What Is California's ‘Jungle Primary’ — and Why Does It Matter so Much for the Governor’s Race?

In California’s upcoming June primary election, you’ll have the opportunity to cast your ballot for any of the candidates for governor, regardless of which party you’re registered with. The top two vote-getters advance to the general election.

Known as a “jungle primary,” this system is different from how most states handle their primary elections.

This year, Democrats raised the alarm that two Republican gubernatorial candidates may move to the general election, locking out Democrats despite outnumbering Republican registered voters almost two to one. That’s because the crowded field of Democratic candidates threatens to split the party’s vote. Until recently, multiple polls have shown the two Republicans, former Fox News host Steve Hilton and Riverside County Sheriff Chad Bianco, polling at the top of the race.

Driven in part by these concerns, critics of the top-two primary have now filed a ballot initiative that would repeal this system and return California to party-based primaries, potentially as early as 2030.

But how does this top-two arrangement work? Why does California do things this way? And what are the chances of voters choosing between two GOP candidates for governor in November?

How does California’s top-two primary system work?

In a traditional closed primary, such as in presidential races, voters can only choose among candidates from their own party: That is, say, registered Democrats could only vote for Democratic candidates.

But in a top-two primary, all candidates from all parties appear on a single ballot open to any registered voter. The two candidates with the most votes in that primary then move on to the general election, even if they’re from the same party.

Kim Alexander, president and founder of the California Voter Foundation, said this is an even bigger concern for third parties in the state.

“One of the unfortunate byproducts” of California’s jungle primary system, said Alexander, is how “it’s really shut out a lot of minor parties from the general election and they run the risk of being kicked off the ballot altogether.”

“Because if you don’t have candidates appearing on ballots at a certain pace, then you can’t remain an official party,” she said.

Does this really mean Californians might not get a Republican vs. Democrat race for governor in November?

That’s correct: Under the top-two primary system, the November contest could be an intraparty fight.

That scenario has worried many California Democrats. With seven top Democrats crowding the field, there’s a risk of fracturing their party’s vote. Meanwhile, if enough Republican voters back both Hilton and Bianco to push them both into the top two, California could be locked into an all-Republican general election for governor.

In March, state Democratic Party Chair Rusty Hicks urged politicians in his party to take a hard look at the viability of their campaigns and drop out before the filing deadline.

“California’s leadership on the world stage is significantly harder if a Democrat is not elected as our next Governor,” Hicks wrote in an open letter.

None of the contenders heeded his plea.

However, the likelihood of Republicans shutting Democrats out of the November election has decreased since President Donald Trump endorsed Hilton in April. A clear front-runner could unify Republican voters behind Hilton and open the door for a Democrat to claim the second spot in the runoff.

Plus, the most recent Emerson poll now shows former Health and Human Services Secretary Xavier Becerra in the lead with 19% of likely voters for the first time in the race. Hilton and Democrat Tom Steyer are tied for second with 17%.

Becerra’s surge came after former East Bay Congressman Eric Swalwell — who was regarded as a frontrunner for the gubernatorial primary — exited the race last month amid sexual assault and misconduct allegations.

Why does California have this top-two system?

Historically, California required a two-thirds vote in the Legislature to pass the state budget instead of a simple majority vote.

In 2009, Democrats needed to court Republican votes to pass the state budget. Then-state Sen. Abel Maldonado, a Republican, agreed to vote yes — but only if the Legislature put a measure on the ballot to create the top-two primary system.

Voters approved that measure, Proposition 14, in 2010, amending the state constitution.

Then-Gov. Arnold Schwarzenegger backed the measure as a way to transform state politics, forcing candidates to appeal to voters across party lines and ultimately boost more moderate politicians.

“He liked to talk about living in a post-partisan political climate,” Alexander said. “He liked the idea of candidates having to appeal to more voters than just voters of their own party, and to face competition.”

The system was also designed to give more influence to California’s no party preference voters, who make up 23% of registered voters in the state, just behind Republicans at 25%.

Which political offices in California are decided using this system?

The top-two primary applies to “voter-nominated” offices: governor and other statewide positions like lieutenant governor, attorney general, secretary of state, state treasurer, state controller, insurance commissioner and state board of equalization members

It also covers state Senate and Assembly seats and U.S. congressional offices.

The jungle primary system does not apply to presidential elections, local and nonpartisan offices such as city council, school boards, judges, district attorneys or the superintendent of public instruction.

Which other states use this system?

Washington state was the first to adopt a top-two primary for congressional and state-level elections in 2004, but not for governor.

Unlike California, Washington allows write-in candidates in the general election – a safety valve for scenarios where one party is locked out.

A handful of other states use variations of the system. Nebraska’s legislature is nonpartisan, so it uses a top-two primary for state legislative races.

Louisiana uses a majority-vote system for statewide executive offices, state legislative seats and local offices. If a candidate receives a majority of the vote in the primary, they win outright. If not, there is a second round of voting with the top two vote-getters in November.

Alaska adopted a top-four primary in 2020 for state executive, state legislative and congressional races. An effort to repeal the state’s top-four primaries was narrowly defeated by voters in 2024 but will be on the ballot again this year.

If I’m a  ‘no party preference’ voter can I even vote in the California primary?

Yes: Any registered voter, including those with no party preference, can vote for any candidate in voter-nominated races like the governor’s contest.

The top-two primary system draws no distinction based on a voter’s party registration.

Are there any efforts to get rid of California’s jungle primary?

Driven in part by concerns that Democrats could be locked out of this year’s governor’s race, a new ballot initiative seeks to repeal California’s top-two primary system.

Democratic strategist Steven Maviglio filed the initiative, called “Undo the Top Two,” to the attorney general on May 8.

He called the jungle primary a “failed experiment.”

“The prospect of having to vote for a candidate who’s not from your party in November has really woken up a lot of voters in the state about the dangers of the top-two primary,” Maviglio said. “The chance that a Democrat would have to choose between Chad Bianco or Steve Hilton is sending a chill up the spine of a lot of Democrats.”

However, even if successful, Maviglio’s initiative won’t impact the 2026 election — since he hopes to place the measure on the 2028 ballot, with any changes taking effect no earlier than the 2030 elections.