Opinion ID: 2521384
Heading Depth: 2
Heading Rank: 2

Heading: How a Ballot Title is Fixed or Set

Text: Because the UEC does not provide a definition of the term set, it is not readily apparent what specific action of the political subdivision triggers the five-day contest limitation. However, our previous cases and the statutes governing ballot titles appear to treat the term set synonymously with the fixing of a ballot title. See § 1-40-106(1), 1 C.R.S. (2003) (directing the state title board to designate and fix a proper fair title for each proposed law or constitutional amendment, together with a submission clause, at public meetings); see also § 1-40-106(3)(b) (stating that [i]n setting a title, the title board shall consider the public confusion that might be caused by misleading titles and shall, whenever practicable, avoid titles for which the general understanding of the effect of a `yes' or `no' vote will be unclear); § 1-40-107(1) (permitting a registered voter not satisfied with the decision of the title board to file a motion for a rehearing with the secretary of state within seven days after the decision is made or the titles and submission clause are set ) (emphasis added); In re Proposed Initiative on Education Tax Refund, 823 P.2d 1353, 1355 (Colo.1991) (The purpose of the title setting process is to ensure that both persons reviewing an initiative petition and the voters are fairly and succinctly advised of the import of the proposed law.). Thus, the plain meaning of the word set is synonymous with the word fix in the context of ballot titles. The process for fixing a ballot title for municipal, county, and school district elections is governed by the procedures regulating municipal elections, which are found in part 1 of article 11 of Title 31. § 1-40-103(2), (3) & (4), 1 C.R.S. (2003); § 30-11-103.5, 9 C.R.S. (2003) (county elections); § 22-30-104(4), 7A C.R.S. (2003) (school district elections). Section 31-11-111, 9 C.R.S. (2003), sets forth the process through which the legislative body of a municipality fixes a ballot title. Subsection (2) permits that legislative body to refer a proposed or adopted ordinance or resolution to the voters of that municipality and directs it to fix a ballot title for the referred measure. Subsection (3) identifies the criteria to be considered [i]n fixing the ballot title. However, the statute does not state what specific action by the local legislative body will constitute a fixing or setting of the ballot title, at least for purposes of school district elections. The legislature's silence on this point stands in contrast to provisions governing statewide elections, which provide a detailed succession of activities to be completed by the state title board in fixing a ballot title. See, e.g., § 1-40-106, 1 C.R.S. (2003). Whereas section 1-40-106(1) explains that fixing takes place when the title board designates and finalizes the ballot title at a public meeting, section 31-11-111 contains no such reference. It states only that [t]he legislative body of the municipality or its designee shall fix a ballot title for the referred measure. § 31-11-111(2). Because the statute is ambiguous on this point, we may look to prior law in determining what constitutes an act of setting or fixing of the ballot title for school district elections. Bd. of County Commrs. v. Costilla County Conservancy, 88 P.3d 1188, 1193 (Colo.2004); Colo. Dept. of Labor Employment v. Esser, 30 P.3d 189, 195 (Colo.2001). Until 1994, local ballot issues were fixed by a local title board, 1-40-106(2), 1 C.R.S. (1994 Cum.Supp.), and statewide issues were fixed by a state title board, 1-40-106(3), 1 C.R.S. (1994 Cum.Supp.), in substantially similar fashion. At the time section 1-11-203.5 was enacted, section 1-40-106 generally applied to all ballot issues presented to voters and not just statewide ballot issues. 1-40-106(1), 1 C.R.S. (1994 Cum.Supp.). Section 1-40-106(2) pertinently stated that [t]he title board shall by resolution fix a proper fair title for each proposed measure.... [and t]he governing board may designate when drafts of the text of the proposed amendment shall be submitted to the designated election official prior to the meeting at which the title is to be fixed. This statute was repealed and replaced by section 31-11-111 in 1995. Ch. 120, sec. 1, 31-11-111, 1995 Colo. Sess. Laws 422, 428. Thereafter, section 1-40-106 no longer governed the initiative and referendum procedures for municipalities. Ch. 120, sec. 3, 1-40-103(2), 1995 Colo. Sess. Laws 422, 431; Ch. 120, sec. 4, 1-40-106, 1995 Colo. Sess. Laws 422, 431-32; Ch. 120, sec. 1, 31-11-101, et seq., 1995 Colo. Sess. Laws 422, 422-30. Because section 31-11-111 gives the local legislative body the power to fix the ballot title instead of the local title board, the legislature omitted any reference to a meeting of the title board. However, the legislative declaration found in section 31-11-101 makes it clear that this omission was meant to give municipalities and other legislative bodies the freedom to determine what action would constitute the setting or fixing of the ballot title. [7] Thus, analogizing to the current procedures of the state title board and the past procedures for local title boards, it is presumed that the fixing of the ballot title is to be done in the normal course of business for the applicable legislative body. See XX-XX-XXX, 9 C.R.S. (2003) (This article shall apply to municipal initiatives, referenda, and referred measures unless alternative procedures are provided by charter, ordinance or resolution.); see also XX-XX-XXX(4) (Any protest concerning a ballot title shall be conducted as provided by local charter, ordinance, or resolution.); XX-XX-XXX(1), 9 C.R.S. (2003) (Except as otherwise provided in this article, the clerk shall render all interpretations and shall make all initial decisions as to controversies or other matters arising in the operation of this article.). In conclusion then, we determine that fixing takes place upon the school board's final action during the school board's normal conduct of business. See XX-XX-XXX(4) (The designated election official shall resolve any questions about the applicability of the procedures in part 1 of article 11 of title 31, C.R.S., after consultation with the county clerk of the county in which the school district administration office is located.).