A long , long time ago when people organized to form a government they agreed on a place to post public notices.  There are myths about posting notices on the Old Oak Tree in the center of town.  

As times progressed, and newspapers evolved, the concept of "adjudicated media" and/or "adjudicated newspapers" came about -- as a legally designated place to post legal notices. 

Adjudicated Media refers to media outlets that have been approved by a county court or judge as having enough distribution to be able to qualify as a place to post legal ads.  

The legal ads may be run by citizens as required by some laws, but many are also run by the County Government themselves.  When a Government becomes an advertising client for a newspaper -- conflicts of interest can arise between proper and honest reporting about government fraud and a fear of lose advertising revenue from the County. 

For example, the County Assessor-Clerk-Recorder may be large advertising accounty for the Monterey Herald or Monterey County Weekly.   Image they found out the County Assessor-Clerk-Recorder was engaging in unethical or illegal behavior. But imagine if they knew if they reported on it, that she might shift some of the ads to your competitors.  In fact this may be transpiring now.