker Advocate Office of the Employment Development Department…to join in this effort.” Similarly, in subdivision (b), it states: “The Legislature requests that this outreach…”

So, while not common in California statute, there are occasions where the Legislature does not direct or authorize, but simply “requests” that something be done. Does this phrase have the force and effect of law? Or does it not because it is just a request of the Legislature?