Opinion ID: 2632217
Heading Depth: 2
Heading Rank: 1

Heading: Special Statutory Proceeding

Text: The citizens of Colorado have reserved to themselves the right of initiative for proposing changes to the constitution and statutes of Colorado. See In re Ballot Title 1999-2000 # 200A, 992 P.2d 27, 29 (Colo. 2000). Title 1, Article 40 of the Colorado Revised Statutes governs the initiative process in Colorado. See In re Ballot Title 1999-2000 245(b),245(c),245(d)&245(e), 1 P.3d 720, 721 (Colo.2000). The initiative law favors placing matters before the voters, and guides our statutory and constitutional construction. See Havens v. Board of County Comm'rs, 924 P.2d 517, 520, 524 (Colo.1996). The Title Board is a special statutory body created by the General Assembly for the purpose of implementing the constitutional right of initiative [and] ensur[ing] that any initiative measure will be presented to the electorate in a manner that unambiguously states the true intent and meaning of the measure. In re Ballot Title W.A.T.E.R., 831 P.2d 1301, 1306 (Colo. 1992). The Title Board engages in a special statutory proceeding when it sets the titles and summary for a proposed initiative. See id. Once the Title Board denies a petition for rehearing, a person may seek appellate review of the Title Board's action. See § 1-40-107(2); In re Ballot Title 1999-2000 # 265, 3 P.3d 1210, 1215-16 (Colo.2000). The statute then directs us that the matter on appeal shall be disposed of promptly, consistent with the rights of the parties, either affirming the action of the title board or reversing it, in which latter case the court shall remand it with instructions, pointing out where the title board is in error. § 1-40-107(2). In conducting our review, we begin with a presumption that the Title Board has acted validly. See In re Ballot Title 1999-2000 # 235(a), 3 P.3d 1219, 1222 (Colo. 2000); In re Ballot Title 1999-2000 # 25, 974 P.2d at 465. Our function on appeal of the Title Board's action is to determine whether the titles and summary it has adopted: (1) comply with the single-subject requirement for initiatives; and (2) clearly, accurately, and fairly characterize the proposed initiative. See In re Proposed Initiative for 1999-2000 # 104, 987 P.2d 249, 253-54 (Colo.1999). Either or both of these issues may be raised on appeal. The principal object of the Title Board's action and our appellate review is to preserve and protect the right of initiative. § 1-40-106.5(2), 1 C.R.S. (2000). The Title Board's role is primary; our function is limited. See In re Proposed Initiatives for 1999-2000 ## 172-175, 987 P.2d 243, 245 (Colo. 1999). Our responsibility is to decide whether the Title Board's action complies with the applicable constitutional and statutory requirements. The titles and summary need not be the best possible statement of a proposed measure's intent. See In re Ballot Title 1999-2000 # 265, 3 P.3d at 1213 (Colo. 2000). We will defer to the Title Board's language if not clearly misleading; we resolve all legitimate presumptions in favor of the Title Board's choice. See In re Ballot Title 1999-2000 ## 227&228, 3 P.3d 1, 5 (Colo.2000). We will not construe the legal effect of an initiative, but we must examine and characterize it sufficiently to conduct our review of the Title Board's action. See In re Ballot Title 1997-98 # 30, 959 P.2d 822, 825 (Colo.1998). The Title Board is not required to address every aspect of a proposal; rather, its task is to present straightforward, succinct, and nonargumentative titles and summaries. In re Ballot Title 1999-2000 # 246(e), 8 P.3d 1194, 1197 (Colo. 2000). Nevertheless, we will not hesitate to reverse the Title Board's action if an initiative contains multiple subjects that are distinct, separate, and unconnected with each other, or if the titles and summary are materially unfair or misleading to the voters. See In re Ballot Title 1999-2000 # 258(A), 4 P.3d 1094, 1097-98 (Colo.2000). Our responsibility is to: (1) effectuate the word choice, intent, and purpose of the General Assembly, see In re Ballot Title 1999-2000 # 219, 999 P.2d 819, 820 (Colo.2000); and (2) preserve and protect the right of initiative, see id. at 821. We construe constitutional and statutory provisions governing the initiative process in a manner that facilitates the right of initiative instead of hampering it with technical statutory provisions or constructions. See Ballot Title # 255, 4 P.3d at 492.