HB26-1320 • 2026

Accessible Language Statutory Ballot Title Requirements

Under current law, the title board must set a ballot title for an initiative petition that is brief, does not conflict with another title for an initiative petition filed for the same election, and is

Elections Taxes

Passed Legislature

This bill passed both chambers and reached final enrollment, even if later executive action is not shown here.

Sponsor: Rep. L. García, Rep. K. Nguyen, Sen. A. Benavidez, Rep. J. Bacon, Rep. A. Boesenecker, Rep. K. Brown, Rep. C. Clifford, Rep. M. Duran, Rep. M. Lindsay, Rep. M. Rutinel, Rep. E. Sirota, Rep. R. Stewart, Rep. T. Story, Rep. B. Titone, Rep. E. Velasco, Rep. Y. Zokaie
Last action: 2026-03-31
Official status: Introduced In Senate - Assigned to State, Veterans, & Military Affairs
Effective date: Not listed

Plain English Breakdown

The exact impact of allowing tax-related language to appear anywhere in the title remains to be seen.

Making Ballot Titles Easier to Understand

This bill requires ballot titles for initiative petitions in Colorado to be written using accessible language that is easy for most people to understand, and it allows the required tax-related language to appear anywhere within the title.

What This Bill Does

Requires the Title Board to write ballot titles using plain language that can be understood by a wide audience.
Allows the specific tax-related language required by law to appear anywhere within the ballot title, not just at the beginning or end.

Who It Names or Affects

Voters who read initiative petition ballot titles in Colorado elections.
The Title Board responsible for setting these ballot titles.

Terms To Know

Accessible language: Language that is clear and easy to understand, avoiding complex or technical terms.
Initiative petition: A proposal submitted by citizens for a vote on whether it should become law.

Limits and Unknowns

The bill does not specify how the Title Board will ensure that ballot titles are accessible.
It is unclear if and when this bill will be signed into law after passing through the legislature.

Amendments

These notes stay tied to the official amendment files and metadata from the legislature.

L.002

HOU State, Civic, Military, & Veterans Affairs

Passed [*]

Plain English: The amendment adds new requirements for ballot titles to be written in accessible language, making them easier for voters to understand.

Adds a new section (h.5) that instructs the Title Board to consider whether ballot titles avoid legal, technical, or specialized terminology and are clear about proposed changes.
Instructs the Title Board to ensure ballot titles do not use unnecessary qualifiers, double negatives, overly complex phrasing, and organize clauses for easy understanding of voting effects.

The amendment text does not specify how these new requirements will be enforced or what happens if a ballot title does not meet the accessibility criteria.

L.003

Second Reading

Lost [**]

Plain English: The amendment adds the requirement that ballot titles for initiative petitions must be fair and impartial.

Adds 'are fair and impartial' as a new requirement after existing requirements on brevity and non-conflict for ballot title setting.

The exact implications of this addition are not fully explained in the amendment text, so its full impact is unclear.

L.004

Second Reading

Lost [**]

Plain English: The amendment changes how ballot titles for initiative petitions are set by allowing proponents to submit a draft title before the meeting and making it harder for the Title Board to change this draft.

Adds new section (k) which lets people who propose an initiative give their own suggested title to the Title Board before the official meeting.
The amendment says that if proponents provide a draft title, the Title Board must only make small changes to fit legal requirements and cannot rewrite it completely.

Some parts of the original bill text are removed or replaced but their exact impact is unclear without more context.

L.005

Second Reading

Lost [**]

Plain English: The amendment changes specific sections of the bill related to setting ballot titles for initiative petitions by removing certain lines and substituting new text.

Removes lines from pages 2, 3, 4, and 5 of the printed bill that contain existing requirements or references.
Substitutes new text in place of removed sections on page 2 to modify specific clauses (3)(b) and (3)(h).
Strikes out certain provisions listed under lines 18 through 21 of the report.

The exact content being replaced or modified is not provided in the amendment text, making it hard to understand the full impact.
Without seeing the original bill and knowing what was on those specific pages and lines, we cannot explain all changes clearly.

L.006

Second Reading

Lost [**]

Plain English: The amendment adds requirements for ballot titles to include all important financial, regulatory, and legal effects of proposed laws or constitutional changes, and to avoid using persuasive or emotional language.

Adds a requirement that ballot titles must not leave out any significant fiscal, regulatory, or legal impacts of the proposed law or constitutional amendment.
Adds a rule that ballot titles cannot use persuasive, emotive, or advocacy-oriented language.

The exact impact on existing processes for creating ballot titles is unclear without further context.

L.007

Second Reading

Lost [**]

Plain English: The amendment changes the requirement for ballot titles to ensure they are written without sacrificing neutrality or omitting important consequences of the measure, while still being brief and not conflicting with other ballot titles.

Changes 'AUDIENCE;' to 'AUDIENCE WITHOUT SACRIFICING NEUTRALITY OR OMITTING MATERIAL CONSEQUENCES OF THE MEASURE;' on page 3, line 5.
Makes the same change on page 6, line 3.

The amendment text does not provide specific details about what constitutes 'neutrality' or 'material consequences,' which could lead to interpretation issues.

Bill History

2026-03-31 Senate
Introduced In Senate - Assigned to State, Veterans, & Military Affairs
2026-03-27 House
House Third Reading Passed - No Amendments
2026-03-26 House
House Third Reading Laid Over Daily - No Amendments
2026-03-25 House
House Second Reading Special Order - Passed with Amendments - Committee
2026-03-23 House
House Committee on State, Civic, Military, & Veterans Affairs Refer Amended to House Committee of the Whole
2026-03-04 House
Introduced In House - Assigned to State, Civic, Military, & Veterans Affairs

Official Summary Text

Under current law, the title board must set a ballot title for an initiative petition that is brief, does not conflict with another title for an initiative petition filed for the same election, and is in the form of a question that may be answered 'yes/for' or 'no/against' and that unambiguously states the principle of the provision sought to be added, amended, or repealed by the initiative. The bill adds a requirement that the title board write a ballot title using accessible language, which means plain language that is understood by the widest possible audience.
In determining whether a ballot title is written using accessible language, the title board may consider whether the title:
Avoids using legal, technical, or specialized terminology when possible;
Clearly identifies the principal change in law or policy proposed by the proposed law or constitutional amendment;
Avoids unnecessary qualifiers, double negatives, and overly complex phrasing;
Organizes clauses so that the effect of a 'yes/for' or 'no/against' vote is readily understood; and
Presents necessary information within the ballot title in a logical and readable order.
In addition, current law requires that specific language appear in the ballot title for certain initiatives that increase or reduce tax revenue. For initiatives that reduce state tax revenue or local district property tax revenue through a tax change, this required language must appear at the beginning of the ballot title. For initiatives that increase tax revenue for any district through a tax change, this required language must appear directly after language required by the Taxpayer's Bill of Rights. The bill modifies these statutory provisions so that the required ballot title language must only be substantially similar to the specific statutory language and may appear anywhere in the ballot title.
(Note: Italicized words indicate new material added to the original summary; dashes through words indicate deletions from the original summary.)
(Note: This summary applies to the reengrossed version of this bill as introduced in the second house.)

Current Bill Text

Read the full stored bill text

Second Regular Session
Seventy-fifth General Assembly
STATE OF COLORADO
REENGROSSED
This Version Includes All Amendments
Adopted in the House of Introduction
LLS NO. 26-0774.03 Rebecca Bayetti x4348 HOUSE BILL 26-1320
House Committees Senate Committees
State, Civic, Military, & Veterans Affairs
A BILL FOR AN ACT
CONCERNING STATUTORY REQUIREMENTS FOR BALLOT TITLE101
LANGUAGE, AND, IN CONNECTION THEREWITH, REQUIRING THE102
USE OF ACCESSIBLE LANGUAGE AND ALLOWING FOR THE103
MODIFICATION OF STATUTORILY REQUIRED BALLOT TITLE104
LANGUAGE.105
Bill Summary
(Note: This summary applies to this bill as introduced and does
not reflect any amendments that may be subsequently adopted. If this bill
passes third reading in the house of introduction, a bill summary that
applies to the reengrossed version of this bill will be available at
http://leg.colorado.gov.)
Under current law, the title board must set a ballot title for an
initiative petition that is brief, does not conflict with another title for an
HOUSE
3rd Reading Unamended
March 27, 2026
HOUSE
Amended 2nd Reading
March 25, 2026
HOUSE SPONSORSHIP
Nguyen and Garcia, Bacon, Boesenecker, Brown, Cli fford, Duran, Lindsay, Rutinel,
Sirota, Stewart R., Story, Titone, Velasco, Zokaie
SENATE SPONSORSHIP
Benavidez,
Shading denotes HOUSE amendment. Double underlining denotes SENATE amendment.
Capital letters or bold & italic numbers indicate new material to be added to existing law.
Dashes through the words or numbers indicate deletions from existing law.
initiative petition filed for the same election, and is in the form of a
question that may be answered "yes/for" or "no/against" and that
unambiguously states the principle of the provision sought to be added,
amended, or repealed by the initiative. The bill adds a requirement that
the title board write a ballot title using accessible language, which means
plain language that is understood by the widest possible audience.
In addition, current law requires that specific language appear in
the ballot title for certain initiatives that increase or reduce tax revenue.
For initiatives that reduce state tax revenue or local district property tax
revenue through a tax change, this required language must appear at the
beginning of the ballot title. For initiatives that increase tax revenue for
any district through a tax change, this required language must appear
directly after language required by the Taxpayer's Bill of Rights. The bill
modifies these statutory provisions so that the required ballot title
language must only be substantially similar to the specific statutory
language and may appear anywhere in the ballot title.
Be it enacted by the General Assembly of the State of Colorado:1
SECTION 1. In Colorado Revised Statutes, 1-40-106, amend2
(3)(b), (3)(e), (3)(f), (3)(g)(I), and (3)(h); and add (3)(h.5) as follows:3
1-40-106. Title board - meetings - ballot title - initiative and4
referendum - definitions - rules.5
(3) (b) (I) In setting a title, the title board shall consider the public6
confusion that might be caused by misleading titles and shall, whenever7
practicable, avoid titles for which the general understanding of the effect8
of a "yes/for" or "no/against" vot e will be unc lear. The title for the9
proposed law or constitutional amendment, which shall MUST correctly10
and fairly express the true intent and meaning thereof, together with the11
ballot title and submission clause, shall MUST be completed, except as12
otherwise required by section 1-40-107, within two weeks after the first13
meeting of the title board. Immediately upon completion, the secretary of14
state shall deliver the same with the original to the designated15
representatives of the proponents, keeping the copy with a record of the16
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action taken thereon.1
(II) THE TITLE BOARD SHALL SET ballot titles shall THAT: 2
(A) be ARE brief; shall3
(B) ARE WRITTEN USING ACCESSIBLE LANGUAGE, WHICH IS PLAIN4
LANGUAGE THAT IS UNDERSTOOD BY THE WIDEST POSSIBLE AUDIENCE;5
(C) D O not conflict with those BALLOT TITLES selected for any6
petition previously filed for the same election; and shall7
(D) be A RE in the form of a question which THAT may be8
answered "yes/for" (to vote in favor of the proposed law or constitutional9
amendment) or "no/against" (to vote against the proposed law or10
constitutional amendment) and which shall THAT unambiguously state11
STATES the principle of the provision sought to be added, amended, or12
repealed.13
(e) For measures that reduce state tax revenue through a tax14
change, the ballot title must begin INCLUDE LANGUAGE SUBSTANTIALLY15
SIMILAR TO THE FOLLOWING LANGUAGE, WHICH MAY APPEAR ANYWHERE16
IN THE BALLOT TITLE: "Shall there be a reduction to the (description of17
tax) by (the percentage by which the tax is reduced in the first full fiscal18
year that the measure reduces revenue) thereby reducing state revenue,19
which will reduce funding for state expenditures that include but are not20
limited to (the three largest areas of program expenditure) by an estimated21
(projected dollar figure of revenue reduction to the state in the first full22
fiscal year that the measure reduces revenue) in tax revenue...?". If the23
ballot measure specifies the public services or programs that are to be24
reduced by the tax change, those public services or programs must be25
stated in the ballot title. If the public services or programs identified in26
the measure are insufficient to account for the full dollar value of the tax27
1320-3-
change in the first full fiscal year that the measure reduces revenue, then1
the three largest areas of program expenditure must be stated in the bill2
title along with the public services or programs identified in the measure.3
The estimates reflected in the ballot title shall not be interpreted as4
restrictions of the state's budgeting process.5
(f) For measures that reduce local district property tax revenue6
through a tax change, the ballot title must begin INCLUDE LANGUAGE7
SUBSTANTIALLY SIMILAR TO THE FOLLOWING LANGUAGE , WHICH MAY8
APPEAR ANYWHERE IN THE BALLOT TITLE : "Shall funding available for9
counties, school districts, water districts, fire districts, and other districts10
funded, at least in part, by property taxes be impacted by a reduction of11
(projected dollar figure of property tax revenue reduction to all districts12
in the first full fiscal year that the measure reduces revenue) in property13
tax revenue...?". The title board shall exclude any districts whose property14
tax revenue would not be reduced by the measure from the measure's15
ballot title. The estimates reflected in the ballot title shall not be16
interpreted as restrictions of a local district's budgeting process.17
(g) (I) For measures that increase tax revenue for any district18
through a tax change and specify the public services to be funded by the19
increased revenue, THE BALLOT TITLE MUST INCLUDE LANGUAGE20
SUBSTANTIALLY SIMILAR TO THE FOLLOWING LANGUAGE, WHICH MAY BE21
PLACED ANYWHERE after the language required by section 20 (3)(c) of22
article X of the state constitution: the ballot title shall state "in order to23
increase or improve levels of public services, including (the public24
service specified in the measure)...". For measures that increase tax25
revenue for any district through a tax change and do not specify the public26
services to be funded by the increased revenue, THE BALLOT TITLE MUST27
1320-4-
INCLUDE LANGUAGE SUBSTANTIALLY SIMILAR TO THE FOLLOWING1
LANGUAGE, WHICH MAY APPEAR ANYWHERE after the language required2
by section 20 (3)(c) of article X of the state constitution: the ballot title3
shall state "in order to increase or improve levels of public services...".4
(h) In determining whether a ballot title qualifies as brief for5
purposes of section 1-40-102 (10) and subsection (3)(b) SUBSECTION6
(3)(b)(II)(A) of this section AND WHETHER A BALLOT TITLE USES7
ACCESSIBLE LANGUAGE FOR PURPOSES OF SUBSECTION (3)(b)(II)(B) OF8
THIS SECTION, the language required by subsection (3)(e), (3)(f), (3)(g),9
or (3)(j) of this section may not be considered.10
(h.5) I N DETERMINING WHETHER A BALLOT TITLE IS WRITTEN11
USING ACCESSIBLE LANGUAGE FOR PURPOSES OF SUBSECTION (3)(b)(II)(B)12
OF THIS SECTION, THE TITLE BOARD MAY CONSIDER WHETHER THE TITLE:13
(I) A VOIDS USING LEGAL, TECHNICAL , OR SPECIALIZED14
TERMINOLOGY WHEN POSSIBLE;15
(II) C LEARLY IDENTIFIES THE PRINCIPAL CHANGE IN LAW OR16
POLICY PROPOSED BY THE PROPOSED LAW OR CONSTITUTIONAL17
AMENDMENT;18
(III) AVOIDS UNNECESSARY QUALIFIERS, DOUBLE NEGATIVES, AND19
OVERLY COMPLEX PHRASING;20
(IV) ORGANIZES CLAUSES SO THAT THE EFFECT OF A "YES/FOR" OR21
"NO/AGAINST" VOTE IS READILY UNDERSTOOD; AND22
(V) P RESENTS NECESSARY INFORMATION WITHIN THE BALLOT23
TITLE IN A LOGICAL AND READABLE ORDER.24
SECTION 2. In Colorado Revised Statutes, 1-40-106, amend25
(3)(b), (3)(f), and (3)(g)(I); add (3)(h.5); and amend as amended by26
House Bill 26-1084 (3)(e) and (3)(h) as follows:27
1320-5-
1-40-106. Title board - meetings - ballot title - initiative and1
referendum - definitions - rules.2
(3) (b) (I) In setting a title, the title board shall consider the public3
confusion that might be caused by misleading titles and shall, whenever4
practicable, avoid titles for which the general understanding of the effect5
of a "yes/for" or "no/against" vote will be unclear. The title for the6
proposed law or constitutional amendment, which shall MUST correctly7
and fairly express the true intent and meaning thereof, together with the8
ballot title and submission clause, shall MUST be completed, except as9
otherwise required by section 1-40-107, within two weeks after the first10
meeting of the title board. Immediately upon completion, the secretary of11
state shall deliver the same with the original to the designated12
representatives of the proponents, keeping the copy with a record of the13
action taken thereon.14
(II) THE TITLE BOARD SHALL SET ballot titles shall THAT: 15
(A) be ARE brief; shall16
(B) ARE WRITTEN USING ACCESSIBLE LANGUAGE, WHICH IS PLAIN17
LANGUAGE THAT IS UNDERSTOOD BY THE WIDEST POSSIBLE AUDIENCE;18
(C) D O not conflict with those BALLOT TITLES selected for any19
petition previously filed for the same election; and shall20
(D) be A RE in the form of a question which THAT may be21
answered "yes/for" (to vote in favor of the proposed law or constitutional22
amendment) or "no/against" (to vote against the proposed law or23
constitutional amendment) and which shall THAT unambiguously state24
STATES the principle of the provision sought to be added, amended, or25
repealed.26
(e) For measures that reduce state tax revenue through a tax27
1320-6-
change, the ballot title must begin INCLUDE LANGUAGE SUBSTANTIALLY1
SIMILAR TO THE FOLLOWING LANGUAGE, WHICH MAY APPEAR ANYWHERE2
IN THE BALLOT TITLE : "Shall there be a reduction to the (description of3
tax) by (the percentage by which the tax is reduced in the first full fiscal4
year that the measure reduces revenue) thereby reducing state revenue,5
which will likely reduce funding for state expenditures that include but6
are not limited to (the three largest areas of program expenditure) by an7
estimated (projected dollar figure of revenue reduction to the state in the8
first full fiscal year that the measure reduces revenue) in tax revenue...?".9
If the ballot measure specifies the public services or programs that are to10
be reduced by the tax change, those public services or programs must be11
stated in the ballot title. If the public services or programs identified in12
the measure are insufficient to account for the full dollar value of the tax13
change in the first full fiscal year that the measure reduces revenue, then14
the three largest areas of program expenditure must be stated in the bill15
title along with the public services or programs identified in the measure.16
The estimates reflected in the ballot title shall not be interpreted as17
restrictions of the state's budgeting process.18
(f) For measures that reduce local district property tax revenue19
through a tax change, the ballot title must begin INCLUDE LANGUAGE20
SUBSTANTIALLY SIMILAR TO THE FOLLOWING LANGUAGE , WHICH MAY21
APPEAR ANYWHERE IN THE BALLOT TITLE : "Shall funding available for22
counties, school districts, water districts, fire districts, and other districts23
funded, at least in part, by property taxes be impacted by a reduction of24
(projected dollar figure of property tax revenue reduction to all districts25
in the first full fiscal year that the measure reduces revenue) in property26
tax revenue...?". The title board shall exclude any districts whose property27
1320-7-
tax revenue would not be reduced by the measure from the measure's1
ballot title. The estimates reflected in the ballot title shall not be2
interpreted as restrictions of a local district's budgeting process.3
(g) (I) For measures that increase tax revenue for any district4
through a tax change and specify the public services to be funded by the5
increased revenue, THE BALLOT TITLE MUST INCLUDE LANGUAGE6
SUBSTANTIALLY SIMILAR TO THE FOLLOWING LANGUAGE , WHICH MAY7
APPEAR ANYWHERE after the language required by section 20 (3)(c) of8
article X of the state constituti on: the ballot title shall state "in order to9
increase or improve levels of public services, including (the public10
service specified in the measure)...". For measures that increase tax11
revenue for any district through a tax change and do not specify the public12
services to be funded by the increased revenue, THE BALLOT TITLE MUST13
INCLUDE LANGUAGE SIMILAR TO THE FOLLOWING LANGUAGE, WHICH MAY14
APPEAR ANYWHERE after the language required by section 20 (3)(c) of15
article X of the state constitution: the ballot title shall state "in order to16
increase or improve levels of public services...".17
(h) In determining whether a ballot title qualifies as brief for18
purposes of section 1-40-102 (10) and subsection (3)(b) SUBSECTION19
(3)(b)(II)(A) of this section AND WHETHER A BALLOT TITLE USES20
ACCESSIBLE LANGUAGE FOR PURPOSES OF SUBSECTION (3)(b)(II)(B) OF21
THIS SECTION, the language required by subsection (3)(e), (3)(e.5), (3)(f),22
(3)(g), or (3)(j) of this section may not be considered.23
(h.5) I N DETERMINING WHETHER A BALLOT TITLE IS WRITTEN24
USING ACCESSIBLE LANGUAGE FOR PURPOSES OF SUBSECTION (3)(b)(II)(B)25
OF THIS SECTION, THE TITLE BOARD MAY CONSIDER WHETHER THE TITLE:26
(I) A VOIDS USING LEGAL, TECHNICAL , OR SPECIALIZED27
1320-8-
TERMINOLOGY WHEN POSSIBLE;1
(II) C LEARLY IDENTIFIES THE PRINCIPAL CHANGE IN LAW OR2
POLICY PROPOSED BY THE PROPOSED LAW OR CONSTITUTIONAL3
AMENDMENT;4
(III) AVOIDS UNNECESSARY QUALIFIERS, DOUBLE NEGATIVES, AND5
OVERLY COMPLEX PHRASING;6
(IV) ORGANIZES CLAUSES SO THAT THE EFFECT OF A "YES/FOR" OR7
"NO/AGAINST" VOTE IS READILY UNDERSTOOD; AND8
(V) P RESENTS NECESSARY INFORMATION WITHIN THE BALLOT9
TITLE IN A LOGICAL AND READABLE ORDER.10
SECTION 3. Act subject to petition - effective date -11
applicability. (1) (a) Except as otherwise provided in this section, this12
act takes effect at 12:01 a.m. on the day following the expiration of the13
ninety-day period after final adjournment of the general assembly (August14
12, 2026, if adjournment sine die is on May 13, 2026); except that, if a15
referendum petition is filed pursuant to section 1 (3) of article V of the16
state constitution against this act or an item, section, or part of this act17
within such period, then the act, item, section, or part will not take effect18
unless approved by the people at the general election to be held in19
November 2026 and, in such case, will take effect on the date of the20
official declaration of the vote thereon by the governor.21
(b) Section 1 of this act takes effect only if House Bill 26-108422
does not become law, in which case section 1 takes effect on the23
applicable effective date of this act.24
(c) Section 2 of this act takes effect only if House Bill 26-108425
becomes law, in which case section 2 takes effect on the applicable26
effective date of this act or on the effective date of House Bill 26-1084,27
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whichever is later.1
(2) This act applies to initiative petition drafts submitted to the2
secretary of state for title setting on or after the applicable effective date3
of this act.4
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