Witnesses Tell CA State Needs Stiffer Breach Penalties - HUH?

 Not sure I really understand this title - "Witnesses Tell California Lawmakers State Needs Stiffer Breach Penalties" (http://bit.ly/1k5Sb7K). I agree 100% on the topic of the article but the title is strange, who are these witnesses....... the whole state of CA....everyone that has ever been involved with a hack?  I understand that the whole country needs tougher Penalties for breaches the title still confuses me.