SACRAMENTO, Calif.—Republican state lawmakers stood in united but futile opposition Thursday to the practice of approving empty bills that contain no real legislation but will be amended later to include budget legislation. Democrats, who control both houses, each approved several so-called "shell" bills—the Senate 40 of them, and the Assembly 38. The bills contain no actual budget details but will be amended later to include specific language needed to enact the budget for the fiscal year that begins July 1. Passing the bills now makes it quicker and easier to approve a state spending plan before the constitutional deadline in...