Madness recall: a circus-like election to recall California's Governor is either democracy in action or--as some critics worry--the beginning of its descent into chaos.

It's the greatest electoral show on Earth: Next month, more than 100 candidates, ranging from the serious to the ridiculous, will try to knock California Governor Gray Davis out of office barely a year into his second term. The contenders range from superstars (Arnold You-Know-Who) to absolute unknowns (a hearing-aid-store owner who claims a comet streaking across the sky convinced him to run).

Anyone, in fact, who took the trouble to file papers and pay a $3,500 registration fee now has a theoretical shot to be Governor, running a state with the fifth-largest economy in the world. Dot-com engineers, a used-car salesman, comedians, movie directors, and a pair of entrepreneurs hoping to use the race to market their new beer have all signed up. There are experienced politicians, too. Davis himself is fighting for his political life. His own Democratic lieutenant governor, Cruz Bustamante, is also on the ballot, as are several leaders of the state's Republican Party establishment. And then there's Schwarzenegger, the 56-year-old superstar, who has landed in the race much like his Terminator character crashes down on present-day Earth in his movies--a huge force to be reckoned with.

GRASSROOTS DEMOCRACY OR DISASTER?

With this attention-grabbing list of wanna-be Governors, California is now about to give the country an extraordinary political lesson that is either going to be an example of grassroots democracy in action, or a high-speed electoral crash. On the surface, the race seems equal parts politics and entertainment--the candidates have all been invited to appear this month on Jay Leno's Tonight Show. Yet beneath the showbiz glitter lie serious questions about the benefits of recall votes. Voter anger could rewrite the political rule book in the nation's most populous state and spawn copycat recalls in other states (See "A Domino Effect?" facing page).

"These are groups of frustrated voters," says Michael Traugott, a political scientist at the University of Michigan. "They feel that government is not responsive to their needs and interests, that the costs of government are going up--and all of that is exacerbated by hard economic times."

Recalls are elections to remove a public official from office, following a petition campaign that collects a required number of signatures from voters. Those in favor of recalls say they give citizens a direct voice in government. Such involvement increases participation and keeps power from being concentrated ill the hands of a few. Opponents of recalls say they are often organized by special interests, whose real goal is to overturn the results of a valid election. They argue that recalls give an outlet to uninformed public rage--the exact opposite of the deliberation and care that ought to go into choosing our leaders.

Arguments for both views abound in the current recall campaign. Those in favor of the recall can rightly argue that it has led to a huge swell of public interest in the election.

"We normally run and gun--car chases, fires, earthquakes," says Ted Garcia, a correspondent with KTLA in Los Angeles, referring to his station's coverage priorities. "But politics? We kind of do it when we have to. In this case, it's such a circus that we're chasing angle after angle."

Recall opponents can make their own case that special interests are behind the vote. California Republican Congressman Darrell Issa, a longtime Davis opponent, put the campaign in motion. Issa, a millionaire who spent $1.6 million of his own money to collect the 897,000 signatures needed to force the vote, dropped out of the race after Schwarzenegger entered.

Davis lashed out at the recall, saying it was an effort "to steal elections Republicans cannot win.... This is all about control in the future, seizing back the Governor's chair."

Issa had little trouble getting the signatures be needed. Davis presides over a state government that is now running a $38 billion deficit, the largest of any state. A major energy crisis led to severe power shortages across California in 2001. And the state is struggling with high unemployment.

His opponents blame Davis for most of these ills, and voters seem in no mood to quibble. Davis's 70 percent disapproval rating in a mid-August Field Research poll, equaled the lowest the company has recorded for any politician in more than 50 years.

Davis supporters say the Governor is getting blamed for things he couldn't control. They point out that with the U.S. economy limping along, many large states are suffering severe budget shortages. But others say the recall, despite its beginnings in Issa's petition drive, taps into a deeper voter anger.

A COMPLICATED BALLOT

"Recalls have an honorable history," says Roger Kersh, a political scientist at Syracuse University. "It's usually to get jerks--scandalous types, or criminals--out of office; so this is an unusual one. But when Americans get mad enough, they'll do anything."

So who will rise above the zany circus and win the recall vote? Davis needs 50 percent of the vote to stay in office. If he fails, the October 7 election becomes a free-for-all. California law calls for voting on the recall measure and on possible replacements on the same ballot. The law has another twist: Whoever gets the most votes, even if it's not a majority, wins. Theoretically, the next Governor of California could claim victory with 30, 20, or even 10 percent of the vote.

TRYING TO PREDICT THE UNPREDICTABLE

The huge list names on the ballot may also lead to massive election day confusion. (The state drew letters from a barrel to determine a new alphabetical order with which to list the candidates.) And historians of California elections are trying to predict the bizarre or unexpected scenarios that could emerge. (Example: What if Davis resigns before the vote, making current Lieutenant Governor Cruz Bustamante the new Governor? Answer: The election would probably take place as scheduled.)

Despite never having held elected office, Schwarzenegger entered the race as a favorite with various polls showing 22 to 34 percent of voters ready to support him. Bustamante, with support from about a quarter of voters, was the only other candidate breaking the 10 percent barrier in the early going.

The real question for Schwarzenegger remained: Will movie stardom translate into electoral firepower? Californian Matt Bennnett, 21, summed up the pro-Arnold take on the election: They want someone to swoop down and fix California's woes. "He's the tough guy, the Terminator," Bennett says. "He'll be good for California."

With reporting by Elisabeth Bumiller and Jim Rutenberg of The New York Times.

RELATED ARTICLE: A domino effect? other states watch California and worry.

Governor Mike Johanns of Nebraska is a Republican who is usually on the opposite end of the political spectrum from Governor Gray Davis of California, the Democrat facing a recall election.

But, Johanns reasons, surely Davis could not deserve all the blame for California's budget woes, since almost every state is having financial problems. "It strikes me a little bit as shooting the messenger."

Nebraska has no provision to recall a Governor, but it is legal in 17 stales besides California. That prompts an awkward question: Might recall elections, like so many things from California, turn into a trend and spread to other states?

Even some Republican Governors seem slightly queasy about what is occuring in California. Governor Mike Huckabee of Arkansas says he's concerned about the small number of signatures California requires for a recall vote--just 12 percent of the votes cast in the previous election.

In the 17 other states that allow recalls of Governors, most have tougher standards. Many require signatures from 25 percent or more of voters in recent ejections. Seven states also require specific grounds, like the Governor committing crimes, or corruption.

Some experts say the tight requirements in most states will. probably keep recalls rare. "I don't think we're going to now see a lot of statewide recall elections, but I wouldn't be surprised to see more threats of recalls," says Jennie Drage Bowser, of the National Conference of State Legislatures.

Some scholars think the California recall might discourage recalls elsewhere. "I just don't think anybody's saying, 'Hey, we want to look like California," says Elisabeth R. Gerber, a professor of public policy at the University of Michigan. "I don't think the circus nature of California's experience does a lot to make recall look like a credible choice, but still, you never knew."

LESSON PLANS

DISCUSSION QUESTIONS

* Should citizens be allowed to recall a public official who was only recently elected to office?

* Opponents of recalls say they are driven by "special interests." How would you define a "special interest"?

TEACHING OBJECTIVES

To help students understand the roots and the process of the controversial California recall election--and the questions it raises about democracy in America.

CLASSROOM STRATEGIES

BEFORE READING: Write "Representative Democracy" and "Direct Democracy" on the board. Ask for a show of hands. How many students know the difference between the two? Does one term have greater appeal than the other? What are the pros and cons of having citizens vote on all major issues? (Possible pro: It gets more citizens more involved in the political process. Possible con: Few ordinary people can spend the time educating themselves on all aspects of important economic and social issues.)

BALLOT EXERCISE: Note a key issue addressed in the article:

* Is the recall--with 135 names on the ballot--a deterrent to democracy? Give students a feel for the process by having them write 135 names on slips of paper. Place these in a bowl, hat, or other container. Then have a volunteer pull them out one at a time.

As the names are called, have volunteers write each name on a large sheet of paper or, better still, on a computer file "Recall Ballot" that is then printed out. Make enough copies so that each student has one. Distribute these and ask students to read through the list. Then ask them to imagine that they were voting in the California recall election. Ask them to describe their reaction to the ballot. Would such a ballot give them a sense of empowerment? Is it confusing? Might voters go only to names they recognize? If that happens, would it give unfair advantage to a few, while penalizing the many?

CRITICAL THINKING: California's system calls for voting on the recall and for a replacement Governor on the same day. Ask students to suggest advantages and disadvantages of this system. (Possible pro: It costs less to run one election than two. Possible con: Same-day votes inhibit the ability of candidates to communicate their views on issues and separate themselves from other candidates.

Upfront QUIZ 1

DIRECTIONS: Circle the letter next to the correct answer.

1. Before a state recall election may take place, there must be another procedure. What is this procedure?

a a ruling by the National Governors Association.

b passage of a law by a state's legislature

c a petition signed by a required number of voters

d a determination by the state's Attorney General

2. Those who support recall elections say the process gives citizens the opportunity to

a confound the political experts.

b vote twice for the same candidates.

c change their minds about whom they want in office.

d exercise a direct voice in government.

3. Those who oppose recall elections say such elections

a allow special interests to overturn valid elections.

b should be reserved only for a special group of voters.

c are un-American.

d should be banned unless funded by special taxes.

4. The recall election directed against Gov. Gray Davis was launched by

a Arnold Schwarzenegger.

b a wealthy Republican Congressman.

c California's Republican Party.

d California's Democratic Party.

5. Those who hope to recall Gov. Davis are most vocal about three issues facing the state. One of them is

a the state's place in a ranking of student literacy.

b recurring forest fires.

c water quality.

d the budget deficit.

6. Another issue that has anti-Davis voters eagerly awaiting the October 7 election is

a high unemployment.

b the decision to cut back on state funding of highways.

c a rising crime rate.

d Davis's refusal to permit the use of school vouchers.

ANSWER KEY

1. (c) a petition signed by a required number of voters

2. (d) exercise a direct voice in government.

3. (a) allow special interests to overturn valid elections.

4. (b) a wealthy Republican Congressman.

5. (d) the budget deficit.

6. (a) high unemployment.

--Monica Davey of The New York Times