Jan KULMANN, in her official capacity as Mayor of the City of Thornton and the City of Thornton, Colorado, a Colorado municipal corporation v. Cherish SALAZAR , 521 P.3d 649 ( 2022 )

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<div class="ldml-decision"><div class="ldml-decision"><div href="/vid/929087168" data-vids="929087168" class="ldml-header header ldml-header content__heading content__heading--depth1" data-content-heading-label="Header"><p class="ldml-metadata"><span class="ldml-cite"><b class="ldml-bold">521 P.3d 649</b></span></p><p class="ldml-metadata"><b class="ldml-bold"><span class="ldml-party"><span class="ldml-name">Jan KULMANN</span>, in her official capacity as <span class="ldml-role">Mayor of the City of Thornton </span></span>; and the <span class="ldml-party"><span class="ldml-name">City of Thornton, Colorado</span>, a <span class="ldml-role">Colorado municipal corporation</span>, <span class="ldml-role">Petitioners</span></span>,</b></p><p class="ldml-metadata"><b class="ldml-bold">v.</b><b class="ldml-bold"><span class="ldml-party"><span class="ldml-name">Cherish SALAZAR</span>, <span class="ldml-role">Respondent</span></span>.</b></p><p class="ldml-metadata"><b class="ldml-bold">Supreme Court <span class="ldml-cite">Case No. 22SC135</span> </b></p><p class="ldml-metadata"><b class="ldml-bold"><span class="ldml-court">Supreme Court of Colorado</span>.</b></p><p class="ldml-metadata"><span class="ldml-date"><b class="ldml-bold">December 19, 2022</b></span></p></div><div class="ldml-counsel header ldml-header content__heading content__heading--depth1" data-content-heading-label="Counsel"><p data-paragraph-id="271" class="ldml-paragraph no-indent mt-2"><span data-paragraph-id="271" data-sentence-id="271" class="ldml-sentence">Attorneys for <span class="ldml-entity"><span class="ldml-role">Petitioners</span></span>: <span class="ldml-lawfirm">Berg Hill Greenleaf Ruscitti LLP</span>, <span class="ldml-entity"><span class="ldml-lawyer">Josh A. Marks</span></span> Rudy, <span class="ldml-entity"><span class="ldml-lawyer">E. Verner</span></span>, Boulder, Colorado</span></p><p data-paragraph-id="380" class="ldml-paragraph no-indent mt-2"><span data-paragraph-id="380" data-sentence-id="380" class="ldml-sentence">Attorneys for <span class="ldml-entity"><span class="ldml-role">Respondent</span></span>: <span class="ldml-lawfirm">Robert McGuire Law Firm</span>, <span class="ldml-entity"><span class="ldml-lawyer">Robert A. McGuire, III</span></span>, Denver, Colorado</span></p><p data-paragraph-id="471" class="ldml-paragraph no-indent mt-2"><span data-paragraph-id="471" data-sentence-id="471" class="ldml-sentence">Attorneys for <span class="ldml-lawyerrole">Amicus Curiae</span> Colorado Municipal League: <span class="ldml-entity"><span class="ldml-lawyer">Robert D. Sheesley</span></span>, <span class="ldml-entity"><span class="ldml-lawyer">Rachel Bender</span></span>, Denver, Colorado</span></p></div><h2 class="ldml-opinionheading"><span data-paragraph-id="577" class="ldml-paragraph "><span class="ldml-judgepanel"><span data-paragraph-id="577" data-sentence-id="577" class="ldml-sentence">En Banc</span></span></span></h2><div class="ldml-opinion"><p data-paragraph-id="584" class="ldml-paragraph "><span class="ldml-opinionauthor content__heading content__heading--depth1" data-content-heading-label="Opinion (GABRIEL, BOATRIGHT, MÁRQUEZ, HART, SAMOUR, GABRIEL)"><span data-paragraph-id="584" data-sentence-id="584" class="ldml-sentence"><span class="ldml-entity">JUSTICE <span class="ldml-entity"><span class="ldml-judge">GABRIEL</span></span> <span class="ldml-opiniontype">delivered <span class="ldml-entity">the Opinion of <span class="ldml-entity">the Court</span></span></span>, in which CHIEF JUSTICE <span class="ldml-entity"><span class="ldml-judge">BOATRIGHT</span></span>, JUSTICE <span class="ldml-entity"><span class="ldml-judge">MÁRQUEZ</span></span>, JUSTICE <span class="ldml-entity"><span class="ldml-judge">HART</span></span>, and JUSTICE <span class="ldml-entity"><span class="ldml-judge">SAMOUR</span></span> joined</span>.</span></span> <span data-paragraph-id="584" data-sentence-id="728" class="ldml-sentence"><span class="ldml-entity">JUSTICE <span class="ldml-entity">HOOD</span></span>, <span class="ldml-entity">joined by JUSTICE <span class="ldml-entity">BERKENKOTTER</span></span>, dissented.</span></p><p data-paragraph-id="784" class="ldml-paragraph no-indent mt-4"><span class="ldml-opinionauthor"><span data-paragraph-id="784" data-sentence-id="784" class="ldml-sentence"><span class="ldml-entity">JUSTICE <span class="ldml-entity"><span class="ldml-judge">GABRIEL</span></span> <span class="ldml-opiniontype">delivered <span class="ldml-entity">the Opinion of <span class="ldml-entity">the Court</span></span></span></span>.</span></span></p><p data-paragraph-id="835" class="ldml-paragraph "><span data-paragraph-id="835" data-sentence-id="835" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_835"><span class="ldml-cite">¶1</span></a></span> <span class="ldml-entity">This case</span> requires <span class="ldml-entity">us</span> to determine whether the office of Mayor in the <span class="ldml-entity">City of Thornton</span> constitutes a separate office from that of Councilmember in that city for purposes of <span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_835"><span class="ldml-cite">article XVIII, section 11<span class="ldml-parenthetical">(1)</span> of the Colorado Constitution</span></a></span> <span class="ldml-parenthetical">(<span class="ldml-quotation quote">"<span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_835"><span class="ldml-cite">section 11</span></a></span>"</span>)</span></span>, which restricts individuals from serving <span class="ldml-quotation quote">"more than two consecutive terms <i class="ldml-italics">in office."</i></span></span> <span data-paragraph-id="835" data-sentence-id="1171" class="ldml-sentence"><span class="ldml-parenthetical">(<span class="ldml-referencenote">Emphasis added</span>.)</span><a href="#note-fr1" class="ldml-noteanchor" id="note-ref-fr1">1</a></span> <span data-paragraph-id="835" data-sentence-id="1189" class="ldml-sentence">This issue is of consequence to <span class="ldml-entity">the people</span> of Thornton because our resolution of this question determines the applicable term limit for the current <span class="ldml-entity">Thornton Mayor</span>, <span class="ldml-entity">petitioner</span> <span class="ldml-entity">Jan Kulmann</span>.</span></p><p data-paragraph-id="1376" class="ldml-paragraph "><span data-paragraph-id="1376" data-sentence-id="1376" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_1376"><span class="ldml-cite">¶2</span></a></span> Based on the plain language of the <span class="ldml-entity">Thornton <span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_1376"><span class="ldml-cite">City Charter</span></a></span> <span class="ldml-parenthetical">(<span class="ldml-quotation quote">"Charter"</span>)</span></span></span> and Thornton <span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_1376"><span class="ldml-cite">Municipal Code</span></a></span> <span class="ldml-parenthetical">(<span class="ldml-quotation quote">"Code"</span>)</span></span>, <span class="ldml-entity">we</span> now conclude that the Mayor and Councilmembers in Thornton serve in distinct offices.</span> <span data-paragraph-id="1376" data-sentence-id="1575" class="ldml-sentence">Accordingly, <span class="ldml-entity">we</span> reverse <span class="ldml-entity"><span class="ldml-entity">the district court</span>'s ruling</span> declaring, as a matter of law, that the Mayor's seat and Councilmembers' seats are part of one elected body and constitute the same office for purposes of <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_1575"><span class="ldml-cite">section 11</span></a></span>'s term limit restrictions.</span> <span data-paragraph-id="1376" data-sentence-id="1820" class="ldml-sentence">In light of this determination, <span class="ldml-entity">we</span> need not reach the second question on which <span class="ldml-entity">we</span> granted certiorari.</span></p><div class="ldml-section"><section class="ldml-heading content__heading content__heading--depth1" data-ordinal_end="1" data-specifier="I" data-ordinal_start="1" data-parsed="true" data-id="heading_1921" data-format="upper_case_roman_numeral" data-content-heading-label="I. Facts and Procedural History" data-types="background" data-confidences="very_high" id="heading_1921" data-value="I. Facts and Procedural History"><span data-paragraph-id="1921" class="ldml-paragraph "><b class="ldml-bold"><span data-paragraph-id="1921" data-sentence-id="1921" class="ldml-sentence">I.</span> <span data-paragraph-id="1921" data-sentence-id="1924" class="ldml-sentence">Facts and Procedural History</span></b></span></section><p data-paragraph-id="1952" class="ldml-paragraph "><span data-paragraph-id="1952" data-sentence-id="1952" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_1952"><span class="ldml-cite">¶3</span></a></span> Thornton is a Colorado home rule city and municipal corporation.</span> <span data-paragraph-id="1952" data-sentence-id="2020" class="ldml-sentence"><span class="ldml-referencechain"><span class="ldml-signal"><i class="ldml-italics">See</i></span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_1952"><span class="ldml-refname">City of Thornton, Colo., Charter</span>, <span class="ldml-cite">§§ 1.1, 2.1</span></a></span></span>.</span> <span data-paragraph-id="1952" data-sentence-id="2071" class="ldml-sentence">Pursuant to its Charter, Thornton employs a <span class="ldml-quotation quote">"Council-Manager"</span> form of government, under which the <span class="ldml-entity">City Council</span> serves as the legislative and governing body of the City and the city manager serves as its chief administrative officer.</span> <span data-paragraph-id="1952" data-sentence-id="2304" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_2304"><span class="ldml-cite"><i class="ldml-italics">Id.</i></span></a></span> at <span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_2304"><span class="ldml-cite">§§ 2.2</span></a></span><span class="ldml-referenceseparator">,</span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_2304"><span class="ldml-cite">4.1</span></a></span><span class="ldml-referenceseparator">,</span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_2304"><span class="ldml-cite">5.4</span></a></span></span>.</span> <span data-paragraph-id="1952" data-sentence-id="2329" class="ldml-sentence">The <span class="ldml-entity">City Council</span> consists of <span class="ldml-quotation quote">"nine <span class="ldml-parenthetical">(9)</span> members, one of whom shall serve as Mayor."</span></span> <span data-paragraph-id="1952" data-sentence-id="2412" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_2412"><span class="ldml-cite"><i class="ldml-italics">Id.</i></span></a></span> at <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_2412"><span class="ldml-cite">§ 4.1</span></a></span>.</span> <span data-paragraph-id="1952" data-sentence-id="2426" class="ldml-sentence">The eight Councilmembers other than the Mayor are elected from four wards, two per ward, and serve four-year terms.</span> <span data-paragraph-id="1952" data-sentence-id="2542" class="ldml-sentence"><span class="ldml-referencechain"><i class="ldml-italics"><span class="ldml-signal">See</span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_2426"><span class="ldml-cite">id.</span></a></span></i></span> at <span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference"><span class="ldml-cite">§§ 4.2<span class="ldml-parenthetical">(a)</span></span></a></span><span class="ldml-referenceseparator">,</span> <span class="ldml-entity"><a class="ldml-reference"><span class="ldml-cite">4.3<span class="ldml-parenthetical">(a)</span></span></a></span></span>.</span> <span data-paragraph-id="1952" data-sentence-id="2572" class="ldml-sentence">The Mayor, in contrast, is elected at large and serves a four-year term.</span> <span data-paragraph-id="1952" data-sentence-id="2645" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_2645"><span class="ldml-cite"><i class="ldml-italics">Id.</i></span></a></span> at <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_2645"><span class="ldml-cite">§ 4.3<span class="ldml-parenthetical">(b)</span></span></a></span>.</span></p><p data-paragraph-id="2661" class="ldml-paragraph "><span data-paragraph-id="2661" data-sentence-id="2661" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_2661"><span class="ldml-cite">¶4</span></a></span> In <span class="ldml-entity">2013</span>, Kulmann was elected to Thornton's <span class="ldml-entity">City Council</span> as a Ward 4 Councilmember.</span> <span data-paragraph-id="2661" data-sentence-id="2747" class="ldml-sentence"><span class="ldml-entity">She</span> served a full four-year term in that capacity and was reelected in <span class="ldml-entity">2017</span>.</span></p><p data-paragraph-id="2823" class="ldml-paragraph "><span data-paragraph-id="2823" data-sentence-id="2823" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_2823"><span class="ldml-cite">¶5</span></a></span> In <span class="ldml-entity">2019</span>, while still serving as a Ward 4 Councilmember, Kulmann ran for and was elected Mayor of Thornton.</span> <span data-paragraph-id="2823" data-sentence-id="2933" class="ldml-sentence"><span class="ldml-entity">She</span> thus resigned her position as a Ward 4 Councilmember and was sworn in as Mayor.<span class="ldml-pagenumber" data-page_type="bracketed_cite" data-val="652" data-vol="521" data-id="pagenumber_3016" data-rep="P.3d"></span></span></p><p data-paragraph-id="3016" class="ldml-paragraph "> <span data-paragraph-id="3016" data-sentence-id="3017" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_3017"><span class="ldml-cite">¶6</span></a></span> Thereafter, in <span class="ldml-entity">May 2021</span>, <span class="ldml-entity">respondent</span> <span class="ldml-entity">Cherish Salazar</span>, a Thornton resident, taxpayer, and eligible elector, filed the present action against Kulmann and co-<span class="ldml-entity">petitioner</span> <span class="ldml-entity">City of Thornton</span>, seeking a declaratory judgment concerning the effect of <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_3017"><span class="ldml-cite">section 11</span></a></span> on Kulmann's position as Mayor.</span></p><p data-paragraph-id="3301" class="ldml-paragraph "><span data-paragraph-id="3301" data-sentence-id="3301" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_3301"><span class="ldml-cite">¶7</span></a></span> As pertinent here, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_3301"><span class="ldml-cite">section 11</span></a></span> provides:</span></p><blockquote data-paragraph-id="b_3343" class="ldml-blockquote"><span data-sentence-id="3343" class="ldml-sentence">In order to broaden the opportunities for public service and to assure that elected officials of governments are responsive to the citizens of those governments, <i class="ldml-italics">no nonjudicial elected official</i> of any ... city ... shall serve more than two consecutive terms <i class="ldml-italics">in office</i> ....</span> <span data-sentence-id="3616" class="ldml-sentence">For purposes of this <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_3616"><span class="ldml-cite">Section 11</span></a></span>, terms are considered consecutive unless <span class="ldml-entity">they</span> are at least four years apart.</span></blockquote><p data-paragraph-id="3724" class="ldml-paragraph "> <span data-paragraph-id="3724" data-sentence-id="3725" class="ldml-sentence"><span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference"><span class="ldml-cite">Colo. Const. art. XVIII, § 11 <span class="ldml-parenthetical">(1)</span></span></a></span> <span class="ldml-parenthetical">(<span class="ldml-referencenote">emphases added</span>)</span></span>.</span></p><p data-paragraph-id="3776" class="ldml-paragraph "><span data-paragraph-id="3776" data-sentence-id="3776" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_3776"><span class="ldml-cite">¶8</span></a></span> Specifically, Salazar sought a declaration that <span class="ldml-parenthetical">(1)</span> the Mayor's seat and Councilmembers' seats are part of one elected body and constitute the same <span class="ldml-quotation quote">"office"</span> for purposes of <span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_3776"><span class="ldml-cite">section 11</span></a></span> <span class="ldml-referenceseparator">;</span></span> and <span class="ldml-parenthetical">(2)</span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_3776"><span class="ldml-cite">section 11</span></a></span> prohibited Kulmann from serving a <span class="ldml-quotation quote">"third term"</span> on the <span class="ldml-entity">City Council</span>, and thus <span class="ldml-entity">she</span> was required to vacate her position as Mayor immediately <span class="ldml-parenthetical">(because her resignation after completing more than half of her second term as Ward 4 Councilmember represented the completion of that term)</span>, or, alternatively, no later than <span class="ldml-entity">November 28, 2021</span> <span class="ldml-parenthetical">(the date on which her second consecutive term as Ward 4 Councilmember would have ended but for her resignation)</span>.</span></p><p data-paragraph-id="4428" class="ldml-paragraph "><span data-paragraph-id="4428" data-sentence-id="4428" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_4428"><span class="ldml-cite">¶9</span></a></span> <span class="ldml-entity">The parties</span> cross-moved for summary judgment, and the Adams County <span class="ldml-entity">District Court</span> ultimately granted Salazar's request for a declaration on the first issue, concluding that the Mayor and the Ward Councilmembers <span class="ldml-quotation quote">"are not defined or treated so separately so as to justify separate application of <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_4428"><span class="ldml-cite">Section 11</span></a></span>."</span></span> <span data-paragraph-id="4428" data-sentence-id="4738" class="ldml-sentence">In reaching this conclusion, <span class="ldml-entity">the court</span> initially decided that the term <span class="ldml-quotation quote">"office"</span> in <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_4738"><span class="ldml-cite">section 11</span></a></span> was ambiguous.</span> <span data-paragraph-id="4428" data-sentence-id="4847" class="ldml-sentence"><span class="ldml-entity">The court</span> thus looked to the intent of <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_4847"><span class="ldml-cite">section 11</span></a></span> as reflected in that provision's declaration of purpose and in statements set forth in the voter Blue Book at the time <span class="ldml-entity">the amendment</span> adopting <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_4847"><span class="ldml-cite">section 11</span></a></span> was passed.</span> <span data-paragraph-id="4428" data-sentence-id="5062" class="ldml-sentence">In <span class="ldml-entity"><span class="ldml-entity">the court</span>'s view</span>, these sources revealed goals of <span class="ldml-quotation quote">"prevent<span class="ldml-parenthetical">[ing]</span> elected officials from viewing their positions as lifetime,"</span> <span class="ldml-quotation quote">"forc<span class="ldml-parenthetical">[ing]</span> turnover,"</span> and <span class="ldml-quotation quote">"bring<span class="ldml-parenthetical">[ing]</span> fresh ideas to local governments."</span></span> <span data-paragraph-id="4428" data-sentence-id="5263" class="ldml-sentence"><span class="ldml-entity">The court</span> then concluded that the purpose and intent of <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_5263"><span class="ldml-cite">section 11</span></a></span> would best be served by construing the positions of Mayor and Councilmember as one office because it would limit the terms someone could serve on <span class="ldml-entity">City Council</span> regardless of the position held, thereby creating opportunities for more <span class="ldml-entity">people</span> to serve on the <span class="ldml-entity">City Council</span>.</span></p><p data-paragraph-id="5598" class="ldml-paragraph "><span data-paragraph-id="5598" data-sentence-id="5598" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_5598"><span class="ldml-cite">¶10</span></a></span> <span class="ldml-entity">The court</span> found further support for its conclusion in the language of the Charter.</span> <span data-paragraph-id="5598" data-sentence-id="5685" class="ldml-sentence">In this regard, <span class="ldml-entity">the court</span> observed that <span class="ldml-parenthetical">(1)</span> the Charter defines the <span class="ldml-entity">City Council</span> as <span class="ldml-quotation quote">"nine <span class="ldml-parenthetical">(9)</span> members, one of whom shall serve as Mayor"</span>; <span class="ldml-parenthetical">(2)</span> the Councilmembers and Mayor take the same oath and have the same voting power; <span class="ldml-parenthetical">(3)</span> the Mayor does not have either a separate budget, separate staff, separate legislative or veto powers, or a right to refuse to sign <span class="ldml-entity">legislation</span>; and <span class="ldml-parenthetical">(4)</span> the <span class="ldml-entity">City Council</span>, and not the Mayor, may enter into contracts on behalf of Thornton and may spend money for capital improvements.</span></p><p data-paragraph-id="6193" class="ldml-paragraph "><span data-paragraph-id="6193" data-sentence-id="6193" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_6193"><span class="ldml-cite">¶11</span></a></span> As to the second issue raised by Salazar, which essentially asked <span class="ldml-entity">the court</span> to declare that Kulmann's partial second term as a Ward 4 Councilmember constituted a full term for purposes of <span class="ldml-entity">section</span> ii, <span class="ldml-entity">the court</span> concluded that Kulmann's partial term did not constitute a full term and therefore Kulmann had served just one term on <span class="ldml-entity">City Council</span>, with her current term as Mayor constituting her second term.</span></p><p data-paragraph-id="6600" class="ldml-paragraph "><span data-paragraph-id="6600" data-sentence-id="6600" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_6600"><span class="ldml-cite">¶12</span></a></span> Both sides then separately appealed to <span class="ldml-entity">the court of appeals</span>.</span> <span data-paragraph-id="6600" data-sentence-id="6665" class="ldml-sentence">Kulmann and Thornton contended that <span class="ldml-entity">the district court</span> had erred in concluding that the office of Mayor and that of <span class="ldml-entity">Ward Councilmember</span> are the same <span class="ldml-quotation quote">"office"</span> for purposes of <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_6665"><span class="ldml-cite">section 11</span></a></span>.</span> <span data-paragraph-id="6600" data-sentence-id="6850" class="ldml-sentence">Salazar, in turn, contended that <span class="ldml-entity">the district court</span> had erred in concluding that Kulmann's partial term as a Ward 4 Councilmember was not a full term for term limit purposes.</span> <span data-paragraph-id="6600" data-sentence-id="7025" class="ldml-sentence"><span class="ldml-entity">The parties</span> subsequently filed a stipulated <span class="ldml-entity">motion to consolidate these two appeals</span>, and <span class="ldml-entity">the court of appeals</span> granted that motion.</span></p><p data-paragraph-id="7155" class="ldml-paragraph "><span data-paragraph-id="7155" data-sentence-id="7155" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_7155"><span class="ldml-cite">¶13</span></a></span> Thereafter, Kulmann and Thornton petitioned <span class="ldml-entity">this court</span>, pursuant to <span class="ldml-entity"><a class="ldml-reference"><span class="ldml-cite">C.A.R. 50</span></a></span>, for certiorari, noting the relative urgency presented <span class="ldml-pagenumber" data-page_type="bracketed_cite" data-val="653" data-vol="521" data-id="pagenumber_7292" data-rep="P.3d"></span> by the forthcoming election deadlines.</span> <span data-paragraph-id="7155" data-sentence-id="7332" class="ldml-sentence">Salazar did not oppose this petition, and <span class="ldml-entity">we</span> granted it.</span></p></div><div class="ldml-section"><section class="ldml-heading content__heading content__heading--depth1" data-ordinal_end="2" data-specifier="II" data-ordinal_start="2" data-parsed="true" data-id="heading_7388" data-format="upper_case_roman_numeral" data-content-heading-label="II. Analysis" data-types="analysis" data-confidences="very_high" id="heading_7388" data-value="II. Analysis"><span data-paragraph-id="7388" class="ldml-paragraph "><b class="ldml-bold"><span data-paragraph-id="7388" data-sentence-id="7388" class="ldml-sentence">II.</span> <span data-paragraph-id="7388" data-sentence-id="7392" class="ldml-sentence">Analysis</span></b></span></section><p data-paragraph-id="7400" class="ldml-paragraph "><span data-paragraph-id="7400" data-sentence-id="7400" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_7400"><span class="ldml-cite">¶14</span></a></span> <span class="ldml-entity">We</span> begin by setting forth the applicable standard of review and principles of constitutional and legislative interpretation.</span> <span data-paragraph-id="7400" data-sentence-id="7529" class="ldml-sentence"><span class="ldml-entity">We</span> then consider whether <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_7529"><span class="ldml-cite">section 11</span></a></span>, and particularly the phrase <span class="ldml-quotation quote">"in office,"</span> is ambiguous.</span> <span data-paragraph-id="7400" data-sentence-id="7621" class="ldml-sentence">After concluding that it is not, <span class="ldml-entity">we</span> turn to the plain language of Thornton's Charter and Code, and <span class="ldml-entity">we</span> conclude that the offices of Mayor and of Councilmember are separate and distinct offices for purposes of <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_7621"><span class="ldml-cite">section 11</span></a></span>.</span></p><div class="ldml-section"><section class="ldml-heading content__heading content__heading--depth2" data-id="heading_7840" data-specifier="A" data-ordinal_start="1" data-parsed="true" data-format="upper_case_letters" data-ordinal_end="1" data-content-heading-label="A. Standard of Review and Principles of Construction" id="heading_7840" data-value="A. Standard of Review and Principles of Construction"><span data-paragraph-id="7840" class="ldml-paragraph "><b class="ldml-bold"><span data-paragraph-id="7840" data-sentence-id="7840" class="ldml-sentence">A.</span> <span data-paragraph-id="7840" data-sentence-id="7843" class="ldml-sentence">Standard of Review and Principles of Construction</span></b></span></section><p data-paragraph-id="7892" class="ldml-paragraph "> <span data-paragraph-id="7892" data-sentence-id="7893" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_7893"><span class="ldml-cite">¶15</span></a></span> Constitutional and statutory interpretation present questions of law that <span class="ldml-entity">we</span> review de novo.</span> <span data-paragraph-id="7892" data-sentence-id="7990" class="ldml-sentence"><i class="ldml-italics">All. for a </i><span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_7990" data-refglobal="case:safeindepwoodmenhillsvcampaignintegritywatchdog,llc,2019co76"><i class="ldml-italics"><span class="ldml-refname">Safe & Indep. Woodmen Hills v. Campaign Integrity Watchdog, LLC</span>,</i> <span class="ldml-cite">2019 CO 76</span></a></span>, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_7990"><span class="ldml-cite">¶ 20</span></a></span></span>, <span class="ldml-referencechain"><span class="ldml-entity"><a href="/vid/893626066" data-vids="893626066" class="ldml-reference" data-prop-ids="sentence_7990"><span class="ldml-cite">450 P.3d 282, 286</span></a></span> <span class="ldml-referenceseparator">;</span> <span class="ldml-entity"><a href="/vid/895409153" data-vids="895409153" class="ldml-reference" data-prop-ids="sentence_7990"><i class="ldml-italics"><span class="ldml-refname">MDC Holdings, Inc. v. Town of Parker</span>,</i> <span class="ldml-cite">223 P.3d 710, 717</span> <span class="ldml-parenthetical">(<span class="ldml-court">Colo.</span> <span class="ldml-date">2010</span>)</span></a></span></span>.</span> <span data-paragraph-id="7892" data-sentence-id="8174" class="ldml-sentence">The rules of statutory construction apply equally to matters concerning the interpretation of citizen-initiated measures and local government <span class="ldml-entity">enactments</span>.</span> <span data-paragraph-id="7892" data-sentence-id="8328" class="ldml-sentence"><span class="ldml-referencechain"><span class="ldml-entity"><a href="/vid/889210458" data-vids="889210458" class="ldml-reference" data-prop-ids="sentence_8174"><i class="ldml-italics"><span class="ldml-refname">Huber v. Colo. Mining Ass'n</span>,</i> <span class="ldml-cite">264 P.3d 884, 889</span> <span class="ldml-parenthetical">(<span class="ldml-court">Colo.</span> <span class="ldml-date">2011</span>)</span></a></span> <span class="ldml-referenceseparator">;</span> <span class="ldml-entity"><a href="/vid/895409153" data-vids="895409153" class="ldml-reference" data-prop-ids="sentence_8174"><i class="ldml-italics"><span class="ldml-refname">MDC Holdings</span>,</i> <span class="ldml-cite">223 P.3d at 717</span></a></span></span>.</span></p><p data-paragraph-id="8420" class="ldml-paragraph "> <span data-paragraph-id="8420" data-sentence-id="8421" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_8421"><span class="ldml-cite">¶16</span></a></span> Our principal goal in interpreting constitutional <span class="ldml-entity">amendments</span> and local government <span class="ldml-entity">enactments</span> is to determine and effectuate the intent of those who adopted those measures.</span> <span data-paragraph-id="8420" data-sentence-id="8597" class="ldml-sentence"><span class="ldml-referencechain"><span class="ldml-signal"><i class="ldml-italics">See</i></span> <span class="ldml-entity"><a href="/vid/889210458" data-vids="889210458" class="ldml-reference" data-prop-ids="sentence_8421"><i class="ldml-italics"><span class="ldml-refname">Huber</span>,</i> <span class="ldml-cite">264 P.3d at 889</span></a></span> <span class="ldml-referenceseparator">;</span> <span class="ldml-entity"><a href="/vid/895409153" data-vids="895409153" class="ldml-reference" data-prop-ids="sentence_8421"><i class="ldml-italics"><span class="ldml-refname">MDC Holdings</span>,</i> <span class="ldml-cite">223 P.3d at 717</span></a></span> <span class="ldml-referenceseparator">;</span> <span class="ldml-entity"><a href="/vid/887406339" data-vids="887406339" class="ldml-reference" data-prop-ids="sentence_8421"><i class="ldml-italics"><span class="ldml-refname">JJR 1, LLC v. Mt. Crested Butte</span>,</i> <span class="ldml-cite">160 P.3d 365, 370</span> <span class="ldml-parenthetical">(<span class="ldml-court">Colo. App.</span> <span class="ldml-date">2007</span>)</span></a></span></span>.</span> <span data-paragraph-id="8420" data-sentence-id="8728" class="ldml-sentence">To do so, <span class="ldml-entity">we</span> look first to the language employed, giving words and phrases their plain and ordinary meanings.</span> <span data-paragraph-id="8420" data-sentence-id="8838" class="ldml-sentence"><span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_8728" data-refglobal="case:peoplevlente,2017co74"><i class="ldml-italics"><span class="ldml-refname">People v. Lente</span>,</i> <span class="ldml-cite">2017 CO 74</span></a></span>, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_8728"><span class="ldml-cite">¶ 16</span></a></span></span>, <span class="ldml-referencechain"><span class="ldml-entity"><a href="/vid/886392690" data-vids="886392690" class="ldml-reference"><span class="ldml-cite">406 P.3d 829, 832</span></a></span> <span class="ldml-referenceseparator">;</span> <span class="ldml-entity"><a href="/vid/895409153" data-vids="895409153" class="ldml-reference"><i class="ldml-italics"><span class="ldml-refname">MDC Holdings</span>,</i> <span class="ldml-cite">223 P.3d at 717</span></a></span></span>.</span> <span data-paragraph-id="8420" data-sentence-id="8924" class="ldml-sentence">In addition, <span class="ldml-entity">we</span> look to the entire legislative scheme in order to give consistent, harmonious, and sensible effect to all of its parts, and <span class="ldml-entity">we</span> avoid constructions that would render any words or phrases superfluous or lead to illogical or absurd results.</span> <span data-paragraph-id="8420" data-sentence-id="9178" class="ldml-sentence"><span class="ldml-referencechain"><span class="ldml-entity"><a href="/vid/895657155" data-vids="895657155" class="ldml-reference" data-prop-ids="sentence_8924"><i class="ldml-italics"><span class="ldml-refname">Elder v. Williams</span>,</i> <span class="ldml-cite">2020 CO 88</span></a></span>, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_8924"><span class="ldml-cite">¶ 18</span></a></span></span>, <span class="ldml-entity"><a href="/vid/895657155" data-vids="895657155" class="ldml-reference"><span class="ldml-cite">477 P.3d 694, 698</span></a></span>.</span></p><p data-paragraph-id="9233" class="ldml-paragraph "> <span data-paragraph-id="9233" data-sentence-id="9234" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_9234"><span class="ldml-cite">¶17</span></a></span> If the language of the measure is unambiguous, then <span class="ldml-entity">we</span> apply it as written and need not resort to other tools of construction.</span> <span data-paragraph-id="9233" data-sentence-id="9365" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_9234"><span class="ldml-cite"><i class="ldml-italics">Id.</i></span></a></span></span> <span data-paragraph-id="9233" data-sentence-id="9369" class="ldml-sentence">If, however, the measure is ambiguous, then <span class="ldml-entity">we</span> may look to the intent of those who adopted the measure, the circumstances surrounding its adoption, and the possible consequences of different interpretations.</span> <span data-paragraph-id="9233" data-sentence-id="9577" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_9369"><span class="ldml-cite"><i class="ldml-italics">Id.</i></span></a></span></span> <span data-paragraph-id="9233" data-sentence-id="9581" class="ldml-sentence"><span class="ldml-entity">A legislative enactment</span> is ambiguous when it is reasonably susceptible of multiple interpretations.</span> <span data-paragraph-id="9233" data-sentence-id="9681" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_9581"><span class="ldml-cite"><i class="ldml-italics">Id.</i></span></a></span></span></p><p data-paragraph-id="9684" class="ldml-paragraph "> <span data-paragraph-id="9684" data-sentence-id="9685" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_9685"><span class="ldml-cite">¶18</span></a></span> In conducting the foregoing analysis, <span class="ldml-entity">we</span> must respect the legislative drafters' choice of language, and <span class="ldml-entity">we</span> will not add words to <span class="ldml-entity">a legislative enactment</span> or subtract words from it.</span> <span data-paragraph-id="9684" data-sentence-id="9869" class="ldml-sentence"><span class="ldml-referencechain"><span class="ldml-entity"><a href="/vid/885985135" data-vids="885985135" class="ldml-reference" data-prop-ids="sentence_9685"><i class="ldml-italics"><span class="ldml-refname">UMB Bank, N.A. v. Landmark Towers Ass'n</span>,</i> <span class="ldml-cite">2017 CO 107</span></a></span>, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_9685"><span class="ldml-cite">¶ 22</span></a></span></span>, <span class="ldml-entity"><a href="/vid/885985135" data-vids="885985135" class="ldml-reference"><span class="ldml-cite">408 P.3d 836, 840</span></a></span>.</span></p><p data-paragraph-id="9947" class="ldml-paragraph "> <span data-paragraph-id="9947" data-sentence-id="9948" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_9948"><span class="ldml-cite">¶19</span></a></span> In addition, because the right to hold public office is a <span class="ldml-quotation quote">"valuable and fundamental"</span> right of citizenship, <span class="ldml-entity">we</span> will construe measures limiting a person's right to hold public office in a way that will least infringe on that right.</span> <span data-paragraph-id="9947" data-sentence-id="10182" class="ldml-sentence"><span class="ldml-entity"><a href="/vid/889952435" data-vids="889952435" class="ldml-reference" data-prop-ids="sentence_9948"><i class="ldml-italics"><span class="ldml-refname">Romero v. Sandoval</span>,</i> <span class="ldml-cite">685 P.2d 772, 774-75</span> <span class="ldml-parenthetical">(<span class="ldml-court">Colo.</span> <span class="ldml-date">1984</span>)</span></a></span>.</span></p></div><div class="ldml-section"><section class="ldml-heading content__heading content__heading--depth2" data-id="heading_10236" data-specifier="B" data-ordinal_start="2" data-parsed="true" data-format="upper_case_letters" data-ordinal_end="2" data-content-heading-label="B. Section 11" id="heading_10236" data-value="B. Section 11"><span data-paragraph-id="10236" class="ldml-paragraph "><b class="ldml-bold"><span data-paragraph-id="10236" data-sentence-id="10236" class="ldml-sentence">B.</span> <span data-paragraph-id="10236" data-sentence-id="10239" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_10236"><span class="ldml-cite">Section 11</span></a></span></span></b></span></section><p data-paragraph-id="10249" class="ldml-paragraph "> <span data-paragraph-id="10249" data-sentence-id="10250" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_10250"><span class="ldml-cite">¶20</span></a></span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_10250"><span class="ldml-cite">Section 11</span></a></span> provides, in pertinent part, that <span class="ldml-quotation quote">"no nonjudicial elected official of any ... city ... shall serve more than two consecutive terms in office."</span></span> <span data-paragraph-id="10249" data-sentence-id="10408" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_10250"><span class="ldml-cite">Colo. Const. art. XVIII, § 11 <span class="ldml-parenthetical">(1)</span></span></a></span>.</span> <span data-paragraph-id="10249" data-sentence-id="10443" class="ldml-sentence">To decide the question presented, <span class="ldml-entity">we</span> must first determine whether the phrase <span class="ldml-quotation quote">"in office"</span> is ambiguous.</span> <span data-paragraph-id="10249" data-sentence-id="10546" class="ldml-sentence"><span class="ldml-entity">We</span> conclude that it is not.</span></p><p data-paragraph-id="10573" class="ldml-paragraph "><span data-paragraph-id="10573" data-sentence-id="10573" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_10573"><span class="ldml-cite">¶21</span></a></span> As noted above, a provision is ambiguous when it is reasonably susceptible of multiple interpretations.</span> <span data-paragraph-id="10573" data-sentence-id="10681" class="ldml-sentence"><span class="ldml-referencechain"><i class="ldml-italics"><span class="ldml-entity"><a href="/vid/895657155" data-vids="895657155" class="ldml-reference" data-prop-ids="sentence_10573"><span class="ldml-refname">Elder</span></a></span>,</i> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_10573"><span class="ldml-cite">¶ 18</span></a></span></span>, <span class="ldml-entity"><a href="/vid/895657155" data-vids="895657155" class="ldml-reference"><span class="ldml-cite">477 P.3d at 698</span></a></span>.</span> <span data-paragraph-id="10573" data-sentence-id="10711" class="ldml-sentence">Here, the phrase <span class="ldml-quotation quote">"in office"</span> refers back to the phrase <span class="ldml-quotation quote">"nonjudicial elected official"</span> <span class="ldml-parenthetical">(i.e., <span class="ldml-quotation quote">"in office"</span> refers to the office held by a nonjudicial elected official)</span>.</span> <span data-paragraph-id="10573" data-sentence-id="10878" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_10711"><span class="ldml-cite">Colo. Const. art. XVIII, § 11 <span class="ldml-parenthetical">(1)</span></span></a></span>.</span> <span data-paragraph-id="10573" data-sentence-id="10913" class="ldml-sentence">Accordingly, in our view, <span class="ldml-quotation quote">"in office"</span> plainly and unambiguously refers to a specific office, and not to an institution or governing body.</span></p><p data-paragraph-id="11050" class="ldml-paragraph "><span data-paragraph-id="11050" data-sentence-id="11050" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_11050"><span class="ldml-cite">¶22</span></a></span> In this regard, <span class="ldml-entity">this case</span> is distinguishable from <span class="ldml-entity"><a href="/vid/887664002" data-vids="887664002" class="ldml-reference" data-prop-ids="sentence_11050"><i class="ldml-italics"><span class="ldml-refname">Lorton v. Jones</span>,</i> <span class="ldml-cite">130 Nev. 51</span>, <span class="ldml-cite">322 P.3d 1051</span> <span class="ldml-parenthetical">(<span class="ldml-date">2014</span>)</span></a></span>, on which Salazar relies.</span> <span data-paragraph-id="11050" data-sentence-id="11181" class="ldml-sentence">In <span class="ldml-entity"><a href="/vid/887664002" data-vids="887664002" class="ldml-reference" data-prop-ids="sentence_11181"><i class="ldml-italics"><span class="ldml-refname">Lorton</span>,</i> <span class="ldml-cite">322 P.3d at 1052-53</span></a></span>, the <span class="ldml-entity">Nevada Supreme Court</span> considered a state constitutional <span class="ldml-pagenumber" data-page_type="bracketed_cite" data-val="654" data-vol="521" data-id="pagenumber_11272" data-rep="P.3d"></span> provision declaring that <span class="ldml-quotation quote">"<span class="ldml-parenthetical">[n]</span>o person may be elected to any state office or local governing body who has served in that office, or at the expiration of his <span class="ldml-parenthetical">[or her]</span> current term if <span class="ldml-entity">he</span> <span class="ldml-parenthetical">[or <span class="ldml-entity">she</span>]</span> is so serving will have served, 12 years or more."</span></span> <span data-paragraph-id="11050" data-sentence-id="11517" class="ldml-sentence"><span class="ldml-parenthetical">(<span class="ldml-referencechain"><span class="ldml-cert">Quoting</span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_11181"><span class="ldml-cite">Nev. Const. art. XV, § 3 <span class="ldml-parenthetical">(2)</span></span></a></span><span class="ldml-referenceseparator">;</span></span> <span class="ldml-referencenote">alterations in original</span>.)</span></span> <span data-paragraph-id="11050" data-sentence-id="11582" class="ldml-sentence">As pertinent to the question before <span class="ldml-entity">us</span>, <span class="ldml-entity">the court</span> noted the distinction in the constitutional language between <span class="ldml-quotation quote">"state office"</span> and <span class="ldml-quotation quote">"local governing body."</span></span> <span data-paragraph-id="11050" data-sentence-id="11736" class="ldml-sentence"><span class="ldml-entity"><a href="/vid/887664002" data-vids="887664002" class="ldml-reference" data-prop-ids="sentence_11582"><span class="ldml-cite"><i class="ldml-italics">Id.</i> at 1056</span></a></span>.</span> <span data-paragraph-id="11050" data-sentence-id="11749" class="ldml-sentence">In <span class="ldml-entity"><span class="ldml-entity">the court</span>'s view</span>, this distinction indicated that, <span class="ldml-quotation quote">"at <span class="ldml-entity">the state</span> level, the drafters intended to prevent election to a specific office, but at the local level, the intent was to preclude continuing service on the governing body generally."</span></span> <span data-paragraph-id="11050" data-sentence-id="11992" class="ldml-sentence"><span class="ldml-entity"><a href="/vid/887664002" data-vids="887664002" class="ldml-reference" data-prop-ids="sentence_11749"><span class="ldml-cite"><i class="ldml-italics">Id.</i></span></a></span></span></p><p data-paragraph-id="11995" class="ldml-paragraph "><span data-paragraph-id="11995" data-sentence-id="11995" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_11995"><span class="ldml-cite">¶23</span></a></span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_11995"><span class="ldml-cite">Section 11</span></a></span> contains no language distinguishing between an office, on the one hand, and a governing body <span class="ldml-parenthetical">(or institution)</span>, on the other.</span> <span data-paragraph-id="11995" data-sentence-id="12135" class="ldml-sentence">Indeed, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_12135"><span class="ldml-cite">section 11</span></a></span> does not refer to a local governing body at all.</span> <span data-paragraph-id="11995" data-sentence-id="12203" class="ldml-sentence">Rather, it refers solely to an <span class="ldml-quotation quote">"office."</span></span> <span data-paragraph-id="11995" data-sentence-id="12244" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_12203"><span class="ldml-cite">Colo. Const. art. XVIII, § 11 <span class="ldml-parenthetical">(1)</span></span></a></span>.</span> <span data-paragraph-id="11995" data-sentence-id="12279" class="ldml-sentence">Thus, <span class="ldml-entity">we</span> conclude that <span class="ldml-quotation quote">"office"</span> refers to a specific office <span class="ldml-parenthetical">(i.e., the office held by a nonjudicial elected official)</span>, and not to a governing body or institution.</span> <span data-paragraph-id="11995" data-sentence-id="12442" class="ldml-sentence"><span class="ldml-referencechain"><i class="ldml-italics"><span class="ldml-signal">See</span> </i> <span class="ldml-entity"><a href="/vid/887664002" data-vids="887664002" class="ldml-reference" data-prop-ids="embeddedsentence_12473,sentence_12279"><i class="ldml-italics"><span class="ldml-refname">Lorton</span>,</i> <span class="ldml-cite">322 P.3d at 1056</span></a></span> <span class="ldml-parenthetical">(<span class="ldml-embeddedsentence"><span class="ldml-relatingauthority">noting</span> that <span class="ldml-quotation quote">"state office,"</span> as distinct from <span class="ldml-quotation quote">"local governing body,"</span> in the pertinent provision of the <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_12279"><span class="ldml-cite">Nevada Constitution</span></a></span> refers to a specific office</span>)</span></span>.</span></p><p data-paragraph-id="12625" class="ldml-paragraph "><span data-paragraph-id="12625" data-sentence-id="12625" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_12625"><span class="ldml-cite">¶24</span></a></span> The question thus becomes whether the offices of Mayor and <span class="ldml-entity">Ward Councilmember</span> in Thornton constitute the same or separate and distinct offices for purposes of <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_12625"><span class="ldml-cite">section 11</span></a></span>'s term limit provisions.</span> <span data-paragraph-id="12625" data-sentence-id="12824" class="ldml-sentence">To decide this question, <span class="ldml-entity">we</span> must consider the language of Thornton's Charter and Code.</span></p></div><div class="ldml-section"><section class="ldml-heading content__heading content__heading--depth2" data-id="heading_12910" data-specifier="C" data-ordinal_start="3" data-parsed="true" data-format="upper_case_letters" data-ordinal_end="3" data-content-heading-label="C. Thornton's Charter and Code" id="heading_12910" data-value="C. Thornton's Charter and Code"><span data-paragraph-id="12910" class="ldml-paragraph "><span data-paragraph-id="12910" data-sentence-id="12910" class="ldml-sentence"><b class="ldml-bold"><span class="ldml-entity">C. <span class="ldml-embeddedsentence">Thornton</span></span><span class="ldml-embeddedsentence">'s Charter and Code</span></b></span></span></section><p data-paragraph-id="12940" class="ldml-paragraph "><span data-paragraph-id="12940" data-sentence-id="12940" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_12940"><span class="ldml-cite">¶25</span></a></span> As Salazar correctly observes, the Charter provides that the <span class="ldml-entity">City Council</span> consists <span class="ldml-quotation quote">"of nine <span class="ldml-parenthetical">(9)</span> members, one of whom shall serve as Mayor,"</span> and that the Council <span class="ldml-quotation quote">"shall constitute the legislative and governing body of the City."</span></span> <span data-paragraph-id="12940" data-sentence-id="13172" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_12940"><span class="ldml-refname">City of Thornton, Colo., Charter</span>, <span class="ldml-cite">§ 4.1</span></a></span>.</span> <span data-paragraph-id="12940" data-sentence-id="13213" class="ldml-sentence">Salazar, however, all but ignores the rest of the Charter's language.</span></p><p data-paragraph-id="13282" class="ldml-paragraph "><span data-paragraph-id="13282" data-sentence-id="13282" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_13282"><span class="ldml-cite">¶26</span></a></span> For example, the Charter provides that the Mayor and <span class="ldml-entity">Ward Councilmembers</span> are elected in different ways and by different constituencies, and <span class="ldml-entity">they</span> represent different groups of <span class="ldml-entity">people</span>.</span> <span data-paragraph-id="13282" data-sentence-id="13469" class="ldml-sentence">Councilmembers are <span class="ldml-quotation quote">"elected from each ward"</span> to represent their ward-specific constituencies, and <span class="ldml-entity">they</span> must live in the ward that <span class="ldml-entity">they</span> represent.</span> <span data-paragraph-id="13282" data-sentence-id="13614" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_13614"><span class="ldml-cite"><i class="ldml-italics">Id.</i></span></a></span> at <span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_13614"><span class="ldml-cite">§§ 4.3<span class="ldml-parenthetical">(a)</span></span></a></span><span class="ldml-referenceseparator">,</span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_13614"><span class="ldml-cite">4.4</span></a></span></span>.</span> <span data-paragraph-id="13282" data-sentence-id="13637" class="ldml-sentence">In contrast, the Mayor is elected <span class="ldml-quotation quote">"at-large"</span> to represent all of the city's residents and can reside in any one of the four wards.</span> <span data-paragraph-id="13282" data-sentence-id="13768" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_13768"><span class="ldml-cite"><i class="ldml-italics">Id.</i></span></a></span> at <span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_13768"><span class="ldml-cite">§§ 4.3<span class="ldml-parenthetical">(b)</span></span></a></span><span class="ldml-referenceseparator">,</span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_13768"><span class="ldml-cite">4.4</span></a></span></span>.</span> <span data-paragraph-id="13282" data-sentence-id="13791" class="ldml-sentence">This election process is unlike that in some municipalities, where citizens elect their city council and the council, in turn, designates one of its members to serve as mayor.</span> <span data-paragraph-id="13282" data-sentence-id="13967" class="ldml-sentence"><span class="ldml-referencechain"><i class="ldml-italics"><span class="ldml-signal">See, e.g.</span>,</i> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_13791"><span class="ldml-refname">City of Durango, Colo., Charter</span>, <span class="ldml-cite">art. II, § 6</span></a></span><span class="ldml-referenceseparator">;</span> <span class="ldml-signal"><i class="ldml-italics">see also</i></span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="embeddedsentence_14088,sentence_13791"><span class="ldml-refname">City of Grand Junction, Colo., Charter</span>, <span class="ldml-cite">art. V, § 39</span></a></span> <span class="ldml-parenthetical">(<span class="ldml-embeddedsentence">calling the designated member <span class="ldml-quotation quote">"president,"</span> rather than <span class="ldml-quotation quote">"mayor"</span></span>)</span></span>.</span> <span data-paragraph-id="13282" data-sentence-id="14153" class="ldml-sentence">Accordingly, <span class="ldml-entity">we</span> disagree with Salazar that being a <span class="ldml-entity">Thornton Councilmember</span> is a <span class="ldml-quotation quote">"prerequisite"</span> to being Mayor.</span> <span data-paragraph-id="13282" data-sentence-id="14263" class="ldml-sentence">The Mayor is not elected to be a Councilmember, nor does one become Mayor by being elected to the <span class="ldml-entity">City Council</span> and then being selected to serve as Mayor.</span> <span data-paragraph-id="13282" data-sentence-id="14417" class="ldml-sentence">Rather, the voters specifically choose the individual whom <span class="ldml-entity">they</span> want to serve as their Mayor.</span> <span data-paragraph-id="13282" data-sentence-id="14511" class="ldml-sentence">Thus, if anything, these provisions support Kulmann's and Thornton's position that the Charter puts the Mayor on the <span class="ldml-entity">City Council</span>, not a Councilmember in the office of Mayor.</span></p><p data-paragraph-id="14685" class="ldml-paragraph "><span data-paragraph-id="14685" data-sentence-id="14685" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_14685"><span class="ldml-cite">¶27</span></a></span> The Charter further establishes separate and distinct processes for filling vacancies in the offices of <span class="ldml-entity">Ward Councilmember</span> and Mayor, respectively.</span> <span data-paragraph-id="14685" data-sentence-id="14837" class="ldml-sentence">If a vacancy occurs in the <span class="ldml-quotation quote">"office of Councilmember,"</span> then the Council appoints an eligible person to fill that vacancy, and the Council must do so within thirty days of the vacancy, unless the vacancy occurs within ninety days of a regularly scheduled election for that vacant seat.</span> <span data-paragraph-id="14685" data-sentence-id="15121" class="ldml-sentence"><span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_14837"><span class="ldml-refname">City of Thornton, Colo., Charter</span>, <span class="ldml-cite">§ 4.5<span class="ldml-parenthetical">(b)</span></span></a></span><span class="ldml-referenceseparator">;</span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_14837"><span class="ldml-refname">City of Thornton, Colo., Mun. Code</span>, <span class="ldml-cite">ch. 2, art. VI, § 2-244</span></a></span></span>.</span> <span data-paragraph-id="14685" data-sentence-id="15226" class="ldml-sentence">If, in contrast, a vacancy occurs in the <span class="ldml-quotation quote">"office of Mayor,"</span> then the Mayor Pro-Tem becomes the Acting Mayor <span class="ldml-quotation quote">"immediately"</span> and serves until the next regular election, after which the Acting Mayor resumes their duties as Councilmember for the remainder of their unexpired term in office.</span> <span data-paragraph-id="14685" data-sentence-id="15512" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_15226"><span class="ldml-refname">City of Thornton, Colo., Charter</span>, <span class="ldml-cite">§ 4.5<span class="ldml-parenthetical">(a)</span></span></a></span>.</span></p><div class="ldml-embeddeddocument"><p data-paragraph-id="15555" class="ldml-paragraph "><span data-paragraph-id="15555" data-sentence-id="15555" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_15555"><span class="ldml-cite">¶28</span></a></span> In addition, the Mayor has a number of duties that the Councilmembers do not have, and notwithstanding Salazar's assertions to the contrary, <span class="ldml-entity">we</span> cannot say that <span class="ldml-pagenumber" data-page_type="bracketed_cite" data-val="655" data-vol="521" data-id="pagenumber_15719" data-rep="P.3d"></span> these additional duties are <span class="ldml-quotation quote">"very minor"</span> and merely <span class="ldml-quotation quote">"ceremonial or procedural."</span></span> <span data-paragraph-id="15555" data-sentence-id="15800" class="ldml-sentence">The Mayor's distinct role within the <span class="ldml-entity">City of Thornton</span> is detailed in a Charter provision titled, <span class="ldml-quotation quote">"Mayor,"</span> which enumerates the Mayor's unique leadership and legislative responsibilities as well as their independent executive powers.</span> <span data-paragraph-id="15555" data-sentence-id="16033" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_16033"><span class="ldml-cite"><i class="ldml-italics">Id.</i></span></a></span> at <span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_16033"><span class="ldml-cite">§ 4.8</span></a></span> <span class="ldml-parenthetical">(<span class="ldml-quotation quote">"the Mayor Provision"</span>)</span></span>.</span> <span data-paragraph-id="15555" data-sentence-id="16071" class="ldml-sentence">For example, the first subsection of the Mayor Provision establishes that the Mayor <span class="ldml-quotation quote">"shall preside over meetings of the Council, shall have the right to speak and vote therein as any other member, shall be recognized as head of the City government for all ceremonial purposes, and shall execute and authenticate legal instruments requiring the signature of the Mayor."</span></span> <span data-paragraph-id="15555" data-sentence-id="16440" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_16440"><span class="ldml-cite"><i class="ldml-italics">Id.</i></span></a></span> at <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_16440"><span class="ldml-cite">§ 4.8<span class="ldml-parenthetical">(a)</span></span></a></span>.</span> <span data-paragraph-id="15555" data-sentence-id="16457" class="ldml-sentence">The second subsection of the Mayor Provision grants the Mayor executive responsibilities, including emergency and appointment powers that extend beyond their leadership and legislative duties on the <span class="ldml-entity">City Council</span>.</span> <span data-paragraph-id="15555" data-sentence-id="16670" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_16670"><span class="ldml-cite"><i class="ldml-italics">Id.</i></span></a></span> at <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_16670"><span class="ldml-cite">§ 4.8<span class="ldml-parenthetical">(b)</span></span></a></span>.</span> <span data-paragraph-id="15555" data-sentence-id="16687" class="ldml-sentence">Specifically, under <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_16687"><span class="ldml-cite">subsection <span class="ldml-parenthetical">(b)</span></span></a></span> of the Mayor Provision, the Mayor is</span></p><blockquote data-paragraph-id="b_16758" class="ldml-blockquote"><span data-sentence-id="16758" class="ldml-sentence">a conservator of the peace, and in emergencies may exercise within the City the powers conferred by the Governor of the <span class="ldml-entity">State of Colorado</span> for purposes of military law, and shall have the authority to command the assistance of all able-bodied citizens to aid in the enforcement of the ordinances of the City and to suppress riot and disorder.</span></blockquote><p data-paragraph-id="17099" class="ldml-paragraph "><span data-paragraph-id="17099" data-sentence-id="17099" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference"><span class="ldml-cite"><i class="ldml-italics">Id.</i></span></a></span></span></p></div><p data-paragraph-id="17102" class="ldml-paragraph "><span data-paragraph-id="17102" data-sentence-id="17102" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_17102"><span class="ldml-cite">¶29</span></a></span> The Mayor also has the exclusive power to appoint eligible persons to serve, on a temporary basis, as municipal <span class="ldml-entity">court</span> judges when all regularly appointed municipal <span class="ldml-entity">court</span> judges are absent, disqualified, or unable to act in a matter or case and the presiding judge is also absent.</span> <span data-paragraph-id="17102" data-sentence-id="17386" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_17386"><span class="ldml-cite"><i class="ldml-italics">Id.</i></span></a></span> at <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_17386"><span class="ldml-cite">§ 6.2</span></a></span>.</span> <span data-paragraph-id="17102" data-sentence-id="17400" class="ldml-sentence">And the Mayor appoints one member of the <span class="ldml-entity">Thornton Active Adult Board</span>.</span> <span data-paragraph-id="17102" data-sentence-id="17470" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_17400"><span class="ldml-refname">City of Thornton, Colo., Mun. Code</span>, <span class="ldml-cite">ch. 2, art. III, § 2-85<span class="ldml-parenthetical">(b)</span><span class="ldml-parenthetical">(1)</span></span></a></span>.</span></p><p data-paragraph-id="17536" class="ldml-paragraph "><span data-paragraph-id="17536" data-sentence-id="17536" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_17536"><span class="ldml-cite">¶30</span></a></span> The Charter and the Code make clear that the Mayor can exercise each of the foregoing powers unilaterally, separate from the <span class="ldml-entity">City Council</span>, and without the involvement or consent of any of the eight <span class="ldml-entity">Ward Councilmembers</span>.</span> <span data-paragraph-id="17536" data-sentence-id="17759" class="ldml-sentence">No such powers or responsibilities are delegated to any individual <span class="ldml-entity">Ward Councilmember</span>.</span></p><p data-paragraph-id="17845" class="ldml-paragraph "><span data-paragraph-id="17845" data-sentence-id="17845" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_17845"><span class="ldml-cite">¶31</span></a></span> The Charter also repeatedly refers separately to the <span class="ldml-quotation quote">"office of Mayor"</span> and the <span class="ldml-quotation quote">"office of Councilmember."</span></span> <span data-paragraph-id="17845" data-sentence-id="17955" class="ldml-sentence">When the Charter addresses only the Mayor, it refers to that position as <span class="ldml-quotation quote">"the office of Mayor."</span></span> <span data-paragraph-id="17845" data-sentence-id="18051" class="ldml-sentence"><span class="ldml-referencechain"><i class="ldml-italics"><span class="ldml-signal">See, e.g.</span>,</i> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_17955"><span class="ldml-refname">City of Thornton, Colo., Charter</span>, <span class="ldml-cite">§§ 4.4, 4.5<span class="ldml-parenthetical">(a)</span></span></a></span></span>.</span> <span data-paragraph-id="17845" data-sentence-id="18112" class="ldml-sentence">When the Charter and the Code address only the Ward Councilmembers, <span class="ldml-entity">they</span> state <span class="ldml-quotation quote">"the office of Councilmember"</span> or <span class="ldml-quotation quote">"office of the Councilmembers."</span></span> <span data-paragraph-id="17845" data-sentence-id="18256" class="ldml-sentence"><span class="ldml-referencechain"><i class="ldml-italics"><span class="ldml-signal">See, e.g.</span>, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_18112"><span class="ldml-cite">id.</span></a></span></i></span> at <span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference"><span class="ldml-cite">§§ 4.3</span></a></span><span class="ldml-referenceseparator">,</span> <span class="ldml-entity"><a class="ldml-reference"><span class="ldml-cite">4.4</span></a></span><span class="ldml-referenceseparator">,</span> <span class="ldml-entity"><a class="ldml-reference"><span class="ldml-cite">4.5<span class="ldml-parenthetical">(b)</span></span></a></span><span class="ldml-referenceseparator">;</span> <span class="ldml-entity"><a class="ldml-reference"><span class="ldml-refname">City of Thornton, Colo., Mun. Code</span>, <span class="ldml-cite">ch. 2, art. VI, § 2-244</span></a></span></span>.</span> <span data-paragraph-id="17845" data-sentence-id="18356" class="ldml-sentence">In contrast, neither the Charter nor the Code refers to the <span class="ldml-entity">City Council</span> as <span class="ldml-quotation quote">"the office of City Council."</span></span> <span data-paragraph-id="17845" data-sentence-id="18462" class="ldml-sentence">Rather, when the Charter addresses the <span class="ldml-entity">City Council</span> collectively as a legislative body, it does so expressly by referring to it as <span class="ldml-quotation quote">"the Council."</span></span> <span data-paragraph-id="17845" data-sentence-id="18608" class="ldml-sentence"><span class="ldml-referencechain"><i class="ldml-italics"><span class="ldml-signal">See, e.g.</span>,</i> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_18462"><span class="ldml-refname">City of Thornton, Colo., Charter</span>, <span class="ldml-cite">§§ 3.2, 3.3, 4.1, 4.2, 4.5<span class="ldml-parenthetical">(b)</span>, 4.6, 4.15, 4.16</span></a></span></span>.</span></p><p data-paragraph-id="18700" class="ldml-paragraph "><span data-paragraph-id="18700" data-sentence-id="18700" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_18700"><span class="ldml-cite">¶32</span></a></span> And throughout the Charter and Code, when outlining limits and requirements that apply to both the individual elected to serve as Mayor and the individuals elected to serve as <span class="ldml-entity">Ward Councilmembers</span>, the drafters chose to address them separately with the disjunctive <span class="ldml-quotation quote">"or."</span></span> <span data-paragraph-id="18700" data-sentence-id="18974" class="ldml-sentence">For example, the Charter establishes the age and citizenship requirements for an individual to be eligible to be elected to <span class="ldml-quotation quote">"the office of Mayor <i class="ldml-italics">or</i> Councilmember"</span> and goes on to state, <span class="ldml-quotation quote">"No person shall serve as Mayor <i class="ldml-italics">or</i> Councilmember while also holding another elected position in government."</span></span> <span data-paragraph-id="18700" data-sentence-id="19268" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_19268"><span class="ldml-cite"><i class="ldml-italics">Id.</i></span></a></span> at <span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_19268"><span class="ldml-cite">§ 4.4</span></a></span> <span class="ldml-parenthetical">(<span class="ldml-referencenote">emphases added</span>)</span></span>.</span> <span data-paragraph-id="18700" data-sentence-id="19299" class="ldml-sentence">Similarly, the Code provides, <span class="ldml-quotation quote">"Before a candidate for councilmember, <i class="ldml-italics">or</i> mayor, is eligible for office,"</span> the candidate must certify that <span class="ldml-entity">they</span> meet the applicable residency requirements for office.</span> <span data-paragraph-id="18700" data-sentence-id="19495" class="ldml-sentence"><span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_19299"><span class="ldml-refname">City of Thornton, Colo., Mun. Code</span>, <span class="ldml-cite">ch. 2, art. VI, § 2-243<span class="ldml-parenthetical">(a)</span></span></a></span> <span class="ldml-parenthetical">(<span class="ldml-referencenote">emphasis added</span>)</span></span>.</span></p><p data-paragraph-id="19575" class="ldml-paragraph "> <span data-paragraph-id="19575" data-sentence-id="19576" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_19576"><span class="ldml-cite">¶33</span></a></span> As <span class="ldml-entity">we</span> have long recognized, the use of the word <span class="ldml-quotation quote">"or"</span> in this fashion ordinarily demarcates different categories.</span> <span data-paragraph-id="19575" data-sentence-id="19693" class="ldml-sentence"><span class="ldml-entity"><a href="/vid/889079600" data-vids="889079600" class="ldml-reference" data-prop-ids="sentence_19576"><i class="ldml-italics"><span class="ldml-refname">People v. Valenzuela</span>,</i> <span class="ldml-cite">216 P.3d 588, 592</span> <span class="ldml-parenthetical">(<span class="ldml-court">Colo.</span> <span class="ldml-date">2009</span>)</span></a></span>.</span> <span data-paragraph-id="19575" data-sentence-id="19747" class="ldml-sentence">Moreover, as noted above, in interpreting a municipality's <span class="ldml-entity">enactments</span>, <span class="ldml-entity">we</span> must give effect to the words used, respecting the drafters' choice of language and declining to add or subtract words.</span> <span data-paragraph-id="19575" data-sentence-id="19941" class="ldml-sentence"><span class="ldml-referencechain"><span class="ldml-signal"><i class="ldml-italics">See</i></span> <i class="ldml-italics"><span class="ldml-entity"><a href="/vid/885985135" data-vids="885985135" class="ldml-reference" data-prop-ids="sentence_19747"><span class="ldml-refname">UMB Bank</span></a></span>,</i> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_19747"><span class="ldml-cite">¶ 22</span></a></span></span>, <span class="ldml-entity"><a href="/vid/885985135" data-vids="885985135" class="ldml-reference"><span class="ldml-cite">408 P.3d at 840</span></a></span>.</span> <span data-paragraph-id="19575" data-sentence-id="19978" class="ldml-sentence">Doing so here compels <span class="ldml-entity">us</span> to conclude that Thornton's Charter and Code create separate and distinct <span class="ldml-pagenumber" data-page_type="bracketed_cite" data-val="656" data-vol="521" data-id="pagenumber_20077" data-rep="P.3d"></span> offices of Mayor, on the one hand, and <span class="ldml-entity">Ward Councilmember</span>, on the other.</span> <span data-paragraph-id="19575" data-sentence-id="20151" class="ldml-sentence">Concluding otherwise would require <span class="ldml-entity">us</span> to ignore the myriad distinctions set forth above, which <span class="ldml-entity">we</span> may not do.</span> <span data-paragraph-id="19575" data-sentence-id="20261" class="ldml-sentence"><span class="ldml-referencechain"><span class="ldml-signal"><i class="ldml-italics">See</i></span> <i class="ldml-italics"><span class="ldml-entity"><a href="/vid/895657155" data-vids="895657155" class="ldml-reference" data-prop-ids="sentence_20151"><span class="ldml-refname">Elder</span></a></span>,</i> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_20151"><span class="ldml-cite">¶ 18</span></a></span></span>, <span class="ldml-entity"><a href="/vid/895657155" data-vids="895657155" class="ldml-reference"><span class="ldml-cite">477 P.3d at 698</span></a></span>.</span></p><p data-paragraph-id="20294" class="ldml-paragraph "><span data-paragraph-id="20294" data-sentence-id="20294" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_20294"><span class="ldml-cite">¶34</span></a></span> Our conclusion that the offices of <span class="ldml-entity">Thornton Mayor</span> and of <span class="ldml-entity">Ward Councilmember</span> are separate and distinct is fully consistent with <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_20294"><span class="ldml-cite">section 11</span></a></span>'s above-noted dual purposes.</span></p><p data-paragraph-id="20464" class="ldml-paragraph "><span data-paragraph-id="20464" data-sentence-id="20464" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_20464"><span class="ldml-cite">¶35</span></a></span> As set forth above, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_20464"><span class="ldml-cite">section 11</span></a></span>'s first purpose is <span class="ldml-quotation quote">"to broaden the opportunities for public service."</span></span> <span data-paragraph-id="20464" data-sentence-id="20569" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_20464"><span class="ldml-cite">Colo. Const. art. XVIII, § 11 <span class="ldml-parenthetical">(1)</span></span></a></span>.</span> <span data-paragraph-id="20464" data-sentence-id="20604" class="ldml-sentence">Here, it appears undisputed that <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_20604"><span class="ldml-cite">section 11</span></a></span> does not place a cumulative limit on consecutive service in different local government offices.</span> <span data-paragraph-id="20464" data-sentence-id="20744" class="ldml-sentence">It only prohibits nonjudicial elected officials from serving more than two consecutive terms in the same office.</span> <span data-paragraph-id="20464" data-sentence-id="20857" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_20744"><span class="ldml-cite"><i class="ldml-italics">Id.</i></span></a></span></span> <span data-paragraph-id="20464" data-sentence-id="20861" class="ldml-sentence">In this way, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_20861"><span class="ldml-cite">section 11</span></a></span> mirrors <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_20861"><span class="ldml-cite">article IV, section 1<span class="ldml-parenthetical">(2)</span> of the Colorado Constitution</span></a></span>, which, for the same purpose as <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_20861"><span class="ldml-cite">section 11</span></a></span>, sets term limits on those serving as Governor, Lieutenant Governor, Secretary of State, <span class="ldml-entity">State Treasurer</span>, and <span class="ldml-entity">Attorney General</span>.</span> <span data-paragraph-id="20464" data-sentence-id="21118" class="ldml-sentence">No one appears to dispute that a person could serve two consecutive terms in each of those state offices, even if a person served in each office successively.</span> <span data-paragraph-id="20464" data-sentence-id="21277" class="ldml-sentence">For the same reasons, <span class="ldml-entity">we</span> see no violation of <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_21277"><span class="ldml-cite">section 11</span></a></span>'s intent in allowing a person to serve consecutive terms as Mayor and as <span class="ldml-entity">Ward Councilmember</span>, which <span class="ldml-entity">we</span> have concluded are separate and distinct offices under the Charter.</span></p><p data-paragraph-id="21502" class="ldml-paragraph "><span data-paragraph-id="21502" data-sentence-id="21502" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_21502"><span class="ldml-cite">¶36</span></a></span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_21502"><span class="ldml-cite">Section 11</span></a></span>'s second stated purpose is to <span class="ldml-quotation quote">"assure that elected officials of governments are responsive to the citizens of those governments."</span></span> <span data-paragraph-id="21502" data-sentence-id="21647" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_21502"><span class="ldml-cite">Colo. Const. art. XVIII, § 11 <span class="ldml-parenthetical">(1)</span></span></a></span>.</span> <span data-paragraph-id="21502" data-sentence-id="21682" class="ldml-sentence">Salazar does not argue that our interpretation thwarts this purpose.</span> <span data-paragraph-id="21502" data-sentence-id="21751" class="ldml-sentence">Indeed, when a former <span class="ldml-entity">Ward Councilmember</span> runs for Mayor, <span class="ldml-entity">they</span> must appeal to all four quarters of the populace, rather than just one of the four wards, to succeed in the election.</span> <span data-paragraph-id="21502" data-sentence-id="21931" class="ldml-sentence">This new population of voters includes a majority of voters that the former <span class="ldml-entity">Ward Councilmember</span> has not previously represented.</span> <span data-paragraph-id="21502" data-sentence-id="22058" class="ldml-sentence">And in our view, requiring a former <span class="ldml-entity">Ward Councilmember</span> and new mayoral candidate to appeal to a larger and distinct electorate promotes responsiveness to Thornton voters as a whole.</span></p><p data-paragraph-id="22239" class="ldml-paragraph "><span data-paragraph-id="22239" data-sentence-id="22239" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_22239"><span class="ldml-cite">¶37</span></a></span> In concluding that Thornton's Mayor and <span class="ldml-entity">Ward Councilmembers</span> serve in separate and distinct offices for purposes of <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_22239"><span class="ldml-cite">section 11</span></a></span>'s term limit provisions, <span class="ldml-entity">we</span> are unpersuaded by Salazar's various arguments to the contrary.</span></p><p data-paragraph-id="22460" class="ldml-paragraph "><span data-paragraph-id="22460" data-sentence-id="22460" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_22460"><span class="ldml-cite">¶38</span></a></span> Salazar contends that Thornton's Mayor is <span class="ldml-quotation quote">"functionally nothing more than a first among equals on Council"</span> and that any distinction between the Thornton Mayor and Councilmembers are almost all <span class="ldml-quotation quote">"ceremonial or procedural"</span> and <span class="ldml-quotation quote">"very minor"</span> in comparison with the <span class="ldml-quotation quote">"substantive powers"</span> that the Mayor shares with the Councilmembers.</span> <span data-paragraph-id="22460" data-sentence-id="22792" class="ldml-sentence">If Salazar were correct, however, then many of the above-described Charter and Code provisions would be superfluous.</span> <span data-paragraph-id="22460" data-sentence-id="22909" class="ldml-sentence">For example, there would be no need for the Charter to require different provisions for the elections of the Mayor and of <span class="ldml-entity">Ward Councilmembers</span> or for the filling of vacancies in those positions.</span> <span data-paragraph-id="22460" data-sentence-id="23103" class="ldml-sentence"><span class="ldml-referencechain"><span class="ldml-signal"><i class="ldml-italics">See</i></span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_22909"><span class="ldml-refname">City of Thornton, Colo., Charter</span>, <span class="ldml-cite">§§ 4.3, 4.5</span></a></span></span>.</span> <span data-paragraph-id="22460" data-sentence-id="23154" class="ldml-sentence">Nor would there be a need for the Charter and the Code to refer to the respective positions separately <span class="ldml-parenthetical">(and in the disjunctive)</span> as <span class="ldml-quotation quote">"the office of Mayor"</span> and <span class="ldml-quotation quote">"the office of Councilmembers."</span></span> <span data-paragraph-id="22460" data-sentence-id="23343" class="ldml-sentence"><span class="ldml-referencechain"><i class="ldml-italics"><span class="ldml-signal">See</span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_23154"><span class="ldml-cite">id.</span></a></span></i></span> at <span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference"><span class="ldml-cite">§§ 4.3-4.5</span></a></span><span class="ldml-referenceseparator">;</span> <span class="ldml-entity"><a class="ldml-reference"><span class="ldml-refname">City of Thornton, Colo., Mun. Code</span>, <span class="ldml-cite">ch. 2, art. VI, §§ 2-243<span class="ldml-parenthetical">(a)</span>, 2-244</span></a></span></span>.</span> <span data-paragraph-id="22460" data-sentence-id="23438" class="ldml-sentence">It would likewise be unnecessary for the Charter to provide that the Mayor has the same right to speak and vote at <span class="ldml-entity">City Council</span> meetings as the Ward Councilmembers.</span> <span data-paragraph-id="22460" data-sentence-id="23603" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_23438"><span class="ldml-refname">City of Thornton, Colo., Charter</span>, <span class="ldml-cite">§ 4.8<span class="ldml-parenthetical">(a)</span></span></a></span>.</span> <span data-paragraph-id="22460" data-sentence-id="23647" class="ldml-sentence">And if the offices of Mayor and of <span class="ldml-entity">Ward Councilmember</span> are truly the same, then there would be no basis for paying the Mayor $6,000 more per year than <span class="ldml-entity">Ward Councilmembers</span>, as the Code prescribes.</span> <span data-paragraph-id="22460" data-sentence-id="23842" class="ldml-sentence"><i class="ldml-italics">See</i> <span class="ldml-entity">City of Thornton</span>, Colo., <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_23842"><span class="ldml-cite">Mun. Code, ch. 2, art. II, div. 1, § 2-26</span></a></span>.</span> <span data-paragraph-id="22460" data-sentence-id="23914" class="ldml-sentence">In short, because Salazar's interpretation would render entire <span class="ldml-entity">sections</span> of the Charter superfluous, <span class="ldml-entity">we</span> cannot adopt that interpretation.</span> <span data-paragraph-id="22460" data-sentence-id="24051" class="ldml-sentence"><span class="ldml-referencechain"><span class="ldml-signal"><i class="ldml-italics">See</i></span> <i class="ldml-italics"><span class="ldml-entity"><a href="/vid/895657155" data-vids="895657155" class="ldml-reference" data-prop-ids="sentence_23914"><span class="ldml-refname">Elder</span></a></span>,</i> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_23914"><span class="ldml-cite">¶ 18</span></a></span></span>, <span class="ldml-entity"><a href="/vid/895657155" data-vids="895657155" class="ldml-reference"><span class="ldml-cite">477 P.3d at 698</span></a></span>.</span></p><p data-paragraph-id="24084" class="ldml-paragraph "><span data-paragraph-id="24084" data-sentence-id="24084" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_24084"><span class="ldml-cite">¶39</span></a></span> Salazar also argues that our interpretation means that each <span class="ldml-entity">Ward Councilmember</span> occupies a different office from every other <span class="ldml-entity">Ward Councilmember</span> and therefore every <span class="ldml-entity">Ward Councilmember</span> could serve an unlimited number of terms on the <span class="ldml-entity">City Council</span>, as long as <span class="ldml-entity">they</span> change their residency and obtain election to a new ward seat every two <span class="ldml-pagenumber" data-page_type="bracketed_cite" data-val="657" data-vol="521" data-id="pagenumber_24420" data-rep="P.3d"></span> terms.</span> <span data-paragraph-id="24084" data-sentence-id="24428" class="ldml-sentence">No one disputes, however, that the eight <span class="ldml-entity">Ward Councilmembers</span> all hold the same office for <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_24428"><span class="ldml-cite">section 11</span></a></span> purposes, and nothing in this opinion can reasonably be read to suggest otherwise.</span> <span data-paragraph-id="24084" data-sentence-id="24612" class="ldml-sentence">Rather, <span class="ldml-entity">we</span> distinguish only the office of Mayor, on the one hand, from the office of <span class="ldml-entity">Ward Councilmember</span>, on the other.</span></p><p data-paragraph-id="24730" class="ldml-paragraph "><span data-paragraph-id="24730" data-sentence-id="24730" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_24730"><span class="ldml-cite">¶40</span></a></span> Finally, <span class="ldml-entity">we</span> are unpersuaded by Salazar's reliance on <span class="ldml-entity">the <span class="ldml-entity">Nevada Supreme Court</span>'s decision in <span class="ldml-entity"><a href="/vid/887664002" data-vids="887664002" class="ldml-reference" data-prop-ids="sentence_24730"><i class="ldml-italics"><span class="ldml-refname">Lorton</span>,</i> <span class="ldml-cite">322 P.3d at 1052-59</span></a></span></span>, and on <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_24730"><span class="ldml-refname">Colorado Attorney General Opinion</span> <span class="ldml-cite">No. 00-5</span></a></span>, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_24730"><span class="ldml-refname">Colo. Op. Att'y Gen.</span> <span class="ldml-cite">No. 00-5</span> <span class="ldml-parenthetical">(<span class="ldml-date">July 10, 2000</span>)</span></a></span>, both of which Salazar claims are directly on point.</span></p><p data-paragraph-id="25004" class="ldml-paragraph "><span data-paragraph-id="25004" data-sentence-id="25004" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_25004"><span class="ldml-cite">¶41</span></a></span> As noted above, in <span class="ldml-entity"><a href="/vid/887664002" data-vids="887664002" class="ldml-reference" data-prop-ids="sentence_25004"><i class="ldml-italics"><span class="ldml-refname">Lorton</span>,</i> <span class="ldml-cite">322 P.3d at 1052-53</span></a></span>, <span class="ldml-entity">the court</span> considered a state constitutional provision declaring that <span class="ldml-quotation quote">"<span class="ldml-parenthetical">[n]</span>o person may be elected to any state office or local governing body who has served in that office, or at the expiration of his <span class="ldml-parenthetical">[or her]</span> current term if <span class="ldml-entity">he</span> <span class="ldml-parenthetical">[or <span class="ldml-entity">she</span>]</span> is so serving will have served, 12 years or more."</span></span> <span data-paragraph-id="25004" data-sentence-id="25344" class="ldml-sentence"><span class="ldml-parenthetical">(<span class="ldml-referencechain"><span class="ldml-cert">Quoting</span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_25004"><span class="ldml-cite">Nev. Const. art. XV, § 3 <span class="ldml-parenthetical">(2)</span></span></a></span><span class="ldml-referenceseparator">;</span></span> <span class="ldml-referencenote">alterations in original</span>.)</span></span> <span data-paragraph-id="25004" data-sentence-id="25409" class="ldml-sentence">The question presented was whether, when a local governing body includes multiple positions <span class="ldml-parenthetical">(there, when the city council was comprised of both city council members and the city's mayor)</span>, the above-quoted constitutional provision precluded a person who had served in one position on that local body from then serving additional terms in a different position on that same body.</span> <span data-paragraph-id="25004" data-sentence-id="25786" class="ldml-sentence"><span class="ldml-entity"><a href="/vid/887664002" data-vids="887664002" class="ldml-reference" data-prop-ids="sentence_25409"><span class="ldml-cite"><i class="ldml-italics">Id.</i> at 1053</span></a></span>.</span> <span data-paragraph-id="25004" data-sentence-id="25799" class="ldml-sentence">To decide this, <span class="ldml-entity">the court</span> had to determine whether, in that city, the mayor's position was sufficiently distinct from that of the city council members to preclude application of the constitutional term limit to council members who wished to run for mayor.</span> <span data-paragraph-id="25004" data-sentence-id="26055" class="ldml-sentence"><span class="ldml-entity"><a href="/vid/887664002" data-vids="887664002" class="ldml-reference" data-prop-ids="sentence_25799"><span class="ldml-cite"><i class="ldml-italics">Id.</i> at 1058</span></a></span>.</span> <span data-paragraph-id="25004" data-sentence-id="26068" class="ldml-sentence">Relying on the specific provisions of the applicable city charter, <span class="ldml-entity">the court</span> concluded that it was not and that the mayor and the council members were members of the same <span class="ldml-quotation quote">"local governing body."</span></span> <span data-paragraph-id="25004" data-sentence-id="26263" class="ldml-sentence"><span class="ldml-entity"><a href="/vid/887664002" data-vids="887664002" class="ldml-reference" data-prop-ids="sentence_26068"><span class="ldml-cite"><i class="ldml-italics">Id.</i> at 1058-59</span></a></span>.</span> <span data-paragraph-id="25004" data-sentence-id="26279" class="ldml-sentence">Thus, because <span class="ldml-entity">the state</span> <span class="ldml-entity">constitution</span> precluded a person who had served in one position on a <span class="ldml-quotation quote">"local governing body"</span> from serving additional terms in a different position on that body, term-limited council members were ineligible to be elected mayor.</span> <span data-paragraph-id="25004" data-sentence-id="26528" class="ldml-sentence"><span class="ldml-entity"><a href="/vid/887664002" data-vids="887664002" class="ldml-reference" data-prop-ids="sentence_26279"><span class="ldml-cite"><i class="ldml-italics">Id.</i> at 1059</span></a></span>.</span></p><p data-paragraph-id="26540" class="ldml-paragraph "><span data-paragraph-id="26540" data-sentence-id="26540" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_26540"><span class="ldml-cite">¶42</span></a></span> <i class="ldml-italics"><span class="ldml-entity"><a href="/vid/887664002" data-vids="887664002" class="ldml-reference" data-prop-ids="sentence_26540"><span class="ldml-refname">Lorton</span></a></span>,</i> however, is distinguishable because in concluding that the mayor and city council members were not sufficiently distinct to preclude application of the Nevada term limit provision, <span class="ldml-entity">the <span class="ldml-entity"><a href="/vid/887664002" data-vids="887664002" class="ldml-reference" data-prop-ids="sentence_26540"><span class="ldml-refname"><i class="ldml-italics">Lorton</i></span></a></span> court</span> relied on the specific language of the applicable city charter.</span> <span data-paragraph-id="26540" data-sentence-id="26814" class="ldml-sentence"><span class="ldml-entity"><a href="/vid/887664002" data-vids="887664002" class="ldml-reference" data-prop-ids="sentence_26540"><span class="ldml-cite"><i class="ldml-italics">Id.</i> at 1058-59</span></a></span>.</span> <span data-paragraph-id="26540" data-sentence-id="26830" class="ldml-sentence">Although that language may well be similar in some respects to that in Thornton's Charter, the language of the charter at issue in <span class="ldml-entity"><a href="/vid/887664002" data-vids="887664002" class="ldml-reference" data-prop-ids="sentence_26830"><span class="ldml-refname"><i class="ldml-italics">Lorton</i></span></a></span> is not identical to the language at issue here, and the specific language of Thornton's Charter and Code controls our analysis.</span></p><p data-paragraph-id="27095" class="ldml-paragraph "> <span data-paragraph-id="27095" data-sentence-id="27096" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_27096"><span class="ldml-cite">¶43</span></a></span> As for <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_27096"><span class="ldml-refname">Attorney General Opinion</span> <span class="ldml-cite">No. 00-5</span></a></span>, <span class="ldml-entity">we</span> note, as an initial matter, that <span class="ldml-entity"><span class="ldml-entity">Attorney General</span> Opinions</span>, though entitled to <span class="ldml-quotation quote">"respectful consideration,"</span> are not binding on <span class="ldml-entity">us</span>.</span> <span data-paragraph-id="27095" data-sentence-id="27275" class="ldml-sentence"><span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_27096" data-refglobal="case:coloradocommoncausevmeyerno86sc279758p2d153may16,1988"><i class="ldml-italics"><span class="ldml-refname">Colo. Common Cause v. Meyer</span>,</i> <span class="ldml-cite">758 P.2d 153, 159</span> <span class="ldml-parenthetical">(<span class="ldml-court">Colo.</span> <span class="ldml-date">1988</span>)</span></a></span> <span class="ldml-referenceseparator">;</span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_27096" data-refglobal="case:justusvstate,2014co75"><i class="ldml-italics"><span class="ldml-refname">Justus v. State</span>,</i> <span class="ldml-cite">2014 CO 75</span></a></span>, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_27096"><span class="ldml-cite">¶ 31</span></a></span></span> n.11, <span class="ldml-entity"><a class="ldml-reference" data-refglobal="case:336p3d202,211n11"><span class="ldml-cite">336 P.3d 202, 211 n.11</span></a></span>.</span> <span data-paragraph-id="27095" data-sentence-id="27401" class="ldml-sentence">In any event, on its face, that opinion did not address the specific question presented before <span class="ldml-entity">us</span>.</span> <span data-paragraph-id="27095" data-sentence-id="27500" class="ldml-sentence">Rather, it considered whether <span class="ldml-parenthetical">(1)</span> a term-limited elected official from one district may run for election to the same body from a different district; <span class="ldml-parenthetical">(2)</span> if redistricting creates a new or reconfigured district, whether a term-limited elected official may run for election to the same body from the new or reconfigured district; and <span class="ldml-parenthetical">(3)</span> a term-limited official serving in an at-large seat in an elected body may run for election to a specific seat in that same body.</span> <span data-paragraph-id="27095" data-sentence-id="27965" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_27500" data-refglobal="case:coloopattygenno00-5,at1-2"><span class="ldml-refname">Colo. Op. Att'y Gen.</span> <span class="ldml-cite">No. 00-5</span>, <span class="ldml-cite">at 1-2</span></a></span>.</span> <span data-paragraph-id="27095" data-sentence-id="28004" class="ldml-sentence"><span class="ldml-entity">The Attorney General</span> answered <span class="ldml-quotation quote">"no"</span> to each of these questions, <i class="ldml-italics"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_28004" data-refglobal="case:coloopattygenno00-5,at1-2"><span class="ldml-cite">id.</span></a></span>,</i> which <span class="ldml-entity">we</span> perceive to be analogous to the question of whether a term-limited <span class="ldml-entity">Ward Councilmember</span> in Thornton can move to a different ward and immediately run for election as a <span class="ldml-entity">Ward Councilmember</span> from that ward.</span> <span data-paragraph-id="27095" data-sentence-id="28281" class="ldml-sentence">Consistent with <span class="ldml-entity"><span class="ldml-entity">the Attorney General</span>'s opinion</span>, no one here appears to dispute that this would be impermissible.</span></p><p data-paragraph-id="28393" class="ldml-paragraph "><span data-paragraph-id="28393" data-sentence-id="28393" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_28393"><span class="ldml-cite">¶44</span></a></span> In reaching our conclusion that the offices of Mayor and of <span class="ldml-entity">Ward Councilmember</span> constitute separate and distinct offices for purposes of <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_28393"><span class="ldml-cite">section 11</span></a></span>'s term limit provisions, <span class="ldml-entity">we</span> acknowledge the view of some that a person should not, as a matter of good policy, be permitted to serve two terms as a <span class="ldml-entity">Ward Councilmember</span> and then two terms as Mayor in Thornton.</span> <span data-paragraph-id="28393" data-sentence-id="28752" class="ldml-sentence">For the reasons discussed at length above, however, <span class="ldml-entity">we</span> believe that the plain language of Thornton's Charter and <span class="ldml-pagenumber" data-page_type="bracketed_cite" data-val="658" data-vol="521" data-id="pagenumber_28865" data-rep="P.3d"></span> Code compels this result.</span> <span data-paragraph-id="28393" data-sentence-id="28892" class="ldml-sentence">If the <span class="ldml-entity">City Council</span> or the voters intended otherwise, then <span class="ldml-entity">they</span> are free to amend their Charter or Code so that the operative language effectuates their intent.</span> <span data-paragraph-id="28393" data-sentence-id="29053" class="ldml-sentence"><span class="ldml-entity">We</span>, however, will not impose such <span class="ldml-entity">amendments</span> by judicial fiat.</span> <span data-paragraph-id="28393" data-sentence-id="29116" class="ldml-sentence"><span class="ldml-referencechain"><span class="ldml-signal"><i class="ldml-italics">See</i></span> <span class="ldml-entity"><a href="/vid/901097277" data-vids="901097277" class="ldml-reference" data-prop-ids="sentence_29053"><i class="ldml-italics"><span class="ldml-refname">People v. Weeks</span>,</i> <span class="ldml-cite">2021 CO 75</span></a></span>, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_29053"><span class="ldml-cite">¶ 38</span></a></span></span>, <span class="ldml-entity"><a href="/vid/901097277" data-vids="901097277" class="ldml-reference"><span class="ldml-cite">498 P.3d 142, 154</span></a></span>.</span></p></div></div><div class="ldml-section"><section class="ldml-heading content__heading content__heading--depth1" data-ordinal_end="3" data-specifier="III" data-ordinal_start="3" data-parsed="true" data-id="heading_29173" data-format="upper_case_roman_numeral" data-content-heading-label="III. Conclusion" data-types="conclusion" data-confidences="very_high" id="heading_29173" data-value="III. Conclusion"><span data-paragraph-id="29173" class="ldml-paragraph "><b class="ldml-bold"><span data-paragraph-id="29173" data-sentence-id="29173" class="ldml-sentence">III.</span> <span data-paragraph-id="29173" data-sentence-id="29178" class="ldml-sentence">Conclusion</span></b></span></section><p data-paragraph-id="29188" class="ldml-paragraph "><span data-paragraph-id="29188" data-sentence-id="29188" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_29188"><span class="ldml-cite">¶45</span></a></span> For these reasons, <span class="ldml-entity">we</span> conclude that under the plain and unambiguous terms of both the Thornton Charter and Code, the offices of Mayor and of <span class="ldml-entity">Ward Councilmember</span> in the <span class="ldml-entity">City of Thornton</span> constitute separate and distinct offices for purposes of <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_29188"><span class="ldml-cite">section 11</span></a></span>'s term limitations.</span> <span data-paragraph-id="29188" data-sentence-id="29464" class="ldml-sentence">Accordingly, on the undisputed <span class="ldml-entity">facts before <span class="ldml-entity">us</span></span>, <span class="ldml-entity">we</span> further conclude that Kulmann will soon complete her first term as <span class="ldml-entity">Thornton Mayor</span>, and, consistent with <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_29464"><span class="ldml-cite">section 11</span></a></span>, <span class="ldml-entity">she</span> may seek one more consecutive term in that office.</span></p><p data-paragraph-id="29685" class="ldml-paragraph "><span data-paragraph-id="29685" data-sentence-id="29685" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_29685"><span class="ldml-cite">¶46</span></a></span> <span class="ldml-entity">We</span> therefore reverse the judgment of <span class="ldml-entity">the district court</span> as to its conclusion that the offices of Mayor and of Councilmember are one and the same for purposes of <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_29685"><span class="ldml-cite">section 11</span></a></span>, and <span class="ldml-entity">we</span> need not reach the second issue on which <span class="ldml-entity">we</span> granted certiorari.</span></p><p data-paragraph-id="29932" class="ldml-paragraph "><span data-paragraph-id="29932" data-sentence-id="29932" class="ldml-sentence"><span class="ldml-entity">JUSTICE <span class="ldml-entity">HOOD</span></span>, <span class="ldml-entity">joined by JUSTICE <span class="ldml-entity">BERKENKOTTER</span></span>, dissented.</span></p><p data-paragraph-id="29988" class="ldml-paragraph "><span data-paragraph-id="29988" data-sentence-id="29988" class="ldml-sentence"><span class="ldml-entity">JUSTICE <span class="ldml-entity">HOOD</span></span>, <span class="ldml-entity">joined by JUSTICE <span class="ldml-entity">BERKENKOTTER</span></span>, dissenting.</span></p><p data-paragraph-id="30045" class="ldml-paragraph "><span data-paragraph-id="30045" data-sentence-id="30045" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_30045"><span class="ldml-cite">¶47</span></a></span> Colorado's many municipalities <span class="ldml-parenthetical">(and other political <span class="ldml-entity">subdivisions</span>)</span> have their own charters, structures, and procedures, vesting their elected officials with diverse powers and responsibilities.</span> <span data-paragraph-id="30045" data-sentence-id="30242" class="ldml-sentence">But <span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_30242"><span class="ldml-cite">article XVIII, section 11 of the Colorado Constitution</span></a></span> <span class="ldml-parenthetical">(<span class="ldml-quotation quote">"<span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_30242"><span class="ldml-cite">section 11</span></a></span>"</span>)</span></span> sets a statewide requirement: no person may serve more than two consecutive terms <span class="ldml-quotation quote">"in office"</span> unless their constituents vote otherwise.</span> <span data-paragraph-id="30045" data-sentence-id="30452" class="ldml-sentence">No such vote occurred here.</span></p><p data-paragraph-id="30479" class="ldml-paragraph "><span data-paragraph-id="30479" data-sentence-id="30479" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_30479"><span class="ldml-cite">¶48</span></a></span> Instead, the majority eliminates the need.</span> <span data-paragraph-id="30479" data-sentence-id="30526" class="ldml-sentence">It simply applies the word <span class="ldml-quotation quote">"office"</span> to the mayoral seat on the <span class="ldml-entity">Thornton City Council</span>, rather than applying it to the governmental body of which that seat is a part.</span> <span data-paragraph-id="30479" data-sentence-id="30691" class="ldml-sentence">Because I believe that this conclusion runs afoul of longstanding, voter-approved term limits in <span class="ldml-entity">the case at bar</span> and threatens to breed confusion in the multitude of <span class="ldml-entity">cases</span> potentially yet to come, I respectfully dissent.</span></p><div class="ldml-section"><section class="ldml-heading content__heading content__heading--depth2" data-id="heading_30911" data-specifier="I" data-ordinal_start="1" data-parsed="true" data-format="upper_case_roman_numeral" data-ordinal_end="1" data-content-heading-label="I. The Definition of &quot;In Office&quot;" id="heading_30911" data-value="I. The Definition of &quot;In Office&quot;"><span data-paragraph-id="30911" class="ldml-paragraph "><b class="ldml-bold"><span data-paragraph-id="30911" data-sentence-id="30911" class="ldml-sentence">I.</span> <span data-paragraph-id="30911" data-sentence-id="30914" class="ldml-sentence">The Definition of <span class="ldml-quotation quote">"In Office"</span></span></b></span></section><p data-paragraph-id="30943" class="ldml-paragraph "><span data-paragraph-id="30943" data-sentence-id="30943" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_30943"><span class="ldml-cite">¶49</span></a></span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_30943"><span class="ldml-cite">Section 11</span></a></span> provides that <span class="ldml-quotation quote">"no nonjudicial elected official of any ... city ... shall serve more than two consecutive terms in office."</span></span> <span data-paragraph-id="30943" data-sentence-id="31081" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_30943"><span class="ldml-cite">Colo. Const. art. XVIII, § 11 <span class="ldml-parenthetical">(1)</span></span></a></span>.</span> <span data-paragraph-id="30943" data-sentence-id="31116" class="ldml-sentence">The majority concludes that <span class="ldml-quotation quote">"in office"</span> refers to a specific position held by a nonjudicial elected official <span class="ldml-parenthetical">(rather than to a larger governing body)</span> <span class="ldml-quotation quote">"plainly and unambiguously."</span></span> <span data-paragraph-id="30943" data-sentence-id="31295" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_31116"><span class="ldml-cite">Maj. op. ¶ 21</span></a></span>.</span> <span data-paragraph-id="30943" data-sentence-id="31310" class="ldml-sentence">As the majority also observes, however, a provision is ambiguous when it is reasonably susceptible of multiple interpretations.</span> <span data-paragraph-id="30943" data-sentence-id="31438" class="ldml-sentence"><span class="ldml-referencechain"><i class="ldml-italics"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_31310"><span class="ldml-cite">Id.</span></a></span><span class="ldml-referenceseparator">;</span> <span class="ldml-signal">see</span></i> <span class="ldml-entity"><a href="/vid/895657155" data-vids="895657155" class="ldml-reference" data-prop-ids="sentence_31310"><i class="ldml-italics"><span class="ldml-refname">Elder v. Williams</span>,</i> <span class="ldml-cite">2020 CO 88</span></a></span>, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_31310"><span class="ldml-cite">¶ 18</span></a></span></span>, <span class="ldml-entity"><a href="/vid/895657155" data-vids="895657155" class="ldml-reference"><span class="ldml-cite">477 P.3d 694, 698</span></a></span>.</span> <span data-paragraph-id="30943" data-sentence-id="31503" class="ldml-sentence">And here, as <span class="ldml-entity">the district court</span> concluded and <span class="ldml-entity">petitioner</span> acknowledges, service <span class="ldml-quotation quote">"in office"</span> could be reasonably interpreted to mean serving on a local governmental body.</span></p><p data-paragraph-id="31671" class="ldml-paragraph "><span data-paragraph-id="31671" data-sentence-id="31671" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_31671"><span class="ldml-cite">¶50</span></a></span> After all, <span class="ldml-entity">the state</span> <span class="ldml-entity">constitution</span> doesn't define the term, and dictionaries point to both interpretations.</span> <span data-paragraph-id="31671" data-sentence-id="31782" class="ldml-sentence">For example, Merriam-Webster defines <span class="ldml-quotation quote">"office"</span> as both <span class="ldml-quotation quote">"a special duty, charge, or position conferred by an exercise of governmental authority and for a public purpose,"</span> which would support the majority's <span class="ldml-quotation quote">"specific office"</span> interpretation, and as <span class="ldml-quotation quote">"a major administrative unit in some governments,"</span> which would support <span class="ldml-entity">respondent</span>'s governing body interpretation.</span> <span data-paragraph-id="31671" data-sentence-id="32142" class="ldml-sentence"><i class="ldml-italics">See, e.g.,</i> Merriam-Webster Dictionary, https://www.merriam-webster.com/dictionary/ <i class="ldml-italics">office</i> <span class="ldml-parenthetical">[https://perma.cc/HV74-RHUT]</span>.</span></p><p data-paragraph-id="32261" class="ldml-paragraph "><span data-paragraph-id="32261" data-sentence-id="32261" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_32261"><span class="ldml-cite">¶51 A</span></a></span> quick comparison to other term-limit provisions is also instructive.</span> <span data-paragraph-id="32261" data-sentence-id="32336" class="ldml-sentence">In Colorado, the legislative term-limit provision restricts service within the <span class="ldml-quotation quote">"senate"</span> or <span class="ldml-quotation quote">"house of representatives,"</span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_32336"><span class="ldml-cite">Colo. Const. art. V, § 3 <span class="ldml-parenthetical">(2)</span></span></a></span>, and the statewide term-limit provision for the governor and other executive-branch offices bars <span class="ldml-quotation quote">"more than two consecutive terms in <i class="ldml-italics">such</i> office,"</span> <span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_32336"><span class="ldml-cite">Colo. Const. art. IV, § 1 <span class="ldml-parenthetical">(2)</span></span></a></span> <span class="ldml-parenthetical">(<span class="ldml-referencenote">emphasis added</span>)</span></span>.</span> <span data-paragraph-id="32261" data-sentence-id="32679" class="ldml-sentence">In <span class="ldml-referencechain"><span class="ldml-signal">contrast</span>, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_32679"><span class="ldml-cite">section 11</span></a></span></span> has no qualifier narrowing its reach to an expressly identified governmental body or a particular seat within that body.</span> <span data-paragraph-id="32261" data-sentence-id="32824" class="ldml-sentence">So <span class="ldml-entity">we</span>'re left to surmise what constitutes the most plausible reading.</span></p><p data-paragraph-id="32893" class="ldml-paragraph "><span data-paragraph-id="32893" data-sentence-id="32893" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_32893"><span class="ldml-cite">¶52</span></a></span> Because it is reasonably susceptible of more than one interpretation, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_32893"><span class="ldml-cite">section 11</span></a></span> is <span class="ldml-pagenumber" data-page_type="bracketed_cite" data-val="659" data-vol="521" data-id="pagenumber_32981" data-rep="P.3d"></span> ambiguous.</span> <span data-paragraph-id="32893" data-sentence-id="32993" class="ldml-sentence">And because it is ambiguous, <span class="ldml-entity">we</span> must turn to other interpretive aids.</span> <span data-paragraph-id="32893" data-sentence-id="33063" class="ldml-sentence">Such aids include statements of the voters' overarching intent and the possible consequences of different interpretations.</span> <span data-paragraph-id="32893" data-sentence-id="33186" class="ldml-sentence"><span class="ldml-referencechain"><span class="ldml-signal"><i class="ldml-italics">See</i></span> <span class="ldml-entity"><a href="/vid/895657155" data-vids="895657155" class="ldml-reference" data-prop-ids="sentence_33063"><span class="ldml-refname"><i class="ldml-italics">Elder</i></span></a></span> , <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_33063"><span class="ldml-cite">¶ 18</span></a></span></span>, <span class="ldml-entity"><a href="/vid/895657155" data-vids="895657155" class="ldml-reference"><span class="ldml-cite">477 P.3d at 698</span></a></span>.</span> <span data-paragraph-id="32893" data-sentence-id="33221" class="ldml-sentence">To discern the voters' intent, <span class="ldml-entity">we</span> consider <span class="ldml-quotation quote">"relevant materials such as the ballot title and submission clause and the biennial <span class="ldml-quotation quote">‘Bluebook,’</span> which is the analysis of ballot proposals prepared by <span class="ldml-entity">the legislature</span>."</span></span> <span data-paragraph-id="32893" data-sentence-id="33432" class="ldml-sentence"><span class="ldml-referencechain"><span class="ldml-entity"><a href="/vid/894616966" data-vids="894616966" class="ldml-reference" data-prop-ids="sentence_33221"><i class="ldml-italics"><span class="ldml-refname">Davidson v. Sandstrom</span>,</i> <span class="ldml-cite">83 P.3d 648, 655</span> <span class="ldml-parenthetical">(<span class="ldml-court">Colo.</span> <span class="ldml-date">2004</span>)</span></a></span> <span class="ldml-parenthetical">(<span class="ldml-cert">quoting</span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_33221" data-refglobal="case:inresubmissionofinterrogatoriesonhousebill99–1325,979p2d549,555n4colo1999"><i class="ldml-italics"><span class="ldml-refname">In re Submission of Interrogatories on House Bill 99-1325</span>,</i> <span class="ldml-cite">979 P.2d 549, 554</span> <span class="ldml-parenthetical">(<span class="ldml-court">Colo.</span> <span class="ldml-date">1999</span>)</span></a></span> )</span></span>.</span> <span data-paragraph-id="32893" data-sentence-id="33587" class="ldml-sentence"><span class="ldml-entity">We</span> strive to <span class="ldml-quotation quote">"construe <span class="ldml-entity">the amendment</span> in light of the objective sought to be achieved and the mischief to be avoided,"</span> <span class="ldml-referencechain"><span class="ldml-entity"><a href="/vid/894616966" data-vids="894616966" class="ldml-reference" data-prop-ids="sentence_33587"><span class="ldml-cite"><i class="ldml-italics">id.</i> at 655</span></a></span> <span class="ldml-parenthetical">(<span class="ldml-cert">quoting</span> <span class="ldml-entity"><a href="/vid/886297877" data-vids="886297877" class="ldml-reference" data-prop-ids="sentence_33587"><i class="ldml-italics"><span class="ldml-refname">Zaner v. City of Brighton</span>,</i> <span class="ldml-cite">917 P.2d 280, 283</span> <span class="ldml-parenthetical">(<span class="ldml-court">Colo.</span> <span class="ldml-date">1996</span>)</span></a></span> )</span></span>, and avoid engaging <span class="ldml-quotation quote">"in a narrow or technical construction of the initiated <span class="ldml-entity">amendment</span> if doing so would contravene the intent of the electorate,"</span> <span class="ldml-entity"><a href="/vid/894616966" data-vids="894616966" class="ldml-reference" data-prop-ids="sentence_33587"><span class="ldml-cite"><i class="ldml-italics">id.</i> at 654</span></a></span>.</span></p><p data-paragraph-id="33942" class="ldml-paragraph "><span data-paragraph-id="33942" data-sentence-id="33942" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_33942"><span class="ldml-cite">¶53</span></a></span> In searching for the intent of the electorate here, <span class="ldml-entity">we</span> needn't look far.</span> <span data-paragraph-id="33942" data-sentence-id="34019" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_34019"><span class="ldml-cite">Section 11</span></a></span> begins by telling <span class="ldml-entity">us</span> its purpose: <span class="ldml-quotation quote">"to broaden the opportunities for public service and to assure that elected officials of governments are responsive to the citizens of those governments."</span></span> <span data-paragraph-id="33942" data-sentence-id="34219" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_34019"><span class="ldml-cite">Colo. Const. art. XVIII, § 11 <span class="ldml-parenthetical">(1)</span></span></a></span>.</span> <span data-paragraph-id="33942" data-sentence-id="34254" class="ldml-sentence">By mandating turnover, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_34254"><span class="ldml-cite">section 11</span></a></span> seeks to increase vacancies and, by extension, the availability of public service opportunities for <span class="ldml-entity">people</span> with fresh perspectives.</span></p><p data-paragraph-id="34419" class="ldml-paragraph "><span data-paragraph-id="34419" data-sentence-id="34419" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_34419"><span class="ldml-cite">¶54</span></a></span> In arguing that its interpretation meets this purpose, the majority spotlights the fact that the mayor must seek support from all wards, not just one.</span> <span data-paragraph-id="34419" data-sentence-id="34574" class="ldml-sentence">But in the <span class="ldml-entity">1994</span> Bluebook, advocates of <span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_34574"><span class="ldml-cite">section 11</span></a></span> <span class="ldml-parenthetical">(<span class="ldml-embeddedsentence"><span class="ldml-entity">the people</span> who persuaded a majority of statewide voters</span>)</span></span> argued that elections alone are insufficient to guarantee responsive elected officials; long-term political entrenchment, <span class="ldml-entity">they</span> insisted, leaves elected officials unmoored from their constituents.</span> <span data-paragraph-id="34419" data-sentence-id="34878" class="ldml-sentence"><span class="ldml-entity">Legis. Council</span>, Colo. Gen. Assemb., <i class="ldml-italics"><span class="ldml-entity">An Analysis of <span class="ldml-entity">1994</span></span> Ballot Proposals</i> 54-58 <span class="ldml-parenthetical">(<span class="ldml-entity">1994</span>)</span> <span class="ldml-parenthetical">(<span class="ldml-quotation quote">"Bluebook"</span>)</span>, https://www.sos.state.co.<span class="ldml-entity">us</span>/pubs/elections/Results/BlueBooks/<span class="ldml-entity">1994</span>BlueBook.pdf <span class="ldml-parenthetical">[https://perma.cc/TPA8-8CLP]</span>.</span></p><p data-paragraph-id="35085" class="ldml-paragraph "><span data-paragraph-id="35085" data-sentence-id="35085" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_35085"><span class="ldml-cite">¶55</span></a></span> These sources urge a broader construction of <span class="ldml-quotation quote">"in office"</span> than the majority offers, and the consequences of its decision further demonstrate why.</span></p><p data-paragraph-id="35233" class="ldml-paragraph "><span data-paragraph-id="35233" data-sentence-id="35233" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_35233"><span class="ldml-cite">¶56</span></a></span> The majority's holding allows an individual to serve as a councilmember in perpetuity.</span> <span data-paragraph-id="35233" data-sentence-id="35324" class="ldml-sentence">If reelected, Kulmann will serve fourteen years on the <span class="ldml-entity">City Council</span> by the end of her term <span class="ldml-parenthetical">(six years longer than the two four-year terms contemplated by <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_35324"><span class="ldml-cite">section 11</span></a></span> )</span>.</span> <span data-paragraph-id="35233" data-sentence-id="35492" class="ldml-sentence">By alternating between eight-year stints as a ward-elected and an at-large councilmember/mayor, an individual could hold the same legislative position in the <span class="ldml-entity">city of Thornton</span> forever.</span> <span data-paragraph-id="35233" data-sentence-id="35676" class="ldml-sentence">Two residents from the same ward could even swap places between the at-large-mayor and ward-elected-councilmember positions every eight years, foreclosing public-service opportunities for the rest of the city and enabling select residents to serve on the <span class="ldml-entity">City Council</span> for life.</span> <span data-paragraph-id="35233" data-sentence-id="35954" class="ldml-sentence">Of course, the officials would still have to win election each time, but one of the chief concerns of <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_35954"><span class="ldml-cite">section 11</span></a></span> proponents was that incumbents rarely lose reelection.</span> <span data-paragraph-id="35233" data-sentence-id="36122" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_35954"><span class="ldml-refname">Bluebook</span>, <span class="ldml-cite"><i class="ldml-italics">supra</i></span> <span class="ldml-cite">¶ 54</span>, <span class="ldml-cite">at 52-56</span></a></span>.</span></p><p data-paragraph-id="36153" class="ldml-paragraph "><span data-paragraph-id="36153" data-sentence-id="36153" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_36153"><span class="ldml-cite">¶57</span></a></span> Moreover, by concluding that the mayor and the councilmembers serve in distinct offices, the majority shifts <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_36153"><span class="ldml-cite">section 11</span></a></span>'s default setting in favor of term limits to a preference against them, in clear opposition to the voters' intent.</span> <span data-paragraph-id="36153" data-sentence-id="36392" class="ldml-sentence">The majority states that if Thornton voters intend to hold the mayor and city councilmembers to the same term limits, <span class="ldml-entity">they</span> <span class="ldml-quotation quote">"are free to amend their Charter or Code so that the operative language effectuates their intent."</span></span> <span data-paragraph-id="36153" data-sentence-id="36614" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_36392"><span class="ldml-cite">Maj. op. ¶ 44</span></a></span>.</span> <span data-paragraph-id="36153" data-sentence-id="36629" class="ldml-sentence">This flips <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_36629"><span class="ldml-cite">section 11</span></a></span>'s opt-out provision on its head.</span> <span data-paragraph-id="36153" data-sentence-id="36684" class="ldml-sentence">As written, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_36684"><span class="ldml-cite">section 11</span></a></span> imposes term limits that voters may opt out of by voting to <span class="ldml-quotation quote">"lengthen, shorten or eliminate"</span> them.</span> <span data-paragraph-id="36153" data-sentence-id="36806" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_36684"><span class="ldml-cite">Colo. Const. art. XVIII, § 11 <span class="ldml-parenthetical">(2)</span></span></a></span>.</span> <span data-paragraph-id="36153" data-sentence-id="36841" class="ldml-sentence">But the majority's holding requires Thornton voters to opt back in to those constitutionally imposed term limits.</span></p><p data-paragraph-id="36954" class="ldml-paragraph "><span data-paragraph-id="36954" data-sentence-id="36954" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_36954"><span class="ldml-cite">¶58</span></a></span> In addition, even if <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_36954"><span class="ldml-cite">section 11</span></a></span> treated the mayoral and councilmember positions as distinct when considered in isolation, <span class="ldml-entity">we</span> should not lose sight of the fact that the mayor of Thornton is <i class="ldml-italics">also</i> a councilmember for the duration of her term.</span> <span data-paragraph-id="36954" data-sentence-id="37198" class="ldml-sentence">The Thornton Charter says as much when it establishes that its <span class="ldml-entity">City Council</span> consists of <span class="ldml-quotation quote">"nine <span class="ldml-parenthetical">(9)</span> members, one of whom shall serve as Mayor."</span></span> <span data-paragraph-id="36954" data-sentence-id="37340" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_37198"><span class="ldml-refname">City of Thornton, Colo., Charter</span>, <span class="ldml-cite">§ 4.1</span></a></span>.</span> <span data-paragraph-id="36954" data-sentence-id="37381" class="ldml-sentence">Mayor Kulmann has served as a councilmember <span class="ldml-pagenumber" data-page_type="bracketed_cite" data-val="660" data-vol="521" data-id="pagenumber_37425" data-rep="P.3d"></span> for more than two terms.</span> <span data-paragraph-id="36954" data-sentence-id="37451" class="ldml-sentence">Therefore, if <span class="ldml-quotation quote">"in office"</span> refers to the Council, <span class="ldml-entity">she</span> loses.</span></p><p data-paragraph-id="37510" class="ldml-paragraph "><span data-paragraph-id="37510" data-sentence-id="37510" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_37510"><span class="ldml-cite">¶59</span></a></span> The majority rejects this interpretation —that the mayor is simply one of the councilmembers— in part because of the word <span class="ldml-quotation quote">"or"</span> in the Charter's other provisions, such as those detailing the election qualifications for <span class="ldml-quotation quote">"the office of Mayor <i class="ldml-italics">or</i> Councilmember,"</span> which the majority views as creating mutually exclusive positions.</span> <span data-paragraph-id="37510" data-sentence-id="37839" class="ldml-sentence"><span class="ldml-referencechain"><span class="ldml-signal"><i class="ldml-italics">See</i></span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_37510"><span class="ldml-cite">Maj. op. ¶ 32</span></a></span><span class="ldml-referenceseparator">;</span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_37510"><span class="ldml-refname">City of Thornton, Colo., Charter</span>, <span class="ldml-cite">§ 4.4</span></a></span></span>.</span> <span data-paragraph-id="37510" data-sentence-id="37899" class="ldml-sentence">However, a disjunctive <span class="ldml-quotation quote">"or"</span> is not always mutually exclusive.</span> <span data-paragraph-id="37510" data-sentence-id="37961" class="ldml-sentence">The word can be either inclusive or exclusive depending on how it is used, and while both interpretations can be reasonable, the majority's mutually exclusive interpretation is the rarer usage.<a href="#note-fr_1" class="ldml-noteanchor" id="note-ref-fr_1">1</a></span> <span data-paragraph-id="37510" data-sentence-id="38155" class="ldml-sentence">In fact, <span class="ldml-entity"><a href="/vid/889079600" data-vids="889079600" class="ldml-reference" data-prop-ids="sentence_38155"><i class="ldml-italics"><span class="ldml-refname">People v. Valenzuela</span>,</i> <span class="ldml-cite">216 P.3d 588</span> <span class="ldml-parenthetical">(<span class="ldml-court">Colo.</span> <span class="ldml-date">2009</span>)</span></a></span>, cited by the majority, makes the point.</span> <span data-paragraph-id="37510" data-sentence-id="38253" class="ldml-sentence">There, <span class="ldml-entity">this court</span> confirmed that <span class="ldml-entity">a statute</span> criminalizing the <span class="ldml-quotation quote">"unlawful distribution, manufacturing, dispensing, sale, or possession of a controlled substance"</span> constituted a <i class="ldml-italics">single</i> offense, no matter if <span class="ldml-entity">the defendant</span> committed just one of those actions or several.</span> <span data-paragraph-id="37510" data-sentence-id="38517" class="ldml-sentence"><span class="ldml-referencechain"><span class="ldml-entity"><a href="/vid/889079600" data-vids="889079600" class="ldml-reference" data-prop-ids="sentence_38253"><span class="ldml-cite"><i class="ldml-italics">Id.</i> at 589-92</span></a></span> <span class="ldml-parenthetical">(<span class="ldml-cert">quoting</span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_38253"><span class="ldml-cite">§ 18-1.3-401<span class="ldml-parenthetical">(10)</span><span class="ldml-parenthetical">(b)</span>, C.R.S.</span> <span class="ldml-parenthetical">(<span class="ldml-date">2008</span>)</span></a></span> )</span></span>.</span> <span data-paragraph-id="37510" data-sentence-id="38578" class="ldml-sentence"><span class="ldml-entity"><a href="/vid/889417133" data-vids="889417133" class="ldml-reference" data-prop-ids="sentence_38578"><i class="ldml-italics"><span class="ldml-refname">People v. Abiodun</span>,</i> <span class="ldml-cite">111 P.3d 462, 468</span> <span class="ldml-parenthetical">(<span class="ldml-court">Colo.</span> <span class="ldml-date">2005</span>)</span></a></span>, <span class="ldml-entity">a case</span> cited in <i class="ldml-italics"><span class="ldml-entity"><a href="/vid/889079600" data-vids="889079600" class="ldml-reference" data-prop-ids="sentence_38578"><span class="ldml-refname">Valenzuela</span></a></span>,</i> notes that someone manufacturing a drug must <i class="ldml-italics">also</i> possess it at some point.</span> <span data-paragraph-id="37510" data-sentence-id="38733" class="ldml-sentence">Even though <span class="ldml-entity">the statute</span> criminalizes possession <i class="ldml-italics">or</i> manufacture, one clearly includes the other.</span> <span data-paragraph-id="37510" data-sentence-id="38829" class="ldml-sentence">Similarly, in this context, <span class="ldml-entity">we</span> should interpret the word <span class="ldml-quotation quote">"or"</span> inclusively because the Charter already confirms that the mayoral position includes a seat on the <span class="ldml-entity">City Council</span>.</span> <span data-paragraph-id="37510" data-sentence-id="39003" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_38829"><span class="ldml-refname">City of Thornton, Colo., Charter</span>, <span class="ldml-cite">§ 4.1</span></a></span>.</span> <span data-paragraph-id="37510" data-sentence-id="39044" class="ldml-sentence">Nothing in Thornton's Charter or <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_39044"><span class="ldml-cite">section 11</span></a></span> indicates that the two positions would constitute mutually exclusive offices.</span></p><p data-paragraph-id="39165" class="ldml-paragraph "><span data-paragraph-id="39165" data-sentence-id="39165" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_39165"><span class="ldml-cite">¶60</span></a></span> The majority's interpretation is also incongruous with other government positions where a single person occupies two offices simultaneously.</span> <span data-paragraph-id="39165" data-sentence-id="39310" class="ldml-sentence">The speaker of the Colorado House of Representatives has additional responsibilities, but the speaker is still a representative.</span> <span data-paragraph-id="39165" data-sentence-id="39439" class="ldml-sentence">The chief justice of the <span class="ldml-entity">Colorado Supreme Court</span> has additional duties, but the chief justice is still a justice.</span> <span data-paragraph-id="39165" data-sentence-id="39552" class="ldml-sentence">In these situations, a single government official occupies two positions simultaneously.</span> <span data-paragraph-id="39165" data-sentence-id="39641" class="ldml-sentence"><span class="ldml-referencechain"><i class="ldml-italics"><span class="ldml-signal">See, e.g.</span>,</i> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="embeddedsentence_39679,sentence_39552"><span class="ldml-cite">Colo. Const. art. VI, § 5</span></a></span> <span class="ldml-parenthetical">(<span class="ldml-embeddedsentence">dictating that while the chief justice of our <span class="ldml-entity">court</span> is the <span class="ldml-quotation quote">"executive head of the judicial system"</span> and appoints the chief judges in each judicial district, the chief justice is still one of not fewer than seven justices constitutionally required</span>)</span></span>.</span></p><p data-paragraph-id="39926" class="ldml-paragraph "><span data-paragraph-id="39926" data-sentence-id="39926" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_39926"><span class="ldml-cite">¶61</span></a></span> The majority's opinion not only yields potentially perverse results in Thornton, it creates a recipe for statewide confusion.</span> <span data-paragraph-id="39926" data-sentence-id="40056" class="ldml-sentence">I turn to this concern now.</span></p></div><div class="ldml-section"><section class="ldml-heading content__heading content__heading--depth2" data-id="heading_40083" data-specifier="II" data-ordinal_start="2" data-parsed="true" data-format="upper_case_roman_numeral" data-ordinal_end="2" data-content-heading-label="II. Differentiating Offices" id="heading_40083" data-value="II. Differentiating Offices"><span data-paragraph-id="40083" class="ldml-paragraph "><b class="ldml-bold"><span data-paragraph-id="40083" data-sentence-id="40083" class="ldml-sentence">II.</span> <span data-paragraph-id="40083" data-sentence-id="40087" class="ldml-sentence">Differentiating Offices</span></b></span></section><p data-paragraph-id="40110" class="ldml-paragraph "><span data-paragraph-id="40110" data-sentence-id="40110" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_40110"><span class="ldml-cite">¶62</span></a></span> If all of Colorado's nearly 4,000 local governments used the same structure, the majority's interpretation would provide clarity across <span class="ldml-entity">the state</span>.</span> <span data-paragraph-id="40110" data-sentence-id="40261" class="ldml-sentence">Instead, Colorado's thousands of local governments are remarkably diverse.</span> <span data-paragraph-id="40110" data-sentence-id="40336" class="ldml-sentence">While the majority's opinion resolves Thornton's dispute, it leaves far more questions than answers for other political <span class="ldml-entity">subdivisions</span>.</span></p><div class="ldml-section"><section class="ldml-heading content__heading content__heading--depth3" data-id="heading_40469" data-specifier="A" data-ordinal_start="1" data-parsed="true" data-format="upper_case_letters" data-ordinal_end="1" data-content-heading-label="A. The Majority's Multi-Factor Test" id="heading_40469" data-value="A. The Majority's Multi-Factor Test"><span data-paragraph-id="40469" class="ldml-paragraph "><b class="ldml-bold"><span data-paragraph-id="40469" data-sentence-id="40469" class="ldml-sentence">A.</span> <span data-paragraph-id="40469" data-sentence-id="40472" class="ldml-sentence">The Majority's Multi-Factor Test</span></b></span></section><p data-paragraph-id="40504" class="ldml-paragraph "><span data-paragraph-id="40504" data-sentence-id="40504" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_40504"><span class="ldml-cite">¶63</span></a></span> The majority seems to rely on several considerations to determine what constitutes an <span class="ldml-quotation quote">"office"</span> for <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_40504"><span class="ldml-cite">section 11</span></a></span> purposes, essentially conducting a broadly inapplicable and Thornton-specific multi-factor test.</span> <span data-paragraph-id="40504" data-sentence-id="40715" class="ldml-sentence">As I read it, the majority's seemingly non-exclusive factors are: <span class="ldml-parenthetical">(1)</span> elections and constituents, <span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference"><span class="ldml-cite">Maj. op. ¶ 26</span></a></span><span class="ldml-referenceseparator">;</span></span> <span class="ldml-parenthetical">(2)</span> distinct classifications in the <span class="ldml-pagenumber" data-page_type="bracketed_cite" data-val="661" data-vol="521" data-id="pagenumber_40864" data-rep="P.3d"></span> governing document, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_40715"><span class="ldml-cite"><i class="ldml-italics">id.</i></span></a></span> <span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference"><span class="ldml-cite">at ¶¶ 31-32</span></a></span><span class="ldml-referenceseparator">;</span></span> <span class="ldml-parenthetical">(3)</span> differences in powers, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_40715"><span class="ldml-cite"><i class="ldml-italics">id.</i></span></a></span> <span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference"><span class="ldml-cite">at ¶¶ 28-30</span></a></span><span class="ldml-referenceseparator">;</span></span> <span class="ldml-parenthetical">(4)</span> vacancy procedures, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_40715"><span class="ldml-cite"><i class="ldml-italics">id.</i></span></a></span> <span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference"><span class="ldml-cite">at ¶ 27</span></a></span><span class="ldml-referenceseparator">;</span></span> and <span class="ldml-parenthetical">(5)</span> disparate salaries, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_40715"><span class="ldml-cite"><i class="ldml-italics">id.</i></span></a></span> <span class="ldml-entity"><a class="ldml-reference"><span class="ldml-cite">at ¶ 38</span></a></span>.</span> <span data-paragraph-id="40504" data-sentence-id="41024" class="ldml-sentence">After analyzing these factors, the majority concludes that Thornton's mayor occupies a distinct office from the other councilmembers.</span> <span data-paragraph-id="40504" data-sentence-id="41158" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_41024"><span class="ldml-cite"><i class="ldml-italics">Id.</i></span></a></span> <span class="ldml-entity"><a class="ldml-reference"><span class="ldml-cite">at ¶¶ 34, 38</span></a></span>.</span></p><p data-paragraph-id="41175" class="ldml-paragraph "><span data-paragraph-id="41175" data-sentence-id="41175" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_41175"><span class="ldml-cite">¶64</span></a></span> However, the majority doesn't say whether any factors are dispositive, nor does it instruct future <span class="ldml-entity">courts</span> how to weigh the factors against each other.</span> <span data-paragraph-id="41175" data-sentence-id="41330" class="ldml-sentence"><span class="ldml-entity">This court</span>'s lack of guidance will create uncertainty in time-sensitive lawsuits, and <span class="ldml-entity">courts</span> will be forced to undertake complex and subjective fact-specific analyses for local government elections.</span></p><p data-paragraph-id="41528" class="ldml-paragraph "><span data-paragraph-id="41528" data-sentence-id="41528" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_41528"><span class="ldml-cite">¶65</span></a></span> For example, the majority considers it important that the mayor and the ward councilmembers <span class="ldml-quotation quote">"are elected in different ways and by different constituencies"</span> and that <span class="ldml-quotation quote">"<span class="ldml-entity">they</span> represent different groups of <span class="ldml-entity">people</span>."</span></span> <span data-paragraph-id="41528" data-sentence-id="41742" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_41528"><span class="ldml-cite">Maj. op. ¶ 26</span></a></span>.</span> <span data-paragraph-id="41528" data-sentence-id="41757" class="ldml-sentence">So, different voter pools apparently suggest different offices.</span> <span data-paragraph-id="41528" data-sentence-id="41821" class="ldml-sentence">Under this reasoning, an at-large councilmember and a ward-elected councilmember occupy different offices, and councilmembers can just move between wards to refresh their voter pools and thus their term limits.</span> <span data-paragraph-id="41528" data-sentence-id="42032" class="ldml-sentence">While the majority reasons that <span class="ldml-quotation quote">"nothing in this opinion can reasonably be read to suggest"</span> such an outcome is possible, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_42032"><span class="ldml-cite"><i class="ldml-italics">id.</i></span></a></span> <span class="ldml-entity"><a class="ldml-reference"><span class="ldml-cite">at ¶ 39</span></a></span>, and <span class="ldml-quotation quote">"no one here appears to dispute that <span class="ldml-parenthetical">[running in a different ward to avoid term limits]</span> would be impermissible,"</span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_42032"><span class="ldml-cite"><i class="ldml-italics">id.</i></span></a></span> <span class="ldml-entity"><a class="ldml-reference"><span class="ldml-cite">at ¶ 43</span></a></span>, the majority fails to explain <i class="ldml-italics">why</i> the distinction it recognizes between the mayor and other councilmembers wouldn't apply to councilmembers of different wards.</span></p><p data-paragraph-id="42455" class="ldml-paragraph "><span data-paragraph-id="42455" data-sentence-id="42455" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_42455"><span class="ldml-cite">¶66</span></a></span> Another example of the majority's unpredictable analysis is its argument that the mayor is distinct because <span class="ldml-entity">she</span> has a higher salary than the councilmembers.</span> <span data-paragraph-id="42455" data-sentence-id="42616" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_42455"><span class="ldml-cite">Maj. op. ¶ 38</span></a></span>.</span> <span data-paragraph-id="42455" data-sentence-id="42631" class="ldml-sentence">This factor is confusing too, given the rest of the opinion.</span> <span data-paragraph-id="42455" data-sentence-id="42692" class="ldml-sentence">Earlier, the opinion suggests that a city council president in another city, unlike a mayor, would occupy the same office as other councilmembers.</span> <span data-paragraph-id="42455" data-sentence-id="42839" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_42692"><span class="ldml-cite"><i class="ldml-italics">Id.</i></span></a></span> <span class="ldml-entity"><a class="ldml-reference"><span class="ldml-cite">at ¶ 26</span></a></span>.</span> <span data-paragraph-id="42455" data-sentence-id="42852" class="ldml-sentence">However, city council presidents are regularly paid more than other councilmembers.</span> <span data-paragraph-id="42455" data-sentence-id="42936" class="ldml-sentence"><i class="ldml-italics">See, e.g.,</i> Denver Rev. <span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_42936"><span class="ldml-cite">Mun. Code 18-81</span></a></span> <span class="ldml-parenthetical">(<span class="ldml-embeddedsentence">setting the salary for the president of the <span class="ldml-entity">Denver City Council</span> more than $10,000 higher than the other councilmembers</span>)</span></span>.</span> <span data-paragraph-id="42455" data-sentence-id="43097" class="ldml-sentence">It is the same with officials in other parts of the government.</span> <span data-paragraph-id="42455" data-sentence-id="43161" class="ldml-sentence">For instance, the speaker of the House of Representatives earns more than other representatives in <span class="ldml-entity">Congress</span>, even though the speaker is still a representative.</span> <span data-paragraph-id="42455" data-sentence-id="43321" class="ldml-sentence">U.S. House of Representatives, Press Gallery, <i class="ldml-italics">Salaries</i> <span class="ldml-parenthetical">(<span class="ldml-entity">Jan. 2015</span>)</span>, https://pressgallery.house.gov/member-data/salaries <span class="ldml-parenthetical">[https://perma.cc/92DV-PFB7]</span>.</span> <span data-paragraph-id="42455" data-sentence-id="43471" class="ldml-sentence">At <span class="ldml-entity">this court</span>, the chief justice earns slightly more than <span class="ldml-entity">the court</span>'s other members but is still a justice.</span> <span data-paragraph-id="42455" data-sentence-id="43579" class="ldml-sentence">Colo. Jud. Branch, <i class="ldml-italics">FY2022 Compensation Plan by Class Title</i> <span class="ldml-parenthetical">(<span class="ldml-entity">2022</span>)</span>, https://www.<span class="ldml-entity">courts</span>.state.co.<span class="ldml-entity">us</span>/userfiles/file/Administration/HR/Compensation_and_Benefits/FY22% 20Comp% 20Plan% 20Updated% 2004112022.pdf <span class="ldml-parenthetical">[https:/ /perma.cc/4WW4-FPE4]</span>.</span></p><p data-paragraph-id="43814" class="ldml-paragraph "><span data-paragraph-id="43814" data-sentence-id="43814" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_43814"><span class="ldml-cite">¶67</span></a></span> While the majority's analysis is thorough for Thornton, its factors seem arbitrary when applied to other comparable government structures.</span> <span data-paragraph-id="43814" data-sentence-id="43957" class="ldml-sentence">I fear that this Thornton-specific analysis may map poorly onto <span class="ldml-entity">the state</span>'s other jurisdictions and destabilize varying municipal structures.</span></p></div><div class="ldml-section"><section class="ldml-heading content__heading content__heading--depth3" data-ordinal_end="2" data-specifier="B" data-ordinal_start="2" data-parsed="true" data-id="heading_44098" data-format="upper_case_letters" data-content-heading-label="B. Future Questions" data-types="issues" data-confidences="medium" id="heading_44098" data-value="B. Future Questions"><span data-paragraph-id="44098" class="ldml-paragraph "><b class="ldml-bold"><span data-paragraph-id="44098" data-sentence-id="44098" class="ldml-sentence">B.</span> <span data-paragraph-id="44098" data-sentence-id="44101" class="ldml-sentence">Future Questions</span></b></span></section><p data-paragraph-id="44117" class="ldml-paragraph "><span data-paragraph-id="44117" data-sentence-id="44117" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_44117"><span class="ldml-cite">¶68</span></a></span> The majority's assortment of factors helps it distinguish the mayor's office from the other councilmembers in Thornton, but it does not say how to draw the line between potentially distinct offices elsewhere.</span> <span data-paragraph-id="44117" data-sentence-id="44330" class="ldml-sentence">In the future, <span class="ldml-entity">courts</span> may attempt to apply the majority's Thornton-specific analysis to other local governments with varied structures.</span></p><p data-paragraph-id="44465" class="ldml-paragraph "><span data-paragraph-id="44465" data-sentence-id="44465" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_44465"><span class="ldml-cite">¶69</span></a></span> Two examples illustrate why judges might have difficulty applying the majority's new precedent to other political <span class="ldml-entity">subdivisions</span>.</span></p><p data-paragraph-id="44596" class="ldml-paragraph "><span data-paragraph-id="44596" data-sentence-id="44596" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_44596"><span class="ldml-cite">¶70</span></a></span> First, consider the many communities where the mayor is elected by the city councilmembers, rather than at large by the voters in the municipality.</span> <span data-paragraph-id="44596" data-sentence-id="44748" class="ldml-sentence">The majority opinion suggests that in such <span class="ldml-entity">a case</span>, the mayor is subject to the same term limits as other councilmembers because the mayor is initially elected as a councilmember.</span> <span data-paragraph-id="44596" data-sentence-id="44927" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_44748"><span class="ldml-cite">Maj. op. ¶ 26</span></a></span>.</span> <span data-paragraph-id="44596" data-sentence-id="44942" class="ldml-sentence">If so, the majority seems to indicate that if Thornton made a single change —for councilmembers to elect the mayor, rather than the city's voters —the mayor would no longer occupy a separate office <span class="ldml-parenthetical">(despite the other <span class="ldml-pagenumber" data-page_type="bracketed_cite" data-val="662" data-vol="521" data-id="pagenumber_45159" data-rep="P.3d"></span> differences the majority listed)</span>.</span> <span data-paragraph-id="44596" data-sentence-id="45194" class="ldml-sentence">If that's <span class="ldml-entity">the case</span>, is the single determining factor whether a mayor is elected separately?</span> <span data-paragraph-id="44596" data-sentence-id="45286" class="ldml-sentence">At the very least, the lack of clarity opens the door to more litigation in other pockets of <span class="ldml-entity">the state</span>.</span> <span data-paragraph-id="44596" data-sentence-id="45390" class="ldml-sentence">More than half of Colorado municipalities use a council-manager form of government, and nearly a third don't elect the mayor separately.</span> <span data-paragraph-id="44596" data-sentence-id="45527" class="ldml-sentence"><span class="ldml-referencechain"><span class="ldml-signal"><i class="ldml-italics">See</i></span> <span class="ldml-entity"><a class="ldml-reference"><span class="ldml-refname">Legis. Council Staff, Rsch. Publ'n</span> <span class="ldml-cite">No. 719, <i class="ldml-italics">2018</i></span></a></span></span><i class="ldml-italics"> Colorado Local Government Handbook</i> 17 <span class="ldml-parenthetical">(<span class="ldml-entity">2018</span>)</span>, https://leg.colorado.gov/sites/default/files/<span class="ldml-entity">2018</span>_local_government_handbook _with_cover_0.pdf <span class="ldml-parenthetical">[https://perma.cc/DVE6-LDWS]</span>; <span class="ldml-entity">Int'l City</span>/Cnty. Mgmt. Ass'n, <i class="ldml-italics">Council-Manager Form of Government</i> <span class="ldml-parenthetical">(<span class="ldml-entity">Nov. 30, 2019</span>)</span>, https://icma.org/documents/council-manager-form-government-what-it-how-it-works-and-benefits-your-community-brochure <span class="ldml-parenthetical">[https://perma.cc/3T9J-GXJL]</span>.</span></p><p data-paragraph-id="45978" class="ldml-paragraph "><span data-paragraph-id="45978" data-sentence-id="45978" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_45978"><span class="ldml-cite">¶71</span></a></span> Second, consider another local government in which each elected individual has a different title; for example, a county that elects a treasurer, secretary, and a chair that each has a legislative vote on the county commission.</span> <span data-paragraph-id="45978" data-sentence-id="46209" class="ldml-sentence">Are these separate offices?</span> <span data-paragraph-id="45978" data-sentence-id="46237" class="ldml-sentence">And, what occurs if the county changes its election procedures so that each of the three county commissioners is elected by district, and <span class="ldml-entity">they</span> then choose among themselves who carries out each duty?</span> <span data-paragraph-id="45978" data-sentence-id="46436" class="ldml-sentence">How should <span class="ldml-entity">a court</span> apply the majority's opinion in a potential term-limit dispute in the county?</span> <span data-paragraph-id="45978" data-sentence-id="46533" class="ldml-sentence">Without dispositive factors or an explicit balancing test, local governments will not know whether two positions constitute distinct offices, and <span class="ldml-entity">they</span> will have no way to know if a small change in governing documents would alter term limits.</span></p><p data-paragraph-id="46774" class="ldml-paragraph "><span data-paragraph-id="46774" data-sentence-id="46774" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_46774"><span class="ldml-cite">¶72</span></a></span> The majority finds certain factors relevant in its opinion but does not tell <span class="ldml-entity">us</span> why <span class="ldml-entity">they</span> are relevant and how these factors should be weighed and applied.</span> <span data-paragraph-id="46774" data-sentence-id="46933" class="ldml-sentence">In local government <span class="ldml-entity">cases</span>, where fact-specific analyses are common, <span class="ldml-entity">this court</span> should provide a framework for judges to resolve potential <span class="ldml-entity">cases</span>.</span> <span data-paragraph-id="46774" data-sentence-id="47078" class="ldml-sentence">Because the majority opinion does not, I fear <span class="ldml-entity">this court</span> opens the door to politically motivated term-limit litigation in the future.</span> <span data-paragraph-id="46774" data-sentence-id="47212" class="ldml-sentence">And it will leave not only <span class="ldml-entity">courts</span> but also municipalities and officeholders to guess what is permissible.</span></p></div></div><div class="ldml-section"><section class="ldml-heading content__heading content__heading--depth2" data-id="heading_47317" data-specifier="III" data-ordinal_start="3" data-parsed="true" data-format="upper_case_roman_numeral" data-ordinal_end="3" data-content-heading-label="III. Resignations" id="heading_47317" data-value="III. Resignations"><span data-paragraph-id="47317" class="ldml-paragraph "><b class="ldml-bold"><span data-paragraph-id="47317" data-sentence-id="47317" class="ldml-sentence">III.</span> <span data-paragraph-id="47317" data-sentence-id="47322" class="ldml-sentence">Resignations</span></b></span></section><p data-paragraph-id="47334" class="ldml-paragraph "><span data-paragraph-id="47334" data-sentence-id="47334" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_47334"><span class="ldml-cite">¶73</span></a></span> Although the majority declined to address the second issue presented <span class="ldml-parenthetical">(regarding early resignations)</span>, I believe local governments would benefit from <span class="ldml-entity">this court</span>'s guidance on the issue.</span> <span data-paragraph-id="47334" data-sentence-id="47522" class="ldml-sentence">Therefore, I would address it and conclude that Kulmann is term limited now.</span></p><p data-paragraph-id="47598" class="ldml-paragraph "><span data-paragraph-id="47598" data-sentence-id="47598" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_47598"><span class="ldml-cite">¶74</span></a></span> The <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_47598"><span class="ldml-cite">Colorado Constitution</span></a></span> provides a clear answer for both legislative and executive term limits.</span> <span data-paragraph-id="47598" data-sentence-id="47700" class="ldml-sentence"><span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_47598"><span class="ldml-cite">Colo. Const. art. V, § 3 <span class="ldml-parenthetical">(2)</span></span></a></span><span class="ldml-referenceseparator">;</span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_47598"><span class="ldml-cite">Colo. Const. art. IV, § 1 <span class="ldml-parenthetical">(2)</span></span></a></span></span>.</span> <span data-paragraph-id="47598" data-sentence-id="47761" class="ldml-sentence">In each case, a partial term counts toward the limit if someone serves more than half of a full term.</span> <span data-paragraph-id="47598" data-sentence-id="47863" class="ldml-sentence">But <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_47863"><span class="ldml-cite">section 11</span></a></span> says no such thing.</span></p><p data-paragraph-id="47897" class="ldml-paragraph "><span data-paragraph-id="47897" data-sentence-id="47897" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_47897"><span class="ldml-cite">¶75</span></a></span> Further, the Bluebook described the law at the time of <span class="ldml-entity">the amendment</span>: while the partial-term provision applied to members of <span class="ldml-entity">Congress</span>, it did not apply to any of <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_47897"><span class="ldml-cite">section 11</span></a></span>'s other offices, including those in local government.<a href="#note-fr2" class="ldml-noteanchor" id="note-ref-fr2">2</a></span> <span data-paragraph-id="47897" data-sentence-id="48128" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_47897"><span class="ldml-refname">Bluebook</span>, <span class="ldml-cite"><i class="ldml-italics">supra</i></span> <span class="ldml-cite">¶ 54</span>, <span class="ldml-cite">at 53</span></a></span>.</span></p><p data-paragraph-id="48156" class="ldml-paragraph "><span data-paragraph-id="48156" data-sentence-id="48156" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_48156"><span class="ldml-cite">¶76</span></a></span> If read plainly, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_48156"><span class="ldml-cite">section 11</span></a></span> sets a clear default: consecutive terms count toward the limit, no matter their length.</span> <span data-paragraph-id="48156" data-sentence-id="48276" class="ldml-sentence"><span class="ldml-entity">The amendment</span>'s only language on the issue says that <span class="ldml-quotation quote">"<span class="ldml-parenthetical">[f]</span>or purposes of this <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_48276"><span class="ldml-cite">Section 11</span></a></span>, terms are considered consecutive unless <span class="ldml-entity">they</span> are at least four years apart."</span></span> <span data-paragraph-id="48156" data-sentence-id="48442" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_48276"><span class="ldml-cite">Colo. Const. art. XVIII, § 11 <span class="ldml-parenthetical">(1)</span></span></a></span>.</span> <span data-paragraph-id="48156" data-sentence-id="48477" class="ldml-sentence">Nowhere does <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_48477"><span class="ldml-cite">section 11</span></a></span> say that only full terms count toward the term limit.</span> <span data-paragraph-id="48156" data-sentence-id="48555" class="ldml-sentence">Instead, <span class="ldml-entity">the amendment</span> says that more than two consecutive terms are prohibited, and consecutive terms are any of those that are less than four years apart.</span> <span data-paragraph-id="48156" data-sentence-id="48712" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_48555"><span class="ldml-cite"><i class="ldml-italics">Id.</i></span></a></span></span> <span data-paragraph-id="48156" data-sentence-id="48716" class="ldml-sentence">If someone resigns halfway through their term and runs for election again within four years, the term limit is met because the terms are consecutive within the plain meaning of <span class="ldml-entity">the constitution</span>.<span class="ldml-pagenumber" data-page_type="bracketed_cite" data-val="663" data-vol="521" data-id="pagenumber_48910" data-rep="P.3d"></span></span></p><p data-paragraph-id="48910" class="ldml-paragraph "> <span data-paragraph-id="48910" data-sentence-id="48911" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_48911"><span class="ldml-cite">¶77</span></a></span> Because <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_48911"><span class="ldml-cite">section 11</span></a></span> plainly counts all consecutive terms toward the term limit, no matter their length, I would hold that Kulmann's second consecutive term concluded when <span class="ldml-entity">she</span> resigned from the Council.</span></p><p data-paragraph-id="49115" class="ldml-paragraph "><span data-paragraph-id="49115" data-sentence-id="49115" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_49115"><span class="ldml-cite">¶78</span></a></span> Kulmann proposes an unworkable <span class="ldml-quotation quote">"legitimate reason"</span> test to determine when a partial term is exempted from term limits.</span> <span data-paragraph-id="49115" data-sentence-id="49238" class="ldml-sentence"><span class="ldml-entity">She</span> argues that since other provisions address partial terms, the absence of such language in <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_49238"><span class="ldml-cite">section 11</span></a></span> implies that voters intended not to count partial terms toward the limit.</span> <span data-paragraph-id="49115" data-sentence-id="49417" class="ldml-sentence">As a result, Kulmann believes <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_49417"><span class="ldml-cite">section 11</span></a></span> sets the opposite default: partial terms don't count unless someone takes advantage of them maliciously.</span> <span data-paragraph-id="49115" data-sentence-id="49563" class="ldml-sentence">Kulmann contends that a <span class="ldml-quotation quote">"term"</span> refers to a fixed and definite time — the full four years scheduled for an office between reelection — rather than the number of times an individual has served in elected office.</span></p><p data-paragraph-id="49772" class="ldml-paragraph "><span data-paragraph-id="49772" data-sentence-id="49772" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_49772"><span class="ldml-cite">¶79</span></a></span> The mayor's recommendation presents at least a couple of obvious problems.</span> <span data-paragraph-id="49772" data-sentence-id="49851" class="ldml-sentence">First and foremost, the proposed test is completely untethered from the language of <span class="ldml-entity">the amendment</span>, the voters' intent, or any implementing <span class="ldml-entity">statutes</span>.</span> <span data-paragraph-id="49772" data-sentence-id="50000" class="ldml-sentence">Second, the test would force <span class="ldml-entity">courts</span> to adjudicate messy <span class="ldml-entity">cases</span> where a public official's veracity and legitimacy are questioned.</span> <span data-paragraph-id="49772" data-sentence-id="50128" class="ldml-sentence">A subjective <span class="ldml-quotation quote">"legitimacy"</span> test would put judges into the uncomfortable position of making ad hoc personal judgments.</span> <span data-paragraph-id="49772" data-sentence-id="50245" class="ldml-sentence">Is a divorce a legitimate reason to resign?</span> <span data-paragraph-id="49772" data-sentence-id="50289" class="ldml-sentence">How about the death of a loved one?</span> <span data-paragraph-id="49772" data-sentence-id="50325" class="ldml-sentence">Adopting Kulmann's test would open a pandora's box of term-limit loopholes, inviting anyone to sidestep <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_50325"><span class="ldml-cite">section 11</span></a></span> if <span class="ldml-entity">they</span> are able to orchestrate a <span class="ldml-quotation quote">"legitimate"</span> reason to resign and persuade a judge of the same.</span></p><p data-paragraph-id="50537" class="ldml-paragraph "><span data-paragraph-id="50537" data-sentence-id="50537" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_50537"><span class="ldml-cite">¶80</span></a></span> Therefore, I would reach the second issue, reverse <span class="ldml-entity">the district court</span>'s order, and conclude that under the plain language of the <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_50537"><span class="ldml-cite">Colorado Constitution</span></a></span>, a partially served term counts toward the term limits.</span></p><p data-paragraph-id="50747" class="ldml-paragraph "><span data-paragraph-id="50747" data-sentence-id="50747" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_50747"><span class="ldml-cite">¶81</span></a></span> For all the foregoing reasons, I respectfully dissent.</span></p></div></div></div><div class="ldml-notes content__heading content__heading--depth1" data-content-heading-label="Footnotes"><div class="ldml-note ldml-note"><p data-paragraph-id="50805" class="ldml-paragraph "><sup class="ldml-superscript"></sup><a href="#note-ref-fr1" class="ldml-notemarker" id="note-fr1">1</a> <span data-paragraph-id="50805" data-sentence-id="50806" class="ldml-sentence">Specifically, <span class="ldml-entity">we</span> granted certiorari, pursuant to <span class="ldml-entity"><a class="ldml-reference"><span class="ldml-cite">C.A.R. 50<span class="ldml-parenthetical">(a)</span></span></a></span>, to decide:</span></p><div class="ldml-embeddeddocument"><blockquote data-paragraph-id="b_50879" class="ldml-blockquote"><span data-sentence-id="50879" class="ldml-sentence">1.</span> <span data-sentence-id="50882" class="ldml-sentence">Whether the <span class="ldml-entity">Office of Mayor</span> is sufficiently distinct from the <span class="ldml-entity">Office of Councilmember</span> in the <span class="ldml-entity">City of Thornton</span> such that a term of office for one cannot be used as a term of office for the other in calculating <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_50882"><span class="ldml-cite">Section 11</span></a></span>'s two-term restriction.</span></blockquote><blockquote data-paragraph-id="b_51125" class="ldml-blockquote"><span data-sentence-id="51125" class="ldml-sentence">2.</span> <span data-sentence-id="51128" class="ldml-sentence">Whether an elected official who only serves a partial term of office for legitimate reasons counts towards the calculation of <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_51128"><span class="ldml-cite">Section 11</span></a></span>'s two-term restriction.</span></blockquote></div></div><div class="ldml-note ldml-note"><p data-paragraph-id="51288" class="ldml-paragraph "><sup class="ldml-superscript"></sup><a href="#note-ref-fr_1" class="ldml-notemarker" id="note-fr_1">1</a> <span data-paragraph-id="51288" data-sentence-id="51289" class="ldml-sentence"><span class="ldml-entity">Kenneth A. Adams</span> & <span class="ldml-entity">Alan S. Kaye</span>, <i class="ldml-italics">Revisiting the Ambiguity of <span class="ldml-quotation quote">"And"</span> and <span class="ldml-quotation quote">"Or"</span> in </i><span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference"><span class="ldml-refname"><i class="ldml-italics">Legal Drafting</i> , 80 St. John's</span> <span class="ldml-cite">L. Rev. 1167, 1180-83</span> <span class="ldml-parenthetical">(<span class="ldml-date">2006</span>)</span></a></span> <span class="ldml-parenthetical">(<span class="ldml-quotation quote"><span class="ldml-embeddedsentence">"<span class="ldml-parenthetical">[A]</span>uthorities on legal drafting have stated that or is ambiguous, in that it can be <span class="ldml-quotation quote">‘inclusive,’</span> meaning A or B, or both, or it can be <span class="ldml-quotation quote">‘exclusive,’</span> meaning A or B, but not both."</span></span>)</span></span>.</span> <span data-paragraph-id="51288" data-sentence-id="51611" class="ldml-sentence">And, <span class="ldml-entity">courts</span> recognize that the word <span class="ldml-quotation quote">"or"</span> is usually used in legal drafting in an <i class="ldml-italics">inclusive</i> manner, meaning that the majority's interpretation of <span class="ldml-quotation quote">"or"</span> here as mutually exclusive is less common.</span> <span data-paragraph-id="51288" data-sentence-id="51804" class="ldml-sentence"><span class="ldml-referencechain"><span class="ldml-signal"><i class="ldml-italics">See</i></span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_51611" data-refglobal="case:encinomotorcars,llcvnavarro,584us79,87,138sct1134,200led2d4332018"><i class="ldml-italics"><span class="ldml-refname">Encino Motorcars, LLC v. Navarro</span>,</i> <span class="ldml-cite">––– U.S. ––––</span>, <span class="ldml-cite">138 S. Ct. 1134, 1141-42</span>, <span class="ldml-cite">200 L.Ed.2d 433</span> <span class="ldml-parenthetical">(<span class="ldml-date">2018</span>)</span></a></span> <span class="ldml-referenceseparator">;</span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="embeddedsentence_51977,sentence_51611" data-refglobal="case:inthematteroftheestateofrobbiejdodge,alsoknownno82ca1482685p2d260may31,1984"><i class="ldml-italics"><span class="ldml-refname">In re Estate of Dodge</span>,</i> <span class="ldml-cite">685 P.2d 260, 266, 266 n.1</span> <span class="ldml-parenthetical">(<span class="ldml-court">Colo. App.</span> <span class="ldml-date">1984</span>)</span></a></span> <span class="ldml-parenthetical">(<span class="ldml-embeddedsentence">concluding that <span class="ldml-quotation quote">"or,"</span> as used in the relevant <span class="ldml-entity">statute</span>, was <span class="ldml-quotation quote">"to be given its usual inclusive construction"</span> because <span class="ldml-quotation quote">"it simply <span class="ldml-quotation quote">‘is not usual to interpret the <span class="ldml-quotation quote">"or"</span> in an alternative <span class="ldml-entity">proposition</span> as expressing the exclusion of one alternative’</span> "</span></span>)</span> <span class="ldml-parenthetical">(quoting <span class="ldml-entity">L. Susan Stebbing</span>, A <i class="ldml-italics">Modern Introduction to Logic</i> 70-71 <span class="ldml-parenthetical">(<span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_51611"><span class="ldml-cite">6th ed. 1948</span></a></span>)</span>)</span></span>.</span> <span data-paragraph-id="51288" data-sentence-id="52301" class="ldml-sentence"><span class="ldml-quotation quote">"That is, <span class="ldml-quotation quote">‘or’</span> is consistent with <span class="ldml-quotation quote">‘perhaps both’</span>; ... the <i class="ldml-italics">onus probandi</i> lies on those who assert <span class="ldml-parenthetical">[that]</span> the logical interpretation of <span class="ldml-quotation quote">‘or’</span> should be exclusive."</span></span> <span data-paragraph-id="51288" data-sentence-id="52462" class="ldml-sentence"><span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="embeddedsentence_52500,sentence_52301" data-refglobal="case:inthematteroftheestateofrobbiejdodge,alsoknownno82ca1482685p2d260may31,1984"><i class="ldml-italics"><span class="ldml-refname">Estate of Dodge</span>,</i> <span class="ldml-cite">685 P.2d at 266 n.1</span></a></span> <span class="ldml-parenthetical">(<span class="ldml-embeddedsentence"><span class="ldml-cert">quoting</span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_52301"><span class="ldml-refname">Stebbing</span>, <span class="ldml-cite"><i class="ldml-italics">supra</i></span> <span class="ldml-cite">¶ 59</span></a></span> n.1, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_52301"><span class="ldml-cite">at 70-71</span></a></span></span>)</span></span>.</span></p></div><div class="ldml-note ldml-note"><p data-paragraph-id="52544" class="ldml-paragraph "><sup class="ldml-superscript"></sup><a href="#note-ref-fr2" class="ldml-notemarker" id="note-fr2">2</a> <span data-paragraph-id="52544" data-sentence-id="52545" class="ldml-sentence"><span class="ldml-entity">The Supreme Court</span> later struck down Colorado's congressional term-limit provision, holding it unconstitutional for states to set federal term limits stricter than the <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_52545"><span class="ldml-cite">U.S. Constitution</span></a></span> because states do not have authority <span class="ldml-quotation quote">"to change, add to, or diminish"</span> the requirements for <span class="ldml-entity">Congress</span> enumerated in the Qualifications Clause.</span> <span data-paragraph-id="52544" data-sentence-id="52871" class="ldml-sentence"><span class="ldml-referencechain"><span class="ldml-entity"><a href="/vid/892558014" data-vids="892558014" class="ldml-reference" data-prop-ids="sentence_52545"><i class="ldml-italics"><span class="ldml-refname">U.S. Term Limits, Inc. v. Thornton</span>,</i> <span class="ldml-cite">514 U.S. 779, 785</span>, <span class="ldml-cite">115 S.Ct. 1842</span>, <span class="ldml-cite">131 L.Ed.2d 881</span> <span class="ldml-parenthetical">(<span class="ldml-date">1995</span>)</span></a></span> <span class="ldml-parenthetical">(<span class="ldml-cert">quoting</span> <span class="ldml-entity"><a href="/vid/895532914" data-vids="895532914" class="ldml-reference" data-prop-ids="sentence_52545"><i class="ldml-italics"><span class="ldml-refname">U.S. Term Limits, Inc. v. Hill</span>,</i> <span class="ldml-cite">316 Ark. 251</span>, <span class="ldml-cite">872 S.W.2d 349, 356</span> <span class="ldml-parenthetical">(<span class="ldml-court">Ark.</span> <span class="ldml-date">1994</span>)</span> <span class="ldml-parenthetical">(plurality opinion)</span></a></span>)</span></span>.</span></p></div></div></div></div>
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