^^^^^^^^
Like I mentioned in my prior post, numerous state legislatures chose to prioritize major interregional/intercity arteries with low numbers during the inception of the state's highway network. CA did this with LRN 1 going from San Francisco north to Oregon, LRN 2 from S.F. all the way south to the Mexican border, LRN 3 from Sacramento north to Oregon, and LRN 4 from Sacramento down to L.A. If not for the U.S. highway system being designated over these arterials, those may well have ended up being signed numbers; but for the most part US 101 ran over 1 & 2 and US 99 (or one of its suffixed splits) over 3 & 4. After that, it was a matter of connecting cities and/or regions with ensuing LRN's. By the time it came around to seriously posting numbers in the early '30's, the LRN system was so variegated it was almost random, so it was decided to have an "overlay" system of SSR's (state signed routes) in some sort of order (I won't go into details here, but CA's unique topography played a major role in this endeavor). Oregon engaged in a similar process, with their legislative route #1 functionally usurped by US 99, and #2 by US 30 -- the main N-S and E-W routes respectively (now I-5 & I-84).
The system persists simply because there is a difference in state maintenance of a road and signage for navigational purposes. Pre-1964 the policy was to only sign those facilities that actually provided major intercity/interregional value; a lot of connecting routes, particularly in the Sacramento & San Joaquin Valleys, were left unsigned until the areas around them built up in population (CA 43 & CA 59, among the last to be signed as SSR's before the renumbering, are examples of this). There are still a few unsigned state-maintained routes in CA; most received signage between 1964 and 1969. Oregon has much the same situation; a lot of state-maintained roads, often in rural areas, without signage; in both states, it was considered that signage, and the $$ expense of deploying and maintaining the signage wasn't warranted due to scant usage (i.e. very low AADT numbers) or, in some cases, service duplication of another route. CA consolidated its numbering in 1964 -- but to some degree further randomized its network in the process.
If any other state utilizes separate internal legislative numbers but maintains an entirely separate system for field route numbering, that's something that may well deserve its own thread over in General.