HomeMy WebLinkAbout2006 Ordinance No. 008•
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ORDINANCE NO . L
SERIES OF 2006
BY AUTHORITY
COUNCIL BILL NO . 9
INTRODUCED BY COUNCIL
MEMBER WOODWARD
AN ORDINANCE AMENDING TITLE I , CHAPTER 8, OF THE ENGLEWOOD
MUNICIPAL CODE 2000 , BY THE ADDITION OF A NEW SECTION 7
ENTITLED CONTRIBUTIONS.
WHEREAS, the passage of this propo se d Ordinance will allow City of Er ,wu,,c
candidates to accept contributions from corporations and labor organizations, and
WHEREAS, the Colorado Attorney General addre ss ed how rules in the Amendment 27
initiative, approved by Colorado voters on November 5, 2002, apply in election s in
home rule counties and municipalities : and
WHEREAS, the initiative amends both the Colorado Constitution and Colorado's Fair
Campaign Practices Act (FCPA), now Article XXVIII of the Colorado Constitution; and
WHEREAS , the Colorado Attorney General's opinion states that the "rules about
contributions in local elections by corpornti ons and labor organizations do not apply to
local elections" in Home Ruic cities; and
WHEREAS, the Co lo .do Attorney General also stated, "the legisl ative hi story of thi s
part of the amendment says that it is intended to apply to elections for statewide
officials ."; and
WHEREAS, the City of Englewood, Colorado is a Home Ruic City , thu s following the
Colorado Attorney General 's opinion that the Englewood candidates would be allowed to
accept contributions from corporations and labor organizaticms;
NOW, THEREFORE , BE IT ORDAINED BY THE CITY COUNCIL OF THE CITY
OF ENGLEWOOD, COLORADO, AS FOLLOWS :
~. The City Council of the City of Engl ewood hereby approves amending
Title I, Chapter 8, of the Englewood Municipal Code 2000, with the addition of a new
Section 7, which shall read as follows .
1-8-7: Contributions
Cand idate s will be allowed to accept contribu tions from cornora tions
and labor orct1~
.5.i:la.i!m..l. SafcJy Clauses The City Council hereby finds, dc1cm1incs, and
declares that this Ordinance is promu lgated under the general police power of the City
of Englewood, that it is promulgated for the health, safety, and welfare of the public,
and that this Ordinance is necessary for the preservation of health ar ~ sa,'cty and for
the protection of public convenience and wc 1farc . The City Council further
9 b ii
determines that the Ordinance bears a rati onal rel · 'on to the proper legi slati ve
object sought to be obtained.
~. Severabjljtv. tf any clause , sentence, paragraph, or part of thi s
Ordinance or the application thereof lo any per so n or eircumstunccs shall for any
reason be adjudged by a court of competent jurisdi ctio n invalid, such judgment shall
not affect, impair or invalidate the remainder of this Ordinance or its application lo
other persons or circumstances .
~ Inconsjstcnt Ordinances, All other Ordinances or portions thereof
inconsistent or connicting with this Ordinance or an y portion hereof arc hereby
repe aled 10 the extent of such incon sisten cy or conflici.
~-Effect of repeal or modification The repeal or modificati on of any
prov;sion of the Code of the City of Englewood by this Ordinanc e shall not rele ase,
extingui sh, alter, modify , or change in whole or in part any penalty, forfeiture , or
liability, ei ther civil or criminal, which sha ll have been incurred under such provision ,
and each provision shall be treated and held as still remaining in force for the
purposes of sustaining any and all proper actions, suits , proceedings , and prosecution s
for the enforcement of the penalty , forfeiture, or liability , as well as for the purpo se
of sustaining any judgment, decree , or order which can or may be rendered, entered ,
or made in such actions , suite;, proceedings, or prosecutions .
~-..fmruly, The Penalty Provision of Section 1-4-1 EMC shall apply lo
each and every vio lat iJn of thi s Ordinance .
Introdu ced, read in full , and passed on first reading on the Isl day of May, 2C•16.
Publ is hed as a Bill for an Ordinance on the 51h day of May, 20''6.
Read by till c and passed on final read ing on th e 15th day of May , 2006 .
Publi shed by title as Ordinance No. 8'.,_, Series of 2006 , on the I 9th day of May ,
2006 .
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COUNCIL COMMUNICATION
Date : Agenda llem: Subject :
Ma\' 1, 2006 9 a ii Bill allowing City of Englew ood Candidates to Accept
Corporate and Labor Organization Contrib utions
lniliated By: Staff Source:
D epartm ent of Finance and Administrati ve Fr ank Gryglewicz,
Services Dir ec tor of Fi nance an d Administrative Serv ices
City Clerk 's Office/Elec ti on Commission Loucrishia A. Ellis ,
Cit \' Clerk/Elec ti on Commi ssi on M ember
COUNCIL GOAL AND PREVIOUS COUNCIL ACTION
Cit \' Co un ci l re viewed this proposed ame ndment 10 the Code at the April 17, 2006 Study Sess ion.
RECOMMENDED ACTION
Th e Ele cti on Co mrni ssi on di sc us sed this issue at th eir February 21 , 2006 mee ting .
Tl w Ci ty Clerk's Office and the El ec ti on Commiss ion seek Cou nci l approval of a Bill for an
O rdinance stipulating th at City of Englew ood ca ndidates w ill be allowed to accep t contributions
from cor por~1tions and labor orga ni za tio ns .
BAC!<GROUND
Th e Fo rm al Opinion of Ken Salazar, Attorney General, dated lanuary 13, ~003, ad dresses how rul es
in the iniliati \f, approved b y th e Colorado voters on Nove mb er 5, ~002 , apply l o elec tions in home
rul e counti es and munici palities. The initiative am ends both th e Colorad o Constituti o n and
Colorado's Fair Campaign Pra c ti ces Ac t (FCPA), It is now Article XX\'i ll of th e Colorado
Constitution .
Mr. Salazar indica tes the "rules about con tributio ns in local elec tions by corporati ons and labo r
orga nizati ons do not apply to loca l elec ti ons." !Colora do Constitution Article XXVIII § 3 (4 ) (a)I , H e
also sta tes lhat "th e legis lalive history of th e amendment sa)'s that it is int ended to apply to elec ti ons
for statew id e offic ials,"
In accordance with Secret,,ry of State Rule 7.~. we are p roposing th at Ci ty Council ad opt an
ordinan ce to addr ess this issu e in a formal mann er .
FINANCIAL IMPACT
None
LIST OF ATTACHMENTS
Formal Opinion of Ken Salazar, Attorney General , dated January 13 , 2003, co nce rnin g election
campaign rul es se t for th in the Colorado Constitution and Colorado's Fair Campaign Pr ac tices Act
(FC PA).
Secretary of State Rul e 7.2
Bill fo r an Ordinan ce
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KJNS..i..u.ut Anomcy Cim<nl STATE Oli' COLORAJ>O
DEPARTMENT OF LAW
lh'ATISIRVIC:U •u1LDYNC
JS:?5 !lba!nan 91r-, • Slh Floor
!leave! Colorado 10203 l'houe ·llom66-'soo DON.w>S.QIJIO.:
Chi•fDepu!JI AIIDmoy G...,.J OFFICI! or TBI A'!TORNEY GlNl!RAL FAX (lOl ) 166-5691
Au.NJ. Gil.IDT
SalicitorGmml
FORMAL
OPINION
Of
KEN SALAZAR
AltomeyGciu,:ral
No .OJ-I
AO Alpha No. ST EL AGBAS
January 13, 2003
This apinian CODComs electioo campaign rul"' cootlinod in m initiative approved by
Colorado', votcn oo Novcmbor 5, 2002 . The initiative amends bolh 1bc Colo!ldo Constitution mid
Colmado'• Fair Campaign Practices Al:t C'FCl'A j . his now Alticle xxvm of the Colorado
Cooslituticm.
This opinion addrwcs how !be rules in tbc initwive apply 10 elections in home rule
counlics mid mimicipalities . This opinion i, iaucd 11t Ibo roquest of Colonido Sec:rClll')' of Ste
p..,_ Davidsoo.
QUl&TIDNS PRl&iNTED AHD CoNCLVSIONS
Qucrtitm J: Do Article XXVU! and th: FCP A apply 1o every bomc rule county and .
municipality, r,gardles& of whether th: co1llllJI or municipality bas onaotod onfinanccs or chaner
provisions covering similar •ubjcct msttcr'I
An,..,.,. J : L· elcetioo maam oflocal concem, neither Article XXVTII of the Colorado
CllllS1itulion nor the PCP A ,q,plies 10 home rule COUlltiCS and municipalities which MVC cha1:n; or
OIIWllllOCI 1h11 almady addteas the mattm covc:rod by Article xxvm :md the swm..
1D addition, Article xxvm comaiui; OD!y a few proviBions that ali'ect local clectiOllS,
induding those that addn:ss the definition of a candidllc, small donor committee cootribulioru and
disolosurc . For tho! reason, cvCD looal elections that remain aubjcct 10 Aniclc XXVlD will net be
gn,atly afi'cctcd.
Quurion 2: If a home rule county or mw,icipality lldopt& ordinanoe or charter provisions
more strinSCDI tbAn Anicl• xxvm and tht FCPA, do tb01c mare &trins=,t provisions apply 10
i:owuy or municipal •lccti011< in accord with Section 1-45-116, C.R.S.?
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Answtr 2: The ebanor or ordin.antcs of a home rule mtity that addres s oampaigu finnncing
and rcpartmg for c1111dida~ for office at !he coUDt)' or munieipal level control within Iha! h01Dc rule
entity whether or not they are more stringent than constinnional or S1l1lllDry rules . This is bccaus:
lo::al ele."lioo ma= are a power roscrved in tho Colorado Constililfian to home rule eutiti::s .
Qu,,tion 3: Does tho p1 ',bition in Section 3(4)(n) of Aniele JO..'Vlll, malcing it ''unlawful
for a corponlion or labor argamzation to uuilcc coutnbutions to a candidate comraittce or political
pany , and to make ~turos expre&sly advOOllinj: th e election or defuat of a c:undidalo," a:pply to
candidates for election in home rule municipaliliet; 1111d counties?
Answer 3: The prohibition in Section 3(4)(a) of Anicle )O(V "' docs nut apply IC candidates
rc .. local electicm in borne rule or ,lallllmy localities .
BACKGROUND
On November 5, 2002, the citi=s of Colorado approved a ballot initiBiiv. titled
"A•ncudmCUI 27 : Campaigu Finaocc ." This initiative amend£ tho Colorado CDDSlitution by the
addition of, now provision, hcreinaller referred to u "Anicle XXVIll," lt also amend£ part of
Colorado', Fair Campoign Practices Act, § 1-45-101 er S"J ,, C.R.S. (2002) ("FCPA'1 , by Jllacing
limJu on th: amountJ and iypes of ccmtributions permitted during an election, amOlli othor
changes .
The read.,-is ca11tioncd that this opinion does not imalyze the IJ>ecific laws of a particular
home rule county or municipality, and it is limiU>d in this respccl. A aq,arate legal analysis is
ne:::smy u, determine if a portion of a panicular chartc or ordinanoe CODf!iClS with one or more
IJIOCi!ie provisions of Aniele xxvm of the ColD!lldo Canstinnion or the FPCA ,
Finally, the broader cont:xt farthii opinion is important. Anicle XA'V!Il contain• relatively
few rules that address local clectiom. The conclusi<m n:uchea below -that the&c rules wil I llp))ly
only in local elections in stBIUIOry COUDlie&, cities and towns -will thm:f= have a relstively
limii.d impact upon those local clectillllS. For the moSt part, the campaign finance rules for a.II local
elections lhAr oxistcd prior to the adoption of Anicle XXVIII will continue unchanged.
LEGAL ANALYSIS
Tbe Se=tary of State'• inquiry requires consid::mti on and interpretation of 1cvcrul
sections of Colorado's constitution and statulCs . These inclutle Section 6 of Article XX of the
constiMion, Article XXVlil oflhc constitution, •nd a portion of the FCPA ~ 1-45-116, C.lLS.
(2002).
The legol analysis !hat follow, begins with a discuuion of Article XX, tho constitutional
grunt oi home Nie aulhori· .cs for cities and toWU&. It consider& tho powers g,anlell to bolJle rule
citi es and towns, and cnncludos that these home rule entities generally rcgul""' their local
elections free from outside rules, including those in Aniole XXVJJI.
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The maJylis die dmonoc, lhc home rule aulhoriticl granted lo countiea in tbe
con .1ilmi011, 1111horitim that arc more limlll:d by lllllllta l!IIICted by tbc Grmcral Alsembly .
Nevm 'bl:1-. tho 11111ytis ccmcludec with rqll'd to local elccti01111hal Ibo bR&dlh ofbome rule
powen ui .:ounrics ii limll1r11> the btwlth ofhomt rule powers of oims and towns. Article
XXVIII does not expn,uly or impli:ttly repeal the ammllllion •, homo rule provisions .
Fi'llllly, tbc dltcuui011 lddreaics tbc 1mtl of Attiolc xxvm 1o conclude that• ai,out
COIIDibutiOTII in local elections by carpomians and labor O!plliDtioo1 di> DOI apply to local
olecti-.
L The ColDradll Collllilatlon Coafen Upon CIU• ud Towu Bome Rllle Powers Ill
Replate Loeal Eleodou.
The 11,pl proviai011111he hmm of this opiDi<m is section 6 of Al'ticle XX of1he Colorado
Coutitution . Thi, IOC!iou describes the powon plCd ID Colorado 's home rule cities md
towns.It~:
The people of each city or toWD ofthil rllle, haviq a populalion of two
lhousmd iuhab!tmts ... , an hereby vCltod with, 11111 they shall always
have, power 1D make, IIIIIIIDd, add ID or rcp1ace tbe chartm of said cily or
town, which lhall be !ti ori:mic law md ~ to Ill ill local and
IIIIIDicipal ffllllcrl .
Suell cbaner 11111 the mdillllDCel made pmsuml 1hmelo in i;ucb mtllmB
lhall supcncdo within tbe territorial limlts md other jurildlction of uid
city or town miy law of the mte in o<mflict thaRwilh.
[A!lartbo charter ii approved,] the citizens tbarco~ lhall have tho power&
NI out in scctiODI I, 4 and 5 ofthil article, and all otJ..r powers
n,cu,a,y, r,JJULlltt or propv for th, gaw,mm..i and odmlniltrlltion of
IU /oc,,/ and municipal mattm, Including pa.,,.,. to lepl41• llpOII.
provide, r,gu/ato, conduct .,nd control:
L The creation and 1mns oimamlcfpal offi,:en. ap,du and
.,,,,,1r,ymrn1; rhe definition. reguuzllon and al16ration ·of rhe p,,w,r,,
dutia, g1U1/ljicatians and term, or tmure of all mvnldpal oJ!ictrn , apnu
ond,mplayw; ...
cl. All mattm pmalnlnr 10 municipal elections In n,cJ, city or
town. and to dccumil vo1u thmin on /IIIIIJll1'l.f "'bmltred und,:r th•
clumrr or tmlt~u 1ker,of. incllldini: 1be calli111 or nallce mil du, rlall>
of IUCh election or vote, the reginllion of votcn, aombwioas,
IIOllrinatim, ad cloctim, 1)'1181111, judp and olcb of eleclicm, 1be form
ofballoll, ballolin&, chaJl.onp,1, CIIIYWm&, CC!li{yina 1be mu!~ aocurm, the purity of elections, guardina apiDlt abuloa or the elective
flandii&e , and lcadiqto mlb 1ucll olaetiam ... /LOll•partillll[,J
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Co1..0 . CoNST. art. XX. § 6 (emphasis ad&d).
Arti:l< XX dllCaibes !ts purpose clearly . It ii inleldcd to grut important rights of acl!•
govm>mmll to home rule entities .
It iB the inllDllion of this aniolc IO put 111d coumm to the people ohll
municipalities coming within its pruvisioas the full right of ,elf.
govmmcot in both loco! mid lllUllicipal IDl1tm wl the enumcrotioo
herein of cenain powcn shall oot be coDJll'Ucd to dony IIUl)h citi .. and
IDWD&, aod to the people thereof, aoy rii:ht or power os,ootiaJ ar proper to
the IWI mten:iac of such riJlhL
Co1..0 . er .. n:r. art. XX. § 6. The scope oflhele powers is empbuizcd by the soocnl 8J1111t to
homcnile cnrities of"all other powers neccaazy, roquisillo arpropor for the gavenimcut and
adminilll'llian of tis lacal nd IIWDicipal 111111:rt[.]" Id.
Home rule cities an.cl toWDS remam IClpODlible far compliaocc with mte law whore they
have not otherwise provided a rule by c:ham:r or mdinancc . The conatiturioo provides :
The 1tatu1e1 of the llallo ofColO!lda , so far u applicable, shall continue 10
ap ply to such cilies an.cl towns, exoc,pt imofar u 1111peraedod by the
,L 1ffl of such cities md towm or by ordinance pulled p!IBIWII ID auch
chlll!OR ..
Id. Finally, the cOllltinnioo Nml how a city or town availJ itself of tho powors dcacribod here
and in other acotious of Article XX. The city or town create£ a cklt!Nr that out1ioes the str~
and powen it wi&hesto adopt, llld lhoo bu the chatU:r certified by the Sccmmy of Slate. Id.
Th• Mlo'l' of Al'ti&Je XX The hirrary of Article XX comirms its sublW!tial ,pplicatioo
in pr&Clicc . The Colorado Supffime Court desa,l,ed that history in a cue dooidcd thitry Y"8J'li
ago . The diocu11ioa 11w follows is drawn from bl cue, ootitled Hoper v. City and Camry of
Denver, 173 Colo. 390,479 P .2d 967 (1971).
Article XX was added ID the Colorado Constitulion in 1902, in part IO establish Denver u
a consolidated mllllicipal government w;th home Nie powm . Hoper , 173 Colo . at 396,479 ·P .2d
at 970 . During the followiog decade , considenblo cootrovmy arose over tho constrllotion of the
amClldmenL Id., citing Denver v. Mountain Slates T,lephone & Telegraph Co., 67 Colo . 2~5 .
184 P. 604(1919).
The eontrovmy sprang from a oarrow judicial detenninaJ:ion of local or mtlllicipnl
m1t1er1 within the control of a home rule city . Jd. The Colorado Supreme Court 1U1D011Dccd the
nmrow in,apretatioo of home rule powers in Mauffv . Poople , 52 Colo . 562, 123 P. JOI (! 912).
It held that the City aod County of Denver had oaly Jir,i ted powcn under Article XX ID coQlrOI
the conduct of mnnicipal elc:<tion,, aod tbat the Colondo Constirution aod 1eneral Jaws
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c011ccmmg the ragulntion. control md mar..agcmcnt of ch:cti•lllS wen: fully •~plicablc to Denver
municipal ole.."tions. Hoper, 173 Colo . at 396 . 479 P ?.rl !l n o.
In rcspDlllC, ~J e people initilllcd and adopted.,, amendment 10 Article XX, § 6 Inter that
year, lcnowu as the ''home n,le amendment''. The Colo,.ido Sup"'11!C Cour1 d=nbed the
ratimwe aod intood<d effect of this amendment as follows :
It i, a part of the histoty of the sta1e ·that the people were diiappointcd, 001
ID aay more, at the !Hlrictions plll UJIOll the power& of cities by this eourt'6
itump!0111tion, of article 20 , wl that the home ntlc 11UCDdme:nt was the
expression of that fc:!ing .
Id .. citing Dem-tr v. Mountain States Tel,phon• & T,Jegraph Co, 011pra, 11!4 P. 604 .
Toe hiBtorical toxt of the home ntlc provision, still folll!d in today's constituticm, plainly
cxprwcs it< intcut ID allow home rule control oflocal election matters . It say;, "[a]U mattors
pcr!l!ning ID municipal clcctiOllS in suoh city or town, and to electoral votos therein ot1 measures
,ubmiued Ullder 1M chamr or ordinances tbcia>f .... " ll1'!l of local conccm. COLO . CoNST. art
XX,§ 6.d.
Toe count; have rr<=ognizcd the signifiCB11cc ofthc:3e provieiolll!, Ju gcucral. the powers
listed in Aniclc XX m coua!dcred to be mattm of purely local Bild m1111icipal conccm . Four-
Co1111ty M,tropolttan Capito/ lmpr=mt Dist v. Board a/County Comm 'nrs, 149 Colo. 284,
369 P .2d 67 (1962); bllt .m Fraternal Order of Police, Colorado Lodge No. 27 v. City and
Ctnmty of Demer, 926 P.2d S62, S88-89 (Colo . 1996) {spz,oific enummati011 in the constit ution is
not dispoeitive, 011ly • factor). Also , the IClm "municipal election" bu been broadly coustrucd .
Moy v. Town of MmmtDin Village, 969 P.2d 790 (Colo. App. 1998) (approving home rule town 's
extension of voting fr.mcbi se to non-resident!!); Hoper, 173 Colo . at 396, 4 79 P .2d at 970 .
Finally, the =ent practiee in home rule towns &nd cities in Colorado confitlll6 the
commoo undmtanding that the,e cmities regulate local elections. The clmters and codes of
home rulc entities contain suhstlUltinl previsions regulating that ~cct See e.g., § 15-31 et seq.,
Revised Municipal Code of the City IDd County ofDenvor (1991).
Against this historical and pr.i.."tical backdrop, I recognize that Article XX vests home
rule cities and towus with authority ID regulate local elections . This authority includes rules
repnlini contribution I imits, r:p orting requirements and the like .
Il. Colo,ado's Home Rule Countics Pou""' Powcn; ta Rcplate County Elcdion1.
Toe powm of borne rule counties differ sillJ>ificmtly from th• powcn of home rule cities
Bild towns . Hom• rule countic, an, subject ID separate constirutional limitatiOllS, and they ore
signifiem>tly man: limited by Colorado's General Ammbly, through the en&c:mient of state
1 Althou;h home fW mw,lcipalitir:11 rm.in the pO"Ncr 10 ,pccity W!ir own election praccduru, many mut1icipiaUties
adapt the mcc ·s municipal elDCaon code byreferwce . Compar, CoLO . CONST. art XX.§ 6(1) with§ 31-10-10 1,
C.R.S . (2001.); ,,. ai,o Err;:/,woodfoiir,, IJ•nefa ,v1 'n v. Ctr,,oj£n:l•wood, Bll P.2d 464 (Colo . App . 1'990) .
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sauutos . Nevcnhelcss, for the n:asDDS that follow J conclude that home rule COU11tioo also arc
empowered 10 decido upon their OMl ~on rules, and that home rule oounty powers in Ibis
rcsa,,I arc similar ill ,cope 10 those ofbomc rulo ciries and 10Mll ,
B0111, nm co,u,zy po>NTS on4 lbnluldons. Home rule counties an: aovcmed by Article
XIV , Sccrion 16 of 1hc Calondo CoNtitUricm. Tbat section providu bomc rulo counties with
rights of sclf-i;ovc:mancc that arc limited by 11m stamte :
[TJhc rcgis=cd electors of cacli coumy of the swe arc hereby
vCl!Od with the power 10 adopt a home rule chancr csublilbing the
orpni2alion lllll a= of coumy gov11111?Dent COllliltent with
this uticle and ,t:aatt,:s =ted pumw>I her=.
COLO . CoNST. art. XIV, § 16(1). This provision allows a COUllty 10 adopt a charter that sctS a
ditfcrmt orpnizatioo aod 111110rurc for coumy govemment thao the orga1rimo11 and struoture
set 0\11 in dClaiJ in the n,st of Article XIV .
The Gcu.eral Assembly cxorcim ,ubstaalial cODIIOI over bome rule coumies . The
COllltiturion provu!es :
A boroe rule caunty aball provide all tllllldatory COU1lty functions ,
scrviC"-£, and facilities and shall oxcroise all mandatory powcn; as
llllY be rcquuod by stanrtc.
Co~o . CONST . Ill. XIV, § 16(3). Similarly, the Clcnml A11embly "411l providC by ll!atule limiU 10
lhe permissive fimctioua , services, faciliti"' and powcn; that can h: excrci1ed by borne rule
counties .
A bomc ntle county sball be cmpowcrod to provide such
permisslve fwictions, services, and facilities and 10 cxcrcisc such
permissive powers u may be awhorizcd by stalU!O appli!='hle 10 all
home rule cowrti cs, oxccpt as may be otherwise prohibited or
limited by ch= or !hi. constitu1io11.
COLO. CONST , art. ;:JI/, § 16(4). The Gon=l Assembly has ICICd ill thei;c aroas . S,c § 30-35 -
'!0l, 202, C.R.S . (various powcn; of bome rulo C01mtics).
Hom ruk coruuia 111111 lotllJ ,l,dlom. DC!Jllle the mare limited powers ofbomc rule
coumie, gC11C1'11lly, lhc atru.cturo of the connitution in Article XVI confirms home rule county
control of local clr.ction&. That IINCIUrc lbows that home rulo counties have tbc powor 10 adopt
cbanor ruloa to rcgulal: the upCCII of local elections tbat an, also addressed in Article xxvm .
It ~fore suppons the concluaion that home rule eowttics, like home rule citi es and tmvns, are
1101 suhjec110 Article xxvm in local elections .
Article >..1V of the conatillJ!ion 5CII out detailed illltructions cooccrning the arga~ization
and clcctico of couoty officialJl . Speci!i c guidelines for bow county commisaionm llJ'C clecu:d
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&Dd !heir tenns in office are camainod in Article XIV ,§ 6. Rules for bow •"'1Il!Y clerks,
caroncn, trcuurc11, wesaan, aaamcys , and 111rveyors arc elected, sppointod and serve arc set
out in detail in Aniclo XIV, § 8. The quaiificarioi,,; for shmffs ue diacuuod in Aniclc YJV, ! 9,
and haw vacmeo arc filled ii wcn'bed iu Article XJV , i 10 . Toe Gcnetal AJScmbly provides
for election er oppoinlmlllll of other county officen in Artiale XIV, i 12. The compensation aud
f<~B oi'com,ty. oflicen is detailed in Article XIV,§ 15.
SigoifiCllllly, however, home rule COllll!ic, can substlane 1heir own rules in ~ery one of
tbos e mas. Aniclc XIV,§ 16(5) say,:
The proviai0111 of...,tion, 6, 8, 9, 10, 12, and 15 ofmticle XI V of
this =ti!Uli011 lhall apply to counties adopting a home nllc
chancr only to IUCh extent as may be provided in said charter.
CoLfl . CO NST , arL XIV,§ 16(5).2
This ccnsti1utional 5tn2cture 11Upp0l11 the ~uce that heme Nle co1111rios can gcncnlly
cil ose in tbeir charters tlu, rules they desire for the clCCli011 oflocal officers . I =lude on this
b .. i, dull home rule counlics arc empowered to rcgulalc county elcctim,s , They have, lhroup
their chartm , the ability to addra., the same aspcct5 of election campaigns addrwcd in Article
xxvm.'
m. The Campllp Flnanec lldonm In Article XXVDI Do Not Control Local Elections
within the Bame R.ale Entities That Replat< EI..Uam.
It is left to examine whet!u:r !he few consritutim,al campai:;u finance n,form& in Anil:le
XXVIIl that affect lllCll cJ.octiam are intmdod by the People to displace th: clJIIS!itutimial
elccri011 powm ot home rule cities, tllWtl6 ana counties just dcscn'bcd. I coucludc that
Amcndmcat XXVlD docs not displace home rule clec:lion powers, for the reasons set fortb
bolow.
Toe naw campaign mwico prov isions in Artiole xxvm uc set forth in two pans . Tot:
lim, a dctail:d and lengtby iet of provi.si DDl, 1nnounc01 constiUiticn,ai ruh,, COVGIIWll the
financing of eloctiDIIS, Tho 10tan.i, a much anallor section, displacos a part of tho existing
,wwory mechBDi.sm rogullling campaign finw:c in Co\Otlall, the Fair Campaign ~cos Act,
§ 1-45-101 er seq. C.ll .S. (2002).
1 Enabling lcp:luioa thus fmtbcr defines how coumy commiuioaers orpniu 3nd set up B charter. Stt1 §
30-11 -501 "ffl/ .. C.R.S . (2002).
> The MlD\icipal Elecdou Code rtCOl:Elim that c home rule "city w1 county" can opt, like home rule cities and
towru:1 to rc,ui&te 8101:tin . lt provide£: "Thil' article lhall not apply to ciciasi towN, or cttias and CCM1Uca hav ing
bomerule, buuny 111,h city, u,wn, arcil)' and coumymay adoptM l ara,y ponofll>k aniolc by ref=.'' f ll•
IO-ISJ9 , C,R.S . (l0G.l);,.H g •• May ,969 P.2d at 195 (in Its cbmcr. the T0WII ldof,tld lhc Mwiicipal Election
Code. butnoled tlwolcaiom 1hMI bo :o......i by tho Code "[c)xcq,tas m1ybtathawi1epn,,ldr' in this
Chlrtll'1; In k Bo/lot Tit /, and Slibmlukln Cla"-", and Svmmaryfo r /997°/9981/o. VS, 960 P.21 )4, 1209
(Colo. 1998) (rccoan izin1 dw the power of home rule cities is not daivod from the Geutrzl Astern:..,)', but ii an
in depmdont tm111ianionll P"""' 111d 1>ioetiaa iaidativc that would dq,rive boma Nie cru os olthil power) .
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The COlllli1111ional i:xt o! Aniclc XJCVm does not UDifmmly refer to ~ or to local
elDCti0111 . Rmliar, 111011 portions addrmJ 11D eleoliam l1mic, while othm concern llale, local
and other elections, wl slilJ o1hcra an, lilent OD dlis poinL It ia apparent 11111 those choices arc
mada cmfully in !he UllCI of Aniclc XXVIU. It followt dinct\y from this lilct that Anicle
XXVID doc& not intciul to preempt 111 elaclion ruloa wilhin the 11111: that DOIICCll1 the 1110jcct
-it addrtuel.
A few poniam of Article xxvm apply by diclr1111D1S to local olcctionl. A "candidate" is
definad Ill mcludc ...,,y p,nou who seeks nominalim,, or olocni1111 to Ill)' IIIIO or local public
office !hat is to be voted Oil in lhil rta!Z:[.]" Se,, COLO , CONST. mt XXVllI, § 2(2). In edditicn,
agrcp,e individual conlribllliou rules apply 111 local elections:
No political party aball GCept esgroplll OOlllributiOIIS fram ID)'
perum, other !ban a anaU donor commillcc aa dolcn'bed in
parlCTlph (b) at this lllhaeetiou (3), that exooed three lhouaDd
dallm per y.-II !he IIIIO, C01111t)', district mu! local lcvc1
combmed ....
c01.0. CONsr. m. xxvm. § 3(3)(1). Finally, Article xxvm makii. , sep&r11e n,flnmce u,
dillCloaure JeqllDllll01l1I in local electi011S :
The discloaure n,quircmmts rolmnt to Cllldid&to cotnmlaeos,
palilical caminittees, iuuo calllllli1tees, and political parties, 11111
an, Clllmltly act£artb iu loctiOD J-4S-108, CJLS., or &Dy IUCOOUOr
sectiOD, lha1I be oXllmded to include 1111111 dmior ~ ....
Forplllpam afdiis IIOCtiml and l-4S-108, CJLS, ... , a polilical
))llt)' ahall betR&ud u aeparato cntitieaattbe 1181lo, COllll!y,
district, ad looal levels[.]
COLO. CONST . art. XXVIn, § 7.
These rcf=ncos ID local electimu; raise an imponlmt-bame rult quc,,'lian. Aro the limited
. rules in Article xxvm that rcsulalll lacal clecliODS inlimdod ID 10v11111 DIiiy local clectiom in
entiti .. that do not exarciae hmnc rule powers, or w tbay inllmdod ta 111JJPlant the hom, rule
p0W011 over olectiom diacuaaed ir. dlltail above? For the rcuans that tbllaw, I conclude that
Article xvm dacs DOt mpplar.• ch,, homo rule pawm of cities, towns 111d cowms to rcgulati:
clceiions.
Th• ailcnce of Anicle xxvm on the ham, rule~-is conviocing. The entire Jmalhy
and dlltailed Fl)viliou caruams no llltcra=1t 1h11 it goV1111B home rule entirios. Apinst an
hi1111rical backdrop of home rule 10vCIIIIIMDt in Colorado far niorc than levon1y yem, th.al
Ollliaion ii mUin1, Su City of Enrl.wood v. City cl County of D•nver, 123 Colo . 290, 30 I, 22.9
P .2d 667 ,673 (1951) (citing "universal rule that repeals by implicali011 arc not favored"),
ov•mtlod on oth~ ,:rounds by Board of Cavnry Comm 'r, of ..4rapoJ,o, County v. D.,,.,.,-Bd, of
War,r Comm 'rs, 718 P .2d 23S (Colo . 1986); acccrd Showpiece Homa Corp , v. b.svranc,, Co.
of Am., 38 P .3d 47, 53 (Colo . 2001 ).
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When Article xxvm does oxpreuly address canllictin1 Q0""""""'1111 rules far
elel:liODS , it docs 001 mClltion the role of home rule lllllitiec . lt mcrs only to IIIIO statute, tho
prillcipal IDCl:banism uacd to CO!lllol local emities that hive 1\01 chosen home rule. Section l l of
Article xxvm 1imply says, "[a]l,y provi1i0111 in 11,e 111tmeB of this SIii: ii> conflict or
i11COD1is1cm with this arw:le an, berwy declared to be inapplicable .... " If Article XXVlll is to
Sovern bo!IIO rule aulborilies, cbartm and ardiD&Does IUl'Dly would be mentioned. Compare
Col.O . CoNST . art. X, § 20 (l!llCll4IIIODI wriltml ID "supccccle collllietinjl SU COl1lli1ulional,
slate IWUtory, charter, or other rratc or local 1ovom111t11t proVliions").
Moroovcr, though five other provisia,,, of the Fair Campaip Pnictice, Act arc repc&lcd
by Article xxvm, the portion of the FCPA rocogmziu; the power of home rule counties a,id
municipalities to rep~ elcctiODS imemiDllllly is left Ulltoucbcd by the comtibllional
IUDClldment The provision left illlact, Section 116, Dys :
A1rj home rule coumy or municipality may adopt ordilllllOCI or ~
proviaions with 1<11peCt to iu local elcetions, which arc more striqont than
my of the proviliom comaiDod in thiJ Act. .•.
§ 1-45-116, C.ILS . (2002); lff alro COLO. CONST . art. XXVIll, § 12 (llffirrnin& § 116 is 1101
n:pcaled); Goslinerv. Dmwr Elu:tton Comm 'n, 1;1 Colo . 328 ,552 P.2d 1010 (1976) (public
mcetin& law could 001 divest a home rule city of ill comtitutionally Jllmlted plcuuy power to
deal wilh IIIUIUCipal eloctions). Tlw choice demoll!Ullos an inlelllioo ID leave the powers of
home rule Clltilios intact.
Adcliticmally , the legialalive bi5tc,y of~ ini!iw campaiJlll fiDaDee mwurc does· not
show an iDll:ut to 111pmtcde home rule powcn in tho COlllribution limi11 area. Neither tho bellot
mfo!1Dllion booklet mailed u, the votcrs nor the pn,panc1111 of Ammnal 27 11119d that the
Amendment was intmdcd to dilfflllllUe honic rule Clllilio;;' limlmi..,. upon COlllribulimu; tD local
~ Sn Buffordv. Sinclair, 112 Colo . 176, 182, 147 P .2d 486,489 (1944)(m:o110izing
that "1he cvidont CDDlmllpOlaty intl::lpfflla~an oflhoac active y pro11101ing !he AIIIC!ldmt11t 1bould
be afforded c0D1iderablc weight"); Jte also Carrara /'/act:, Lui. v. Arapaho, Cmmty Bd. Of
Eqvo/iun/on, 761 P.2d 197,203 (Colo . 1988).
Fiually, Anicle xxvm 1111d the home ru\e provuion,; of the cODStimtion Clll be read in
ban:nony . This is accomplilhcd i! the limited local election rules iu Aniclc XXVlll ue rcad 10
apply only 10 cities, 1owm aod counties that dt, ltOt exorcise home rule authorities . They have
fon:c in that regard, but the hotoe rule proviriODS of Articles XX and XIV m:e loft wtimpa ired, a.s
well . WbC11Cvcr poaaible , coun. strive to rewnclle constitutional or swutory prnvisioDJ witbow
coo.Oict. S,:,i e.g., In r• Grtat Outdoors Colorado 1hu1 Fund, 913 P.2d 533,538 (Colo . 1996),
For all these roasnna, l conclude that Aniol• XXVtn of the eoU1titutu111 does not aupplaut
the home rule authoritie• or Aniclea XX and XIV of the collllitution in the arca of campaign
fiDaOCC . IWbcr, thc campaii;n finance choice. mode in lhe c!iancn: and ordUJ11Jccs o~ home rule
Cll!iti:. survive separately from the rulC5 co~ in Article xxvm.
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IV, Ar1lele XXVInD11t1 Not lllpOle Upo11 Bame Rlllo or Olller Local Eltldll J•
Umllatla111 OIi Comrllml11111 from Labor Orplllzatlom Ull Corp1ntioa1
II folloWI that tbe C01111i1111iDDII IUIIC!ldmlmt dOCI DO! impOIIC limita 011 camnbutions by
corpmlli0111 and labor cqaniali0111 UJIOII home Nie or 01har local cut!lles. The iext oftbc
amendmeut providca, iu re\lMII! part:
!t lball be un\nlful £or a COlpOTllion or labor orpnizaliou to make
ca111ribulions to a Dll1didm co1D111itu,e or a political party, 1111d to mala:
expenditures e,qmslly adv~ tho olecliou or dcfoat of a cadidale;
mcept 1h11 a cmpora1ioo or labor arpaizatian may uublisb a polilical
oommillee or a 1111111 donor committee which may accept comribllliom m
duel from cmploye.., officehaldon, sharcboldcn;, or mombors .
CoLO. CONST. m xxvm, § 3(4)(a). Notbing ill the pmvisiOll Stllll& wbatbcr its 1imllltians
apply to ham.c rule cntitica.
The io,illllivoh!S1ory of the~ says that itis inllmdcd to apply to clecticma for
11atewide ofllcllla. The ''Blue Book" lf'IUIIICI ill IUpplltl oftlw inilillivc specifically deecn"bcs
'only l1ltewidc Ollldidc:s u ooVCffld by the IIIICDdmmlt:
Altbougb corporaliom 1111.d lahor uniam CIIIIIOI vote, spendillg by such
Olllitiol illfhimll:ca 1bc pollllcal process . Under tbil: prupoul, tbosc
orpnmtiODS wtll have u, railo money from ompfoy ccs, shanobolckn. and
members who comribut,: Ix> 1111111 doom ind political commmeoi mlm
the di!octly fimdma polllical activhics. Carporali111111111d llbar uniant 1m
alnldy bamlcd fram direclly ccmtn1mlin& to fcdml Clllllidalca; tltl.r
prr,poso/ mnply ~• the hon to statt """-'·
· Lcai&lalive Co1111cil oflho Colo, Gen. Aucmbly. An Ana)Vljs of2002 Balint Prppnals,
Rcce4rch Pub . No. S02-10 II 6 (2002)(omphw added); uuLro Camira Ploce, Ltd., 761 P.2d
II 203 ("Jori.dative council' I imorprcwian, while not billdin&, providos iu,poltlllll imight imo
the elac:tintc' • wu!el'ltandiD: of the amClldmcnt when it wu pwcd"). There is no n:latzd
di1Cllllioo or mcruion of IIIUllioipll cw,li0111; 1111d tbe tofcrcuce to ltllC elections cannot bo
extcnded boyand ill clear lanruage. Li"8wilc, tlae lack of refm9'lco to home tulc clww or
ordUWlCIII i< imtnlCtivc . Su 11qm, p. 5 w. Haper, 173 Colo. at 395,479 P.ld &1969 (DD'hllll
that ill the "ab•enc• of a cloar 1111mcnt u, die olfcct that municipalitico an: limited. such
mcamD8 CllllllOt 1111D lbould not be intom,d").
CONCUISION
For the to8S0DI dcacribed, Aniclc XXVIll does DOI apply to lwro, ~ co1111tico mid
mllllicipalities wbich have clwm1 or onlinani:ol that already addrca, the mallffl covered in Article xxvm. Allo, tbe prohlbilion ill SectiOD 3(4)(1) of Anicl: XXVlII, limiting coipora ar labor
arganiz.llian cDlllributiom , doe& DOI apply to candidatllli for local offices .
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Aaillll!IA!IDmcy Gcnonl
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SECRETARY OF STATE
RULES CONCERNING CAMPAIGN AND POLITICAL FINANCE
[8 CCR I 505-6)
Administrative Hearings in the Departmenl of Personnel and Administralion for the
consideration by an administrative law judge, which will notify the respondenlS of the filing of
the comp laint and which will issue all other appropriate notices to the panics . [Atticle XXVIII,
Section 9(2)(a)]
7. Ap pllcabUlly or Constitutional and Statutorv Provisions to Loca l Offices and Home Rule
Eleelions
7.1 The n:quiremenlS of An icle XXVIII of the State Constitution and of Article 45 of Title I,
Colorado Revised Stat1Jtes 1 shall not apply to home rule counties or home rule municipa lities
that have adopted charters, ordinances , or resolutions that address any of the matters covered by
Article XXVIII or Title I, Anitlc 45 .
~ 7.2 The provisions of Section 3(4) of Attitle XXVIII of the State Constitution relating to
contributions and expenditures of corporations and labor unions apply to elections to every
state and local public office, except local public offices in home rule counties or home rule
municipalities that have adopted charters , ordinances, or resolutions that addre ss any of the
matters covered by Article XXVID or Title I, Article 45 . •
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7.3 The provisions of section 1-45-105 .5, relating to a prohibition on lobbyist contributions to
members of the General Assembly duri ng legis lative sessions, apply to members of the General
Asscm'oly who arc candidates for any slllte or loca l office , inc luding any office in home rule
municipalities that have adopted charters, ordinances, or resolutions that address any of the
matters covered by Article XXVIII or Title I, Atticle 45 .
7.4 A political party, as defined in Section 2(13) of Article XXVl!I of the Stllte Constitution, at the
level of a home rule county or home rule municipality that has adopted a chancr, ordinance, or
resoluti on that addresses any of the matters covered by Atticle XXVl!I or Title I, Article 45 ,
may establish a separate account that is used solely for contributions made to the party, and
expenditures made by the party , for the purpose of supponing the pany's county or municipal
candidates for offices within the county or municipality . Contributions to and expenditures
from such accounl shall not be included for purposes of any limitations or reponing contained
in Article XXVIII or Title I, Article 45 .
8, Candidate Affidavits from Special District Director Candidates
8.1 The s9eciol distric t designated election official or, as applicable, the presiding officer or the
secretary or the board of directors, under section 32-1-804.3(5), C.R.S., shall provide to the
county clerk and recorder of the county in which the district court having jurisdiction over the
special ~istrict pursuant to section 32-1-303, C.R.S ., is located. Either a list of the board of
director candidates, or the sclf•nomination and acceptance forms and letters, and affidavits of
intent to b< a writc-i.1 candidate, within ten days of L~cir filing with the designated election
official, pn:siding officer, or secretary as applicable .
8.2 If a candidate for a speci al district off:cc fails to file a candidate affidavit , or the filed self-
nomination and acceptan ce fonn or letter, or the affidavi t of intent to be a write •u1 candidate
docs not conlllin the statement required by section 1-45-110(1), C.R.S., the county clerk and
recorder shall mail the special di strict a copy of the notification to the candidate regarding
ptoding disqualification sent pursuant to section 1-45-111 (3).