tracy gordon studies state finances and says voters often tinker with budget process reforms when the economy turns sour. >> oftentimes, voters try to influence the budget process because they feel like they're not sure how they got into this situation. >> reporter: to make sure they don't get into another budget bind, five states are considering setting up or expanding rainy day funds for emergencies. but gordon says ballot measures that set the rules of the budget debate are different than the actual decisions on what and where to cut. >> sometimes these kinds of measures can just distract attention from the hard choices that need to be made. >> reporter: climate change is a hard choice on the california ballot. proposition 23 which would prevent the state's climate change law from taking effect now appears to be losing. energy analyst kevin book says that's because big oil companies are sitting out this fight, opting to live with the new regulation. >> it is the integrated oils that can afford to make small changes that have big global results. the small companies, they're the ones