Author: olls

  • Where to Turn When You Are Faced with an Ethics Dilemma

    Editor’s note: This article was originally written by Jennifer Gilroy and posted on January 17, 2013.  This version has been edited and updated for this publication.

    Bravo!! You’ve just realized that the invitation you received today to participate in a legislative conference in Las Vegas, or a business luncheon in your district, or a tour of the southwestern Colorado river basins may actually present an ethics issue that you need to consider before immediately accepting. You are momentarily pleased with yourself for recognizing the ethics issue, but then trepidation sets in as you begin to ponder the many sources of ethics laws in Colorado. There’s something about gifts over $75, refusing all gifts from lobbyists, conflicts of interest, and undue influence. The sources of ethics laws in Colorado seem so complicated and confusing and, frankly, you’re really not sure if you understand them well enough to evaluate your situation accurately. Where can you turn for guidance when you are faced with an ethics dilemma?

    The following are five resources you can use to evaluate the ethical challenges that you may face from time to time while serving as a member of the Colorado General Assembly.

    1. Consult Various Resources Available Online. 

    • The OLLS Ethics Information Webpage.
      The Office of Legislative Legal Services has a webpage directly accessible from the General Assembly’s webpage. The menu on the left includes a tab entitled “Ethics Information.” Clicking on this tab will allow you to access a number of resources that might help you assess your ethics situation, including the following resources:
      • Ethics Tutorial. The OLLS has created an on-line tutorial with 25 common ethics dilemmas. You may take the entire tutorial at your leisure in the privacy of your own home or office or you may review the table of contents and simply read the questions and answers that pertain to your specific situation. Topics in the tutorial range from conflicts of interest to gifts to use of state resources to post-legislative employment and more.
      • Memorandum on Ethics Laws and Rules for Members of the General Assembly. If you want a quick-and-dirty review of the law on rules of conduct, ethics principles, and statutorily mandated disclosure of gifts and honoraria, take a few minutes to review this relatively brief, six-page memorandum that presents the sources of ethics laws from the state constitution to the legislative rules of the House and Senate.
    • Advisory Opinions from the Board of Ethics for the General Assembly. The majority and minority leaders in each chamber appoint a legislator to serve on this four-member, statutorily created board of ethics for the General Assembly. This ethics board issues advisory opinions upon the submission of a written request by a legislator. There are three conflict-of-interest-related opinions that the board has issued. If you are grappling with a conflict-of-interest situation, these opinions and other documents may offer you some helpful guidance.
    • The Independent Ethics Commission Website. The Independent Ethics Commission, created by Article XXIX of the state constitution (often referred to as “Amendment 41”), also issues advisory opinions, letter rulings, and position statements. You can access the commission’s opinions by year from their website by opening Opinions in the drop down menu.

    2. Talk to an Attorney at the OLLS

    A staff attorney at the OLLS is always available to guide you through the law and the opinions of the Independent Ethics Commission and Ethics Board and to assist you in assessing the right course of action.

    3. Go to Leadership

    The leadership (or other senior member) of your caucus may offer you insight, experience, and guidance that the OLLS cannot. Don’t hesitate to discuss your situation with someone in your caucus whom you respect and who has more experience with these types of situations.

    4. Seek an Advisory Opinion from the Ethics Board of the General Assembly

    As mentioned, you may wish to seek an advisory opinion from four of your colleagues that comprise the board of ethics for the General Assembly. We recommend this approach in advance of contemplated conduct.

    5. Seek an Advisory Opinion from the Independent Ethics Commission

    The commission will issue an opinion regarding an ethics issue arising under Article XXIX or any other standard of conduct or reporting requirement set out in law. However, keep the following in mind:

    • The commission meets only once each month and requests for advisory opinions must be submitted at least 10 days in advance of that meeting.
    • The commission is subject to open records laws, so you should not expect that your request will be kept confidential or anonymous.
    • The OLLS can assist you with a request for an advisory opinion, but we cannot provide you with legal counsel if a complaint against you is filed with the commission.

  • 1876

    The United States 38 Star Flag, used after Colorado became the 38th state in the Union in 1876 and until 1888.

    by Jery Payne

    On August 2, 1876, Jack McCall entered the No. 10 Saloon in the town of Deadwood in what is now South Dakota, walked up behind “Wild Bill” Hickok, shouted a curse and “Take that!”, and shot Wild Bill in the back of the head. Wild Bill was holding two black eights and two black aces. Ever since, this hand has been called the “dead man’s hand.”

    Jack tried to flee but never made it out of Deadwood. The town itself was illegal because the Lakota Sioux tribe owned the land, but then Lieutenant Colonel George Custer had led an expedition that discovered gold, so the town popped up anyway. The federal government tried to buy back the gold fields, but the Lakota were not in a selling mood. Being an illegal town, there was no real law and there were no real courts. The townsfolk put together a makeshift court and tried Jack.

    Jack’s defense was that Wild Bill had killed his brother and therefore deserved death. He actually used the “he needed killing” defense. The defense succeeded; Jack was set free.

    In 1872, Sitting Bull and his warriors were locked in a stalemate with Custer’s 7th Cavalry. Sitting Bull was trying to forge the entire Lakota Sioux tribe into a single fighting force. He needed to show that he was the man to lead the entire tribe. The stalemate did not bode well for his leadership and people grumbled, so Sitting Bull gathered up his pipe and tobacco and walked down to the front lines, within range of the enemy’s guns. He sat down with bullets striking all around him. He then lit the pipe and smoked it, seeming to be indifferent to the danger. After taking a few puffs, he called his men to join him. Four warriors braved it but wanted to return after taking a few puffs. Sitting Bull slowly smoked the rest of the pipe, cleaned it out, and casually walked back to his warriors. His legend was made, and, by 1876, he led the entire tribe.

    The 1870s West favored the bold risk-taker.

    But boldness has its cost. In June of 1876, Custer had looked over a settlement on the Little Bighorn River. Custer could not see the entire settlement, but it was bigger than any he could have expected. The Lakota Sioux, Cheyenne, and Arapaho tribes had come together to discuss war. Custer could see that he was outnumbered, but he probably didn’t understand that it was at least three to one. His biggest concern was that the tribes would melt away and fail to give him a fight. Without a fight, he could not get the victory that would put him back in the good graces of the U.S. Army.1

    Custer needn’t have worried. He faced Sitting Bull and Crazy Horse, two legendary warriors who wanted to fight—especially since Crazy Horse had recently defeated the U.S. Army in the Battle of the Rosebud. A few hours later, Crazy Horse and his warriors had killed Custer and half his men and defeated the 7th Cavalry.

    Two months later, Jack McCall bragged about killing Wild Bill, who was a U.S. marshal, in front of another U.S. marshal. This marshal arrested Jack. At the new trial, he was sentenced to hang. Next morning, a U.S. marshal carried out the sentence.

    This may seem like ancient history that is foreign to our modern Colorado. But in 1876, the modern world was beginning to take shape. On March 10, Alexander Graham Bell made the first successful telephone call, saying the words, “Mr. Watson, come here, I want to see you.” On February 2, The National League of Professional Baseball Clubs was formed. This league became the National League of Major League Baseball.

    A game is rules. Change the rules, and you change the game. Without the rules you have no game. And without rules, you have no order.

    The story of 1876 is America lying by a campfire staring up into the stars. The campfire gives light and heat but also smokes and burns, and all the while the stars in the sky are distant, pretty, and spellbinding. You need the light and heat for a time, but the stars fill your dreams. In Deadwood, justice was makeshift, but in Colorado, laws and institutions were coming. For the first time, a telephone wire hummed and a curveball was pitched. The West was changing. The day before Wild Bill gazed at his dead man’s hand, the federal government and Colorado dealt a very different hand to Colorado’s citizens: statehood.

    1. Custer had fallen out with the U.S. Army because he had traveled to Washington D.C. to testify to Congress about corrupt kickbacks. While in Washington, he had tarried for multiple reasons, including trying but failing to meet with President Grant to make peace. (Grant’s brother was tangentially implicated in the scandal.) But most people familiar with the situation suspected he tarried because he was having too much fun. Custer had been ordered to lead the 7th Cavalry west on April 6. Custer’s absence delayed the expedition by two months, so he had technically disobeyed an order, but also, he had angered the commander in chief. ↩︎
  • 150 Years for Colorado, 250 for the Nation

    Photo of a portion of the "Inspired to Serve" exhibit at the Colorado State Capitol.

    by Amanda Clapham, Legislative Council Staff Visitor Services Deputy Manager, Education and Curation

    If you are a regular at the Capitol, you have walked by the “Women’s Gold” tapestry on the first floor innumerable times, and you’ve probably marveled at the brilliant colors of the stained-glass Heritage Windows in the Old Supreme Court, the Emily Griffith window on the second floor, north side, and the Virginia Neal Blue window in the Senate. (If you haven’t marveled, please walk over there and marvel immediately). These artifacts feel like they’ve been here forever. But they haven’t.

    Colorado is nicknamed the Centennial State because we became a state on our nation’s 100-year anniversary. In 1976, the nation and Colorado went all out for the United States’ 200th anniversary and Colorado’s 100th. In addition to the many activities and celebrations statewide, the Capitol participated by adding several installations that are now so well established: the tapestry and the collection of stained glass. 

    The math nerds out there may have already gotten there, but 2026 is our 150th year of statehood! While celebrations are going on throughout the 50 states in honor of the country’s 250th birthday, Colorado’s celebration of its 150th anniversary makes us special. Senate Bill 22-011 created the America 250-Colorado 150 Commission to commemorate this unique anniversary, and the planning began there! Visit the commission’s website to learn more.

    While there are activities across the state and country, we have several commemorations planned for the Capitol as well.

    An exhibit entitled “Inspired to Serve” opened Friday February 20th; it features all 100 legislators currently serving in the Colorado General Assembly, with pictures of them now and as children. Each legislator has answered two key questions: “What inspired you to serve?” and “What is special about your district?” This exhibit will run through the end of 2026. While our building is historical, the legislature, by its nature, is always looking to the future. This exhibit is meant to inspire Colorado’s future generations to learn about civics and maybe one day run for office themselves!

    You may have heard that the official sea level in the United States has changed, making our Mile High Marker incorrect! Capitol staff is working with the Colorado School of Mines to re-measure our treasured marker that resides on the West Steps. If you’re a Capitol nerd, you know that there are three Mile High Markers currently embedded on three different steps, originally measured in 1909 (15th step), and then re-measured in 1969 (18th step) and 2003 (13th step). Both sea level and the accuracy of measurement techniques have changed over time. It’s the latter that the School of Mines will explore as they measure for us, again. Engineering Professor Jeff Holley and his students will be using old surveying techniques as well as GPS to give us the real mile high measurement for 2026.

    In Mr. Brown’s Attic, the space above the third floor of the Capitol, there is a scale model of the Capitol building, which is really popular, especially with kids. And what is more popular with kids of all ages than LEGO? The Denver Lego Users Group will be building a scale model of the House and the Senate for the 2026 celebrations. Both fun and colorful, these models will draw the attention of visitors of all ages and act as a gateway to civic education. 

    In addition to these exciting projects, the Capitol will be working with History Colorado as well as other cultural, educational, and civic organizations throughout the state, to create one of our biggest and best Colorado Day celebrations EVER! Join us on August 1, 2026, for bands, food, history, entertainment, and some special surprises! Events will take place in Civic and Lincoln Memorial parks, on Broadway, from History Colorado to Colfax, and inside and on the West Steps of the Capitol Building.

    This commemoration isn’t just about Colorado’s past 150 years, but also who and what we are as a state right now. It is our chance to tell the future what is important to us (and also to have some fun!).

  • CCUSL Approves Three Commission Bills for Introduction

    Photo of a committee room dais in the Colorado State Capitol building.
    METADATA-START

    by Patti Dahlberg and Yelana Love

    The Colorado Commission on Uniform State Laws (CCUSL) is Colorado’s delegation to the national Uniform Law Commission (ULC). The ULC is composed of more than 300 commissioners, who are appointed by each state, the District of Columbia, the U.S. Virgin Islands, and Puerto Rico. The CCUSL meets each year to identify a preliminary legislative agenda of approved uniform acts for potential introduction in Colorado. The CCUSL then typically hosts two or three public meetings at the State Capitol to discuss its proposed legislation, listen to interested parties, and finalize its legislative agenda. The CCUSL sends advance notice of the meetings held in the Capitol to interested parties, posts meeting information on the CCUSL page on the General Assembly website, encourages public testimony at the meetings, and broadcasts the meetings over the internet.

    The CCUSL held meetings to discuss its 2026 legislative agenda on November 12, 2025, December 12, 2025, and January 13, 2026. The Commission approved three commission bills for introduction during the 2026 legislative session – two bills to enact uniform acts and one bill to add language to the previously adopted Uniform Community Property Disposition at Death Act. The three Colorado commission bills approved for introduction during the 2026 legislative session are:

    Uniform Assignment for Benefit of Creditors Act. An assignment for benefit of creditors (ABC) is a voluntary, debtor-initiated state law alternative to the bankruptcy process, state receiverships, and voluntary workouts. An assignment is a liquidation procedure in which the “assignor” voluntarily assigns all of its assets to an “assignee,” a fiduciary, which liquidates the assets and distributes the proceeds to the assignor’s creditors. The assignment operates through the creation of a fiduciary relationship with the assignor’s creditors as the beneficiaries. The Uniform Assignment for the Benefit of Creditors Act is intended to provide greater clarity and consistency to the assignment process. The act provides for a streamlined assignment process, allowing states to modernize their assignment statutes and codify aspects of common law. It sets out a straightforward process for commencing and completing an assignment and provides a scheme for distributions to the assignor’s creditors. It lays out the duties and powers of the assignor and assignee, a process for allowing and disputing claims, and limitations on liability for the assignor and assignee. 

    Uniform Mortgage Modification Act. The parties to a mortgage often agree to modify the terms of the mortgage loan or other obligation secured by the mortgage after the initial transaction is completed. However, the common law is not clear on the issue of whether the modification of a mortgage loan or other obligation secured by a mortgage affects the priority of the mortgage against junior interest holders. This lack of clarity in the law causes delay and unnecessary expense for borrowers and, in some cases, may mean that a loan is foreclosed rather than modified. The Uniform Mortgage Modification Act is meant to resolve problems and reduce uncertainty by establishing several categories of safe harbor modifications that can be made to recorded mortgages and secured obligations and outlining the implications of each type of modification. Permissible modifications under the act include changes to maturity dates, interest rates, capitalization or payment schedules, escrow or reserve requirements, and other changes that do not affect the priority of junior interest holders or are not materially prejudicial. This act aims to reduce costs and create straightforward alternatives to foreclosure when possible.

    Uniform Community Property Disposition at Death Act. Community property acquired by a married couple retains its character as community property even when the couple relocates to reside in a non-community property state. This result creates potential distribution problems at the death of the first spouse but also creates potential estate planning opportunities. However, the probate court in a non-community property state may not recognize the status of community property in a decedent’s estate. The Uniform Community Property Disposition at Death Act provides clear default rules to ensure the proper disposition of community property in any state. When this uniform act was enacted in 2023 some uniform language was inadvertently left out of the Colorado bill. This year’s commission bill adds the omitted uniform language into the Colorado statutes.

  • Everything Under One Roof: The Original Colorado State Capitol

    Top of Colorado State Capitol building with observation deck and gold-plated dome.

    by Faith Marcovecchio

    In February 1861, with Abraham Lincoln about to take office and the Civil War just weeks from breaking out, President James Buchanan signed legislation establishing the Colorado Territory. Immediately, the territory’s first governor, William Gilpin, began thinking about where the capital of the new territory would be. Towns up and down the Front Range vied for the honor, and in the territory’s first years, the center of government moved from Colorado City to Golden and finally, in 1867, found its home in Denver. Now it was time for political leaders to think about a site for a statehouse.

    Money was tight, so when contractor and builder Henry Cordes Brown offered government officials a 10-acre swath of land south of town as a gift, they jumped at the opportunity. Years of fundraising followed. In the centennial year of our nation’s founding, Colorado became a state, and soon after, the General Assembly set aside money for a capitol building. Finally, in 1885, a plan and an architect, Elijah Myers, were chosen.

    At a time when Colorado’s population stood at 200,000, Myers had an interesting idea: Every agency of state government, including boards, commissions, and all the public servants who worked for those agencies, would be housed within the walls of his simple but grand building. The structure would be so large that it would serve the new state as the sole state government building for generations to come. 

    When the State Capitol was finally completed 15 years later, Myers’s grand vision was realized: The legislature’s beautiful bicameral chambers shared a floor with the Colorado Supreme Court. The governor’s office sat across from the offices of the state treasurer, attorney general, and five other executive branch officers. And, perhaps most interesting, on the main floor Myers set aside space to showcase the most powerful influences in nineteenth-century Colorado: Mining, agriculture, and land management.

    Walking into the statehouse in its early years was like visiting a museum featuring all that Colorado had to offer. In the west wing, collections from the State Historical and Natural History Society were on display, including pottery, tools, and baskets from Mesa Verde; stuffed birds, bison, bears, and bighorn sheep from Colorado’s mountains and plains; and Civil War-era cannons, firearms, and banners used in the Battle of Glorieta Pass. Down the hall, glittering minerals and polished stone filled cabinets in the Bureau of Mines quarters. In yet another room, the State Horticultural Society displayed the trees, flowers, fruits, and vegetables grown in Colorado. There were even quarters where Union Civil War veterans could gather (until they were evicted in 1897 for too much card playing and carousing).

    The treasures found on the Capitol’s main floor, along with the brass chandeliers, marble floors, rose onyx walls, and soaring rotunda above, attracted tourists in droves. But the dome itself was the most important element, marrying the functions of government with the natural beauty that encircled the building. An observation deck offered sightseers, as Myers had hoped, “an unequaled view of the surrounding country.” The architect knew the panorama of the Rocky Mountains from Pikes Peak to Longs Peak was the building’s greatest feature.

    As the nineteenth century came to a close and the twentieth century dawned, a variety of embellishments were added. A sweeping staircase rose through the center of the rotunda, replacing cast-iron staircases in the north and south atriums. The copper-plated dome, which quickly oxidized, was covered with gold leaf in a glittering nod to the Pikes Peak gold rush. Brightly colored stained-glass portraits of Colorado pioneers were installed in the rotunda.

    Some of these changes were in tune with Myers’s original vision. Others were not. But the building’s greatest promise, that it would hold every office and function of Colorado government for generations, quickly shattered. By 1907, so many new agencies and commissions had been created that the statehouse had reached its limit.  Fewer than 10 years after the Capitol’s grand opening, its managers were looking for a place to expand.

    Today, though shiny minerals and taxidermied mammals no longer fill the first floor of the statehouse, the grandeur and beauty of the Gilded Age still make the Colorado Capitol an attraction to tourists from throughout the state, the country, and the world. 

    To learn more about the planning, construction, and evolution of the Colorado statehouse, see Derek R. Everett’s book, “The Colorado State Capitol: History, Politics, Preservation,” University Press of Colorado, October 1, 2018, on which this article is based.

  • Let’s Get to Know: House Assistant Chief Clerk Darren Thornberry

    Photo of Darren Thornberry.

    by Jack Neirynck

    Darren Thornberry is the new Assistant Chief Clerk of the Colorado House of Representatives. He began the position during the 2025 interim, taking over for Connor Randall, who held the job during the 2025 regular legislative session. As Assistant Chief Clerk, Thornberry is responsible for assisting the Chief Clerk, Vanessa Reilly, in all aspects of the business of the House. During session, this includes scheduling committee rooms, preparing the daily calendar, managing the House live proceedings software, and preparing messages to the Senate. Having worked for the Office of Legislative Legal Services as a legislative editor for almost a decade prior to taking on this new role, Thornberry is no stranger to the work that goes on at the Colorado Capitol. LegiSource spoke with Thornberry in early September.

    This interview has been edited for length and clarity.

    Tell us a bit about your background with the legislature. What aspects of working as a legislative staff member interested you?

    I saw the ad on Craigslist. I don’t know if they still use Craiglist to post ads, but this was 2014. I interviewed on the same day for positions on the Government Team and the Law Team in the Office of Legislative Legal Services, and got neither of them. About three weeks later, I got a call back to interview for the Business Team, and it landed, and I was very happy. As far as what interested me, all I knew was that it was editing, which is my background—writing and editing. It was editing in a vein I had never heard of — legislative editing — and I thought, What is that? I was super interested, and thus began my journey to here.

    Where are you from?

    I’m from central Alberta. I have lived in the States for a long time. I’ve lived in Texas and Alabama. I’ve also lived in the UK. I’ve been in Colorado since 2009.

    What are your hobbies?

    The main thing I do outside of working and being with my children is music. I’m in two bands, and that certainly keeps me busy with rehearsing, gigging, and writing and recording music. I have other doodads that I like, but that is sort of my second livelihood. My main instrument is my voice — I play guitar only because I had to in order to write songs for my band. I’m a utility guitarist at best, but I try to have people around me in the band who are better at what they do than I am, and together that uplifts the songs.

    Where is your favorite place in Colorado?

    One has got to be the Therapy Pool at Glenwood Springs. Especially if you’ve been camping all day and then you go in, it’s the best feeling in the world. I also love the Paint Mines east of Colorado Springs – hoodoos and these rock formations that have all these colors on them. Native Americans used to get the clay from these rocks for paint, which is why they call them the Paint Mines. It’s a beautiful place to hike through, especially at dusk, which is when the colors really pop.

    What is a typical work day like for you?

    I don’t totally know, or I guess I know now that we’ve had a Special Session. It’s very busy. Outside of session, in a typical work day I can be processing an EcoPass for an aide. I can be dealing with a badge dilemma. I can be working on getting a quote for an ice machine. I can be dealing with a security issue with the State Patrol. There’s a wide variety of things in this position that I can be doing, and so far I love that. I love that you kind of never know in a given day what’s coming at you. I think that’s something that I didn’t necessarily know that I needed, but I’m totally enjoying it. There’s a lot going on on any given day, even in the interim. And now that I’ve had a Special Session, I know what those days will be like: Action packed. 

    What part of the job are you looking forward to the most?

    I think going through the cycle of a complete regular session and just riding out that rhythm in this position. I’m looking forward to it more now that I’ve had that trial run with the Special Session.

    What’s the best advice you’ve gotten from Connor Randall, former Assistant Chief Clerk?

    Definitely “don’t panic.” There are going to be times where you feel like you have to make a split-second decision, and most of the time you don’t. Most of the time you have at least a minute, or you can ask for a quick recess. You can take a minute to sort things out and ask the right questions. There are going to be times where it feels like the world is coming at you, and if you don’t solve the problem right then, it’s over. But it’s not. So don’t panic, stay level-headed, and just ride it out.

    Anything else you’d like to share?

    I guess just that I’m so, so thankful for all my time at the Office of Legislative Legal Services. I even left for a time, thinking “I’m too burned out; I can’t do this anymore”, and then immediately knew that was wrong. And so I spent two years away, pining to come back. Thankfully, they had me back, and all that experience has been invaluable in my growth in this building. Were it not for that, there’s no way I would be in this position now. So I’m very thankful for that office and all the friends and all the good times.

    Bonus Question: What are your favorite restaurants around the Capitol or in Colorado in general?

    I love Pho-natic. I could eat there probably every day if given the opportunity. Restaurants in general in Colorado? Tough to say. Let’s just say that I could toggle between SubCulture and Pho-natic for a long, long time and never get bored.

  • Making Sense of Committee Rules – A Brief Overview

    Editor’s note: This article was originally written by Julie Pelegrin and posted on February 6, 2014.  This version has been edited and updated for this publication.

    With the 2026 legislative session rapidly approaching, it seems like a good time for a short overview of the more important committee procedural rules to help guide you through committee hearings. Except as specifically noted, the procedures described below apply to House and Senate committees.

    Committee Quorum:
    House Rule 25(i)(1) and (j)(10)
    Senate Rule 22(b) and (n)
    A quorum for a committee of reference in both the House and the Senate is a majority of the committee membership. A committee cannot take action on a bill or any other legislative matter unless a quorum is present. Passage of a bill, resolution, amendment, or motion requires approval of a majority of a quorum or a majority of those present and voting, whichever is greater.

    Committee Meetings and Consideration of Bills:
    House Rules 25(j)(1), (j)(1.5), (j)(6), and (j)(7)
    Senate Rules 22(a), (e)(1), (i), and (j)
    The responsibility for organizing and managing committee hearings lies mainly with the committee chair, but the chair of a House committee can delegate any duty or responsibility to the vice-chair of the committee. The committee rules include the following:

    Time and Place of Committee Hearings
    Each committee must meet at the times and places specified in the committee schedule, but a chair can cancel a meeting by announcing the cancellation while the House or the Senate, whichever applies, is actually in session and before the meeting. In the Senate, if a committee is scheduled to meet upon adjournment, it will meet within 15 minutes after the Senate adjourns or recesses.

    Special Meetings
    A House committee may hold a special committee meeting on another day or at another place or time so long as the chair announces the meeting as much in advance as possible and while the House is actually in session. Generally, a Senate committee may hold a special meeting only on the committee’s regularly scheduled meeting day. The chair must announce the special meeting 24 hours in advance and while the Senate is actually in session. There is an exception during the last two weeks of session, or at any time with the President’s permission, that allows a Senate committee chair to call a special meeting on a different day by announcing the meeting as much in advance as possible and while the Senate is actually in session.

    Every Bill Must Get a Hearing and a Vote
    Every bill that is assigned to a House committee must receive a hearing, consideration, and a vote on the merits at a scheduled committee meeting no later than the deadline for passage of bills out of committee. Although the Senate rules do not include this specific requirement, article V, section 20 of the Colorado Constitution (commonly referred to as the “GAVEL Amendment”) requires that each measure assigned to a committee of reference receive consideration and a vote on the merits within appropriate deadlines.

    Order of Business
    The committee chair sets the calendar for each meeting. But if a chair holds a bill for seven or more days without calendaring it, the committee members can force the chair to schedule the bill. A majority of the members of a Senate committee can simply request, at a regularly scheduled committee hearing, that the bill be scheduled for hearing. House committee members must submit to the chair at a regularly scheduled committee hearing a petition signed by at least two-thirds of the committee members. A House committee member can also force a hearing on a bill by making a motion to refer the bill to the committee of the whole when the bill is not on the committee’s calendar. This is often referred to as a “super motion.” When a “super motion” is made, the committee must consider the bill on its merits, and if the motion to refer to the committee of the whole doesn’t pass, the bill is still pending before the committee for action. There is no “super motion” in the Senate.

    Chair’s Authority
    During a House committee meeting, the chair may limit testimony and discussion on a measure to the amount that the chair thinks is adequate to enable the committee to consider the measure on its merits. The House committee chair may actually exclude testimony or discussion that is repetitious or irrelevant. Additionally, a House committee chair may ask a sergeant-at-arms to remove any person who disrupts the proceedings or endangers any person at a committee hearing.

    Although the Senate rules do not directly address the powers of the committee chair to control procedures within a committee hearing, Mason’s Manual of Legislative Procedure, the source for parliamentary procedures in the Senate, supports the authority of the Senate committee chair to maintain order and decide all questions of order in committee hearings.

    Motions, Voting, and Attendance
    Only committee members can make motions, and, in the House, each motion must receive a second to be debated. Each committee member, including the committee chair, must vote on every motion that comes before the committee, unless the committee member has an immediate personal or financial interest in the bill. But the committee chair does not vote twice to break a tie vote. If a committee member misses three consecutive scheduled committee meetings without being excused, the chair must report the member’s absence to the floor leader of the member’s party.

    Final Committee Action:
    House Rule 25(j)(3) and (j)(9)
    Senate Rule 22(f) and (m)
    A committee must take a recorded, roll call vote to take action on proposed amendments if at least one committee member objects to the amendment and to take final action on a bill. All recorded votes are available for public inspection.

    A committee takes final action on a bill by reporting the bill out of committee, with or without amendments, for consideration by the committee of the whole; referring the bill to another committee of reference, with or without amendments; or postponing the bill indefinitely. In reporting a bill for consideration by the committee of the whole, a Senate committee may recommend that the bill be placed on the consent calendar. A motion to postpone consideration of a bill for more than 30 days or until a date that’s later than the date for adjournment sine die is considered a motion to postpone indefinitely. A bill is also considered postponed indefinitely if a motion for final action on the bill dies on a tie vote, the deadline to report bills out of committee passes, and the bill doesn’t get delayed status.

    Reconsideration:
    House Rule 35(e) and (f)
    Senate Rule 18(e), (f), and (g)
    After a committee has decided a question, including taking final action on a bill, a member who voted on the prevailing side may move to reconsider the question. The procedures for reconsideration vary significantly between the House and the Senate.

    In the House, if a motion for final action on a bill dies on a tie vote, the committee doesn’t actually make a decision, so the bill is still before the committee and subject to any further motions without the need to reconsider. But, if the motion does not concern final action on the bill and the motion dies on a tie vote, a member who votes “no” is considered to have voted on the prevailing side and may move to reconsider the committee’s decision. A motion to reconsider in committee requires the affirmative vote of two-thirds of the committee members, except in the last ten days of session during which it requires only a majority vote. A member must make the motion to reconsider at the same meeting at which the decision is made or at the next committee meeting. But a motion to reconsider the decision is not in order if the committee report that includes the decision has already been signed by the committee chair and delivered to the Chief Clerk of the House. Also in a House committee, a member cannot give notice of intent to reconsider the decision at the next committee meeting.

    In the Senate, if a motion on a bill dies on a tie vote, a member who votes “no” is considered to have voted on the prevailing side and may move to reconsider the committee’s decision. A motion to reconsider in a Senate committee requires approval by a simple majority vote. At the same meeting at which the committee makes the decision or at the next meeting, a member can make the motion to reconsider.  But the committee cannot reconsider the decision after the committee report that includes the decision is signed by the committee chair and delivered to the Secretary of the Senate. A member may also give notice of intent to reconsider at the next meeting, unless the next meeting is after the committee passage deadline and the bill does not have delayed status. If the member who gives notice does not move to reconsider at the next committee meeting, the notice is considered withdrawn. 

  • A Holiday Message

    Wishing you a happy holiday season and a wonderful new year!

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  • Legislative Human Resources Division: New name, new location, expanded services

    Facade of the Legislative Services Building.

    by Ben FitzSimons

    In June of 2025, the Governor signed H.B. 25-1333, and the Office of Legislative Workplace Relations was renamed the Legislative Human Resources Division. With the passage of that bill, the division’s scope was also expanded, allowing the division to provide full human resources support to the Colorado General Assembly.

    Located in Room 022, in the northwest quadrant of the Legislative Services Building basement, the division consists of two human resources professionals: Ben FitzSimons (Director) and Stephanie Schliemann (People Partner). Both Ben and Stephanie are committed to providing professional human resources services and support in a neutral, nonpartisan, and confidential manner.

    The division provides a number of human resources services to the entire legislative branch, including legislators and their employees and interns, legislative staff agencies, and third parties, like members of the media and individuals and lobbyists testifying in committee. These include:

    • Confidential consultation, facilitation, and resolution planning for workplace issues and concerns, including: Working with legislators and supervisors to help resolve concerns or issues with their staff members; 
    • Working with legislators’ staff members (including aides, interns, partisan and nonpartisan staff, and volunteers) to help resolve questions or concerns about the work environment or their supervisors;
    • Confidential consultation regarding corrective or disciplinary action and planning; and
    • Harassment complaint intake, investigation, and resolution.
    • Workplace training, including:
      • Annual workplace harassment and expectations training for all legislators, staff, and third parties;
      • Manager or Supervisor training on topics like coaching, providing effective feedback, and effective meeting management; and
      • Other professional development training, such as effective training skills, introduction to project management, leadership, and workplace ethics.
    • Organizational development services, including:
      • Provision or coordination of organizational development services to teams or agencies;
      • Team or individual coaching;
      • Customized team-building programs or exercises; and
      • Team-based leadership development training and projects.
    • Resources for recruiting and compensation classification, including:
      • Support for recruiting through the full hiring cycle, from developing job posting language to sending out job offer letters;
      • Performing salary audits to identify potential gaps or inequities; and
      • Assisting with the creation or revision of job descriptions to ensure compliance with applicable laws and best practices.
    • Support for personnel policies and handbooks, including:
      • Coordinating with legislative leadership to ensure branch-wide policies and procedures use consistent language;
      • Ensuring agency, chamber, and caucus policies and handbooks are up-to-date and compliant with current law; and
      • Working with individual agencies or chambers on their unique needs and associated policies.
    • Centralized, branch-wide compliance support, including:
      • Support for workplace accommodations and the accommodation process under the Americans with Disabilities Act of 1990;
      • Management of all required employment law postings;
      • Providing notice of changes to employment laws; and
      • Management, maintenance, and storage of medical records related to medical leave or ADA accommodations.

    You may contact the division, also known as HR, by email at lhrd@coleg.gov or call (303) 866-3393. You may also visit the office in person in Room 022 of the basement level of the Legislative Services Building.

  • Bill Requests Submitted? Next Step is the Bill Order

    According to Joint Rule 24 (b)(1)(A), every legislator is allowed to submit five bill requests each session. These five bill requests are in addition to any appropriation, committee-approved, or sunset bills that a legislator may choose to carry and must be submitted by the bill request deadlines. (See “The 2026 Legislative Session Is Comin’ in Hot”, posted September 19, 2025.)  But in order to keep these five bill requests, a legislator’s bill requests must also meet specific bill filing deadlines.

    Filing bills and introduction deadlines

    Bill requests may be forfeited if the request does not meet specific filing deadlines.*  Prior to the start of each session, each legislator must decide which bill request will be their prefile bill (filed a few days prior to the start of session to be ready for introduction on the first day of session) and which two bill requests will meet the other early bill introduction deadlines. In addition, each legislator must also decide at some point which two bills will meet the regular bill filing deadlines. The filing deadline for prefile bills is, by rule, five days prior to the start of session. Each legislator must have one bill delivered to the front desk of the House or the Senate by this date or forfeit a bill request.*

    Bill orders

    A legislator’s bill order is the order in which their bills are filed for introduction. Joint Rule 23 (a) says that a legislator should choose a prefile bill and two early bills from the requests submitted by the December 1 request deadline. The rule also allows a legislator to choose a bill request submitted after this early request deadline to meet the early bill introduction deadlines, if needed.

    A legislator’s early bill requests usually are filed as their early bills because these requests were submitted earlier and, therefore, are more likely to be further along in the drafting process than a bill request submitted later. But sometimes an early bill request may be more complicated than expected. In this case, the legislator may choose a relatively simple regular bill request (i.e., a request submitted after the first bill request deadline and before the regular bill request deadline of the 7th day of session) to be one of their bills filed with the House or Senate in time to meet an early bill filing deadline, leaving the legislator with a little more time to work on the more complicated bill request.

    The Office of Legislative Legal Services encourages legislators to designate their prefile bill and other early bills (i.e., the bill order) as soon as possible in early December so that the office can prioritize the drafting of these bills accordingly. If the office does not have a legislator’s bill order on record, it will contact the legislator for this information and will continue contacting the legislator until the information is received.

    The House and Senate early and regular deadlines for filing bills for introduction vary by chamber:

    Bill typeHouse filing deadlinesSenate filing deadlines
    Prefile bills5 days prior to session
    (For 2026 – 1/9/2026)
    5 days prior to session
    (For 2026 – 1/9/2026)
    2 Early bills17th day of session
    (For 2026 – 1/30/2026)
    10th day of session
    (For 2026 – 1/23/2026)
    2 Regular bills31st day of session
    (For 2026 – 2/13/2026)
    24th day of session
    (For 2026 – 2/6/2026)

    Click here for a link to the 2026 Deadline Schedule.

    *  A legislator can ask for permission from the House or Senate Committee on Delayed Bills, whichever is appropriate, to submit additional bill requests or to extend a bill deadline to a different date.