In the MATTER OF the TITLE, BALLOT TITLE AND SUBMISSION CLAUSE FOR 2021-2022 16 Janie VanWinkle, Carlyle Currier, Chris Kraft, Terri Diane Lamers, William Hammerich, and Joyce Kelly v. Alexander Sage and Brent Johannes, and Theresa Conley, David Powell, and Julie Pelegrin, Title Board. ( 2021 )

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<div class="ldml-decision"><div class="ldml-decision"><div href="/vid/887125493" data-vids="887125493" 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">489 P.3d 1217</b></span></p><p class="ldml-metadata"><span class="ldml-party"><b class="ldml-bold">In the MATTER OF the <span class="ldml-name">TITLE, BALLOT TITLE AND SUBMISSION CLAUSE FOR 2021-2022 #16</span></b></span></p><p class="ldml-metadata"><b class="ldml-bold"><span class="ldml-party"><span class="ldml-name">Janie VanWinkle, Carlyle Currier</span></span>, <span class="ldml-party"><span class="ldml-name">Chris Kraft</span></span>, <span class="ldml-party"><span class="ldml-name">Terri Diane Lamers</span></span>, <span class="ldml-party"><span class="ldml-name">William Hammerich</span></span>, and <span class="ldml-party"><span class="ldml-name">Joyce Kelly</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">Alexander Sage</span></span> and <span class="ldml-party"><span class="ldml-name">Brent Johannes</span>, <span class="ldml-role">Respondents</span></span></b><b class="ldml-bold">and</b><b class="ldml-bold"><span class="ldml-party">Theresa Conley</span>, <span class="ldml-party">David Powell</span>, and <span class="ldml-party">Julie Pelegrin, Title Board</span>.</b></p><p class="ldml-metadata"><b class="ldml-bold">Supreme Court <span class="ldml-cite">Case No. 21SA125</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">June 21, 2021</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="390" class="ldml-paragraph no-indent mt-2"><span data-paragraph-id="390" data-sentence-id="390" class="ldml-sentence">Attorneys for <span class="ldml-entity"><span class="ldml-role">Petitioners</span></span>: <span class="ldml-lawfirm">Recht Kornfeld, P.C.</span>, <span class="ldml-entity"><span class="ldml-lawyer">Mark G. Grueskin</span></span>, Denver, Colorado</span></p><p data-paragraph-id="473" class="ldml-paragraph no-indent mt-2"><span data-paragraph-id="473" data-sentence-id="473" class="ldml-sentence"><span class="ldml-entity"><span class="ldml-role">Respondents</span></span> <span class="ldml-entity">Alexander Sage</span> and <span class="ldml-entity"><span class="ldml-lawyer">Brent Johannes</span></span>, <span class="ldml-lawyerrole">pro se</span>, Boulder, Colorado</span></p><p data-paragraph-id="545" class="ldml-paragraph no-indent mt-2"><span data-paragraph-id="545" data-sentence-id="545" class="ldml-sentence">Attorneys for <span class="ldml-entity">Title Board</span>: <span class="ldml-entity"><span class="ldml-lawyer">Natalie Hanlon Leh</span></span>, Chief Deputy <span class="ldml-entity">Attorney General</span>, <span class="ldml-entity"><span class="ldml-lawyer">Michael Kotlarczyk</span></span>, Assistant <span class="ldml-entity">Attorney General</span>, <span class="ldml-entity"><span class="ldml-lawyer">Peter G. Baumann</span></span>, Campaign Finance Enforcement Fellow, Denver, Colorado</span></p></div><h2 class="ldml-opinionheading"><span data-paragraph-id="742" class="ldml-paragraph "><span class="ldml-judgepanel"><span data-paragraph-id="742" data-sentence-id="742" class="ldml-sentence">En Banc</span></span></span></h2><div class="ldml-opinion"><p data-paragraph-id="749" class="ldml-paragraph no-indent mt-4"><span class="ldml-opinionauthor content__heading content__heading--depth1" data-content-heading-label="Opinion (HOOD)"><span data-paragraph-id="749" data-sentence-id="749" class="ldml-sentence"><span class="ldml-entity">JUSTICE <span class="ldml-entity"><span class="ldml-judge">HOOD</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="797" class="ldml-paragraph "><span data-paragraph-id="797" data-sentence-id="797" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_797"><span class="ldml-cite">¶1</span></a></span> In this opinion, <span class="ldml-entity">we</span> review the actions of the <span class="ldml-entity">Title Board</span> <span class="ldml-parenthetical">(<span class="ldml-quotation quote">"Board"</span>)</span> in setting the title and ballot title and submission clause <span class="ldml-parenthetical">(collectively, <span class="ldml-quotation quote">"titles"</span>)</span> for Initiative <span class="ldml-entity">2021</span>-<span class="ldml-entity">2022</span> #16 <span class="ldml-parenthetical">(<span class="ldml-quotation quote">"Initiative 16"</span>)</span>.</span> <span data-paragraph-id="797" data-sentence-id="1001" class="ldml-sentence">Initiative 16 proposes to amend Colorado's criminal animal cruelty <span class="ldml-entity">statutes</span>.</span> <span data-paragraph-id="797" data-sentence-id="1078" class="ldml-sentence">Among other changes, it would <span class="ldml-parenthetical">(1)</span> end certain exemptions for livestock, <span class="ldml-parenthetical">(2)</span> create a safe harbor for the slaughter of livestock with various conditions, and <span class="ldml-parenthetical">(3)</span> expand the definition of <span class="ldml-quotation quote">"sexual act with an animal"</span> <span class="ldml-parenthetical">(a type of animal cruelty)</span>.</span></p><p data-paragraph-id="1319" class="ldml-paragraph "><span data-paragraph-id="1319" data-sentence-id="1319" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_1319"><span class="ldml-cite">¶2</span></a></span> <span class="ldml-entity">We</span> conclude that Initiative 16 contains at least two subjects, which violates the single-subject <span class="ldml-entity">rule of <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_1319"><span class="ldml-cite">article V, section 1<span class="ldml-parenthetical">(5.5)</span> of the Colorado Constitution</span></a></span></span>.</span> <span data-paragraph-id="1319" data-sentence-id="1483" class="ldml-sentence">Although the central theme of the initiative is incorporating livestock into the animal cruelty <span class="ldml-entity">statutes</span>, redefining <span class="ldml-quotation quote">"sexual act with an animal"</span> strays into a second subject by addressing the bodily integrity of all animals, not just livestock.</span> <span data-paragraph-id="1319" data-sentence-id="1728" class="ldml-sentence">Because these subjects are not necessarily and properly connected, there is the potential for the very kind of voter surprise against which the single-subject requirement seeks to guard – here, voters might not understand that what is nominally a livestock initiative also affects the care of all animals, or vice versa.</span> <span data-paragraph-id="1319" data-sentence-id="2049" class="ldml-sentence"><span class="ldml-entity">We</span> therefore reverse the actions of the Board.</span></p><div class="ldml-section"><section class="ldml-heading content__heading content__heading--depth1" data-ordinal_start="1" data-content-heading-label="I. Facts and Procedural History" data-parsed="true" data-value="I. Facts and Procedural History" data-confidences="very_high" data-ordinal_end="1" data-types="background" data-format="upper_case_roman_numeral" data-id="heading_2095" id="heading_2095" data-specifier="I"><span data-paragraph-id="2095" class="ldml-paragraph "><b class="ldml-bold"><span data-paragraph-id="2095" data-sentence-id="2095" class="ldml-sentence">I.</span> <span data-paragraph-id="2095" data-sentence-id="2098" class="ldml-sentence">Facts and Procedural History</span></b></span></section><p data-paragraph-id="2126" class="ldml-paragraph "><span data-paragraph-id="2126" data-sentence-id="2126" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_2126"><span class="ldml-cite">¶3</span></a></span> <span class="ldml-entity">Respondents</span>, <span class="ldml-entity">Alexander Sage</span> and <span class="ldml-entity">Brent Johannes</span>, submitted Initiative 16 to the Board, which is responsible for <span class="ldml-quotation quote">"fix<span class="ldml-parenthetical">[ing]</span> a proper fair title for each proposed law ..., together with a submission clause."</span></span> <span data-paragraph-id="2126" data-sentence-id="2333" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_2126"><span class="ldml-cite">§ 1-40-106<span class="ldml-headnoteanchor"><span class="ldml-parenthetical">(1)</span></span>, C.R.S.</span> <span class="ldml-parenthetical">(<span class="ldml-date">2020</span>)</span></a></span>.</span> <span data-paragraph-id="2126" data-sentence-id="2363" class="ldml-sentence">The Board ruled that the initiative concerns a single subject and set titles.</span></p><p data-paragraph-id="2440" class="ldml-paragraph "><span data-paragraph-id="2440" data-sentence-id="2440" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_2440"><span class="ldml-cite">¶4</span></a></span> <span class="ldml-entity">Petitioners</span>, <span class="ldml-entity">Janie VanWinkle</span>, <span class="ldml-entity">Carlyle Currier</span>, <span class="ldml-entity">Chris Kraft</span>, <span class="ldml-entity">Terri Diane Lamers</span>, <span class="ldml-entity">William Hammerich</span>, and <span class="ldml-entity">Joyce Kelly</span>, filed a <span class="ldml-entity">motion for rehearing</span>.</span> <span data-paragraph-id="2440" data-sentence-id="2589" 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_2440"><span class="ldml-cite">§ 1-40-107<span class="ldml-parenthetical">(1)</span><span class="ldml-parenthetical">(a)</span><span class="ldml-parenthetical">(I)</span>, C.R.S.</span> <span class="ldml-parenthetical">(<span class="ldml-date">2020</span>)</span></a></span></span>.</span> <span data-paragraph-id="2440" data-sentence-id="2629" class="ldml-sentence"><span class="ldml-entity">They</span> argued that Initiative 16 contains three subjects: the removal of livestock exemptions from the animal cruelty <span class="ldml-pagenumber" data-page_type="bracketed_cite" data-vol="489" data-val="1220" data-rep="P.3d" data-id="pagenumber_2745"></span> <span class="ldml-entity">statutes</span>, a requirement that livestock live a quarter of their initiative-defined <span class="ldml-quotation quote">"natural lifespan<span class="ldml-parenthetical">[s]</span>"</span> before <span class="ldml-entity">they</span> can be slaughtered, and an expansion of the definition of <span class="ldml-quotation quote">"sexual act with an animal."</span></span> <span data-paragraph-id="2440" data-sentence-id="2949" class="ldml-sentence"><span class="ldml-entity">They</span> also claimed that the initiative's titles were misleading and contained impermissible catch phrases.</span></p><p data-paragraph-id="3054" class="ldml-paragraph "><span data-paragraph-id="3054" data-sentence-id="3054" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_3054"><span class="ldml-cite">¶5</span></a></span> The Board tweaked Initiative 16's titles but reaffirmed the single-subject ruling.<a href="#note-fr1" class="ldml-noteanchor" id="note-ref-fr1">1</a></span> <span data-paragraph-id="3054" data-sentence-id="3140" class="ldml-sentence">Two of its three members, however, acknowledged that the single-subject issue was <span class="ldml-quotation quote">"close."</span></span> <span data-paragraph-id="3054" data-sentence-id="3231" class="ldml-sentence"><i class="ldml-italics">Rehearing on Proposed Initiative <span class="ldml-entity">2021</span>-<span class="ldml-entity">2022</span> #16 before the Title Bd.,</i> at 1:25:53, 1:26:54 <span class="ldml-parenthetical">(<span class="ldml-entity">Apr. 7, 2021</span>)</span>, https://csos.granicus.com/MediaPlayer.php?view_<span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_3231"><span class="ldml-cite">id</span></a></span>=1&clip_<span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_3231"><span class="ldml-cite">id</span></a></span>=213 <span class="ldml-parenthetical">[https://perma.cc/B7T8-Q72L]</span> <span class="ldml-parenthetical">(statements of <span class="ldml-entity">David Powell</span> and <span class="ldml-entity">Theresa Conley</span>)</span>.</span></p><p data-paragraph-id="3477" class="ldml-paragraph "><span data-paragraph-id="3477" data-sentence-id="3477" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_3477"><span class="ldml-cite">¶6</span></a></span> <span class="ldml-entity">Petitioners</span> filed this original proceeding to challenge the Board's decision, <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_3477"><span class="ldml-cite">§ 1-40-107<span class="ldml-parenthetical">(2)</span></span></a></span></span>, renewing their arguments that Initiative 16 spans multiple subjects and that the titles include impermissible catch phrases.</span></p></div><div class="ldml-section"><section class="ldml-heading content__heading content__heading--depth1" data-ordinal_start="2" data-content-heading-label="II. Analysis" data-parsed="true" data-value="II. Analysis" data-confidences="very_high" data-ordinal_end="2" data-types="analysis" data-format="upper_case_roman_numeral" data-id="heading_3701" id="heading_3701" data-specifier="II"><span data-paragraph-id="3701" class="ldml-paragraph "><b class="ldml-bold"><span data-paragraph-id="3701" data-sentence-id="3701" class="ldml-sentence">II.</span> <span data-paragraph-id="3701" data-sentence-id="3705" class="ldml-sentence">Analysis</span></b></span></section><p data-paragraph-id="3713" class="ldml-paragraph "><span data-paragraph-id="3713" data-sentence-id="3713" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_3713"><span class="ldml-cite">¶7</span></a></span> <span class="ldml-entity">We</span> begin with the standard of review.</span> <span data-paragraph-id="3713" data-sentence-id="3754" class="ldml-sentence">Then, <span class="ldml-entity">we</span> discuss the single-subject requirement for initiatives.</span> <span data-paragraph-id="3713" data-sentence-id="3819" class="ldml-sentence">Finally, <span class="ldml-entity">we</span> describe Initiative 16 and analyze whether it contains multiple subjects.</span> <span data-paragraph-id="3713" data-sentence-id="3905" class="ldml-sentence"><span class="ldml-entity">We</span> conclude that it does.</span></p><div class="ldml-section"><section class="ldml-heading content__heading content__heading--depth2" data-ordinal_start="1" data-content-heading-label="A. Standard of Review" data-parsed="true" data-value="A. Standard of Review" data-confidences="very_high" data-ordinal_end="1" data-types="standardofreview" data-format="upper_case_letters" data-id="heading_3930" id="heading_3930" data-specifier="A"><span data-paragraph-id="3930" class="ldml-paragraph "><b class="ldml-bold"><span data-paragraph-id="3930" data-sentence-id="3930" class="ldml-sentence">A.</span> <span data-paragraph-id="3930" data-sentence-id="3933" class="ldml-sentence">Standard of Review</span></b></span></section><p data-paragraph-id="3951" class="ldml-paragraph "> <span data-paragraph-id="3951" data-sentence-id="3952" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_3952"><span class="ldml-cite">¶8</span></a></span> <span class="ldml-quotation quote">"<span class="ldml-entity">We</span> liberally construe the single subject requirement both because of the <span class="ldml-entity">Title Board</span>'s considerable discretion in setting the title and the ballot title and submission clause and in order to avoid unduly restricting the initiative process."</span></span> <span data-paragraph-id="3951" data-sentence-id="4197" class="ldml-sentence"><i class="ldml-italics">In re Title, Ballot Title & Submission Clause for <span class="ldml-entity">2019</span>-<span class="ldml-entity">2020</span> #315,</i> <span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_4197" data-refglobal="case:2020co61"><span class="ldml-cite">2020 CO 61</span></a></span>, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_4197"><span class="ldml-cite">¶ 17</span></a></span></span>, <span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_4197" data-refglobal="case:–––p3d––––"><span class="ldml-cite">––– P.3d ––––</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"><span class="ldml-cite">§ 1-40-106.5<span class="ldml-parenthetical">(2)</span>, C.R.S.</span> <span class="ldml-parenthetical">(<span class="ldml-date">2020</span>)</span></a></span> <span class="ldml-parenthetical">(<span class="ldml-quotation quote"><span class="ldml-embeddedsentence">"It is the intent of the general assembly that <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="embeddedsentence_4338"><span class="ldml-cite">section 1 <span class="ldml-parenthetical">(5.5)</span> of article V</span></a></span> ... be liberally construed, so as to avert the practices against which <span class="ldml-parenthetical">[it is]</span> aimed and, at the same time, to preserve and protect the right of initiative ...."</span></span>)</span></span></span><span data-paragraph-id="3951" data-sentence-id="4576" class="ldml-sentence">.</span></p><p data-paragraph-id="4577" class="ldml-paragraph "> <span data-paragraph-id="4577" data-sentence-id="4578" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_4578"><span class="ldml-cite">¶9</span></a></span> <span class="ldml-quotation quote">"<span class="ldml-entity">We</span> will therefore overturn the Board's finding that an initiative contains a single subject only in a <span class="ldml-quotation quote">‘clear case,’</span> "</span> <span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference"><i class="ldml-italics"><span class="ldml-refname">In re 2019-2020 #315</span>,</i> <span class="ldml-cite">¶ 17</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_4578" data-refglobal="case:inretitle,ballottitle,andsubmissionclausefor2013–201476,2014co52"><i class="ldml-italics"><span class="ldml-refname">In re Title, Ballot Title, & Submission Clause for 2013-2014 #76</span>,</i> <span class="ldml-cite">2014 CO 52</span></a></span>, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_4578"><span class="ldml-cite">¶ 8</span></a></span>, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_4578" data-refglobal="case:inthematterofthetitle,ballottitle,andsubmissionclausefor2013–201476philiphayescaseno14sa105333p3d76june23,2014"><span class="ldml-cite">333 P.3d 76, 79</span></a></span> )</span></span>, and <span class="ldml-quotation quote">"<span class="ldml-entity">we</span> employ all legitimate presumptions in favor of the propriety of the Board's actions,"</span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_4578" data-refglobal="case:inthematterofthetitle,ballottitleandsubmissionclausefor2009-201091christopherhowesno10sa135235p3d1071june28,2010"><i class="ldml-italics"><span class="ldml-refname">In re Title, Ballot Title & Submission Clause for 2009-2010 #91</span>,</i> <span class="ldml-cite">235 P.3d 1071, 1076</span> <span class="ldml-parenthetical">(<span class="ldml-court">Colo.</span> <span class="ldml-date">2010</span>)</span></a></span>.</span></p><p data-paragraph-id="5030" class="ldml-paragraph "> <span data-paragraph-id="5030" data-sentence-id="5031" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_5031"><span class="ldml-cite">¶10</span></a></span> <span class="ldml-quotation quote">"<span class="ldml-parenthetical">[I]</span>n our limited review of the <span class="ldml-entity">Title Board</span>'s actions, <span class="ldml-entity">we</span> do not address the merits of the proposed initiative."</span></span> <span data-paragraph-id="5030" data-sentence-id="5148" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_5031"><i class="ldml-italics"><span class="ldml-refname">In re 2019-2020 #315</span>,</i> <span class="ldml-cite">¶ 8</span></a></span>.</span> <span data-paragraph-id="5030" data-sentence-id="5175" class="ldml-sentence">Nor do <span class="ldml-entity">we</span> <span class="ldml-quotation quote">"determine the initiative's efficacy, construction, or future application, which is properly determined if and after the voters approve the proposal."</span></span> <span data-paragraph-id="5030" data-sentence-id="5336" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_5175" data-refglobal="case:inre2009–201091,235p3dat1073–79"><i class="ldml-italics"><span class="ldml-refname">In re 2009-2010 #91</span>,</i> <span class="ldml-cite">235 P.3d at 1076</span></a></span>.</span> <span data-paragraph-id="5030" data-sentence-id="5375" class="ldml-sentence"><span class="ldml-quotation quote">"However, <span class="ldml-entity">we</span> must examine the proposal sufficiently to enable review of the <span class="ldml-entity">Title Board</span>'s action."</span></span> <span data-paragraph-id="5030" data-sentence-id="5474" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_5375" data-refglobal="case:inre2009–201091,235p3dat1073–79"><span class="ldml-cite"><i class="ldml-italics">Id.</i></span></a></span></span> <span data-paragraph-id="5030" data-sentence-id="5478" class="ldml-sentence"><span class="ldml-quotation quote">"In conducting this limited inquiry, <span class="ldml-entity">we</span> employ the general rules of statutory construction, giving words and phrases their plain and ordinary meanings."</span></span> <span data-paragraph-id="5030" data-sentence-id="5631" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_5478"><i class="ldml-italics"><span class="ldml-refname">In re 2019-2020 #315</span>,</i> <span class="ldml-cite">¶ 8</span></a></span>.</span></p></div><div class="ldml-section"><section class="ldml-heading content__heading content__heading--depth2" data-ordinal_start="2" data-content-heading-label="B. The Single-Subject Requirement" data-parsed="true" data-value="B. The Single-Subject Requirement" data-ordinal_end="2" data-format="upper_case_letters" data-id="heading_5657" id="heading_5657" data-specifier="B"><span data-paragraph-id="5657" class="ldml-paragraph "><b class="ldml-bold"><span data-paragraph-id="5657" data-sentence-id="5657" class="ldml-sentence">B.</span> <span data-paragraph-id="5657" data-sentence-id="5660" class="ldml-sentence">The Single-Subject Requirement</span></b></span></section><p data-paragraph-id="5690" class="ldml-paragraph "><span data-paragraph-id="5690" data-sentence-id="5690" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_5690"><span class="ldml-cite">¶11</span></a></span> The <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_5690"><span class="ldml-cite">Colorado Constitution</span></a></span> reserves the initiative power to <span class="ldml-entity">the people</span> but prohibits measures that contain multiple subjects: <span class="ldml-quotation quote">"No measure shall be proposed by petition containing more than one subject ...."</span></span> <span data-paragraph-id="5690" data-sentence-id="5900" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_5690"><span class="ldml-cite">Colo. Const. art. V, § 1 <span class="ldml-parenthetical">(5.5)</span></span></a></span>.</span> <span data-paragraph-id="5690" data-sentence-id="5932" class="ldml-sentence"><span class="ldml-quotation quote">"If a measure contains more than one subject, ... no title shall be set and the measure shall not be submitted to <span class="ldml-entity">the people</span> for adoption or rejection at the polls."</span></span> <span data-paragraph-id="5690" data-sentence-id="6098" class="ldml-sentence"><span class="ldml-referencechain"><i class="ldml-italics"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_5932"><span class="ldml-cite">Id.</span></a></span><span class="ldml-referenceseparator">;</span> <span class="ldml-signal">see also</span></i> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="embeddedsentence_6132,sentence_5932"><span class="ldml-cite">§ 1-40-106.5<span class="ldml-parenthetical">(1)</span><span class="ldml-parenthetical">(a)</span></span></a></span> <span class="ldml-parenthetical">(<span class="ldml-quotation quote"><span class="ldml-embeddedsentence">" <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_5932"><span class="ldml-cite">Section 1 <span class="ldml-parenthetical">(5.5)</span> of article V</span></a></span> ... require<span class="ldml-parenthetical">[s]</span> that every ... law proposed by initiative ... be limited to a single subject ...."</span></span>)</span></span></span><span data-paragraph-id="5690" data-sentence-id="6261" class="ldml-sentence">.</span></p><div class="ldml-embeddeddocument"><p data-paragraph-id="6262" class="ldml-paragraph "><span data-paragraph-id="6262" data-sentence-id="6262" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_6262"><span class="ldml-cite">¶12</span></a></span> This prohibition exists</span></p><blockquote data-paragraph-id="b_6289" class="ldml-blockquote"><span data-sentence-id="6289" class="ldml-sentence"><span class="ldml-parenthetical">[t]</span>o forbid ... the practice of putting together ... subjects having no necessary or proper connection, for the purpose of enlisting in support of the <span class="ldml-parenthetical">[initiative]</span> the advocates of each measure, and thus securing <span class="ldml-entity">the enactment</span> of measures that could not be carried upon their merits.</span></blockquote></div><p data-paragraph-id="6572" class="ldml-paragraph "> <span data-paragraph-id="6572" data-sentence-id="6573" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference"><span class="ldml-cite">§ 1-40-106.5<span class="ldml-parenthetical">(l)</span><span class="ldml-parenthetical">(e)</span><span class="ldml-parenthetical">(I)</span></span></a></span>.</span> <span data-paragraph-id="6572" data-sentence-id="6596" class="ldml-sentence">The single-subject requirement also <span class="ldml-quotation quote">"prevent<span class="ldml-parenthetical">[s]</span> surprise and fraud from being practiced upon voters."</span></span> <span data-paragraph-id="6572" data-sentence-id="6698" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_6596"><span class="ldml-cite">§ 1-40-106.5<span class="ldml-parenthetical">(1)</span><span class="ldml-parenthetical">(e)</span><span class="ldml-parenthetical">(II)</span></span></a></span>.<span class="ldml-pagenumber" data-page_type="bracketed_cite" data-vol="489" data-val="1221" data-rep="P.3d" data-id="pagenumber_6721"></span></span></p><p data-paragraph-id="6721" class="ldml-paragraph "> <span data-paragraph-id="6721" data-sentence-id="6722" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_6722"><span class="ldml-cite">¶13</span></a></span> To decide whether an initiative addresses a single subject, <span class="ldml-entity">we</span> ask if its provisions are <span class="ldml-quotation quote">"necessarily and properly connected rather than disconnected or incongruous."</span></span> <span data-paragraph-id="6721" data-sentence-id="6893" class="ldml-sentence"><span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_6722"><i class="ldml-italics"><span class="ldml-refname">In re 2019-2020 #315</span>,</i> <span class="ldml-cite">¶ 13</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_6722" data-refglobal="case:inretitle,ballottitlesubmissionclausefor2015–201673,2016co24"><i class="ldml-italics"><span class="ldml-refname">In re Title, Ballot Title & Submission Clause for 2015-2016 #73</span>,</i> <span class="ldml-cite">2016 CO 24</span></a></span>, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_6722"><span class="ldml-cite">¶ 14</span></a></span>, <span class="ldml-entity"><a href="/vid/889926739" data-vids="889926739" class="ldml-reference" data-prop-ids="sentence_6722"><span class="ldml-cite">369 P.3d 565, 568</span></a></span> )</span><span class="ldml-referenceseparator">;</span> <i class="ldml-italics"><span class="ldml-signal">accord</span> </i> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="embeddedsentence_7080,sentence_6722" data-refglobal="case:inre2009–201091,235p3dat1073–79"><i class="ldml-italics"><span class="ldml-refname">In re 2009-2010 #91</span>,</i> <span class="ldml-cite">235 P.3d at 1077</span></a></span> <span class="ldml-parenthetical">(<span class="ldml-quotation quote"><span class="ldml-embeddedsentence">"<span class="ldml-parenthetical">[W]</span>hen an initiative's provisions seek to achieve purposes that bear no necessary or proper connection to the initiative's subject, the initiative violates the constitutional rule against multiple subjects."</span></span>)</span></span>.</span> <span data-paragraph-id="6721" data-sentence-id="7291" class="ldml-sentence"><span class="ldml-quotation quote">"Said another way, the single-subject requirement is not violated unless the text of the measure <span class="ldml-quotation quote">‘relates to more than one subject and has at least two distinct and separate purposes which are not dependent upon or connected with each other.’</span> "</span></span> <span data-paragraph-id="6721" data-sentence-id="7536" class="ldml-sentence"><span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="embeddedsentence_7633,sentence_7291" data-refglobal="case:inthematterofthetitle,ballottitleandsubmissionclausefor2005-200674,beverlyausfahlkempvcaldarano06sa41136p3d237may30,2006"><i class="ldml-italics"><span class="ldml-refname">In re Title, Ballot Title & Submission Clause for 2005-2006 #74</span>,</i> <span class="ldml-cite">136 P.3d 237, 239</span> <span class="ldml-parenthetical">(<span class="ldml-court">Colo.</span> <span class="ldml-date">2006</span>)</span></a></span> <span class="ldml-parenthetical">(<span class="ldml-embeddedsentence">quoting <i class="ldml-italics">In re Title, Ballot Title & Submission Clause, & Summary with Regard to a Proposed <span class="ldml-entity">Petition for <span class="ldml-entity">an Amendment</span></span> to the Const. of State Adding <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_7291"><span class="ldml-cite">Section 2</span></a></span> to <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_7291"><span class="ldml-cite">Article VII</span></a></span> <span class="ldml-parenthetical">(Petition Procs.)</span>,</i> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_7291" data-refglobal="case:inthematterofthetitle,ballottitleandsubmissionno95sa149900p2d104june30,1995"><span class="ldml-cite">900 P.2d 104, 109</span> <span class="ldml-parenthetical">(<span class="ldml-court">Colo.</span> <span class="ldml-date">1995</span>)</span></a></span> </span>)</span></span>.</span></p><p data-paragraph-id="7857" class="ldml-paragraph "> <span data-paragraph-id="7857" data-sentence-id="7858" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_7858"><span class="ldml-cite">¶14</span></a></span> Accordingly, <span class="ldml-quotation quote">"<span class="ldml-parenthetical">[w]</span>e have held repeatedly that where a proposed initiative <span class="ldml-quotation quote">‘tends to effect or to carry out one general objective or purpose,’</span> it presents only one subject."</span></span> <span data-paragraph-id="7857" data-sentence-id="8034" class="ldml-sentence"><span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_7858" data-refglobal="case:inretitle,ballottitlesubmissionclausefor2017-20184,2017co57"><span class="ldml-refname"><i class="ldml-italics">In re Title, Ballot Title & Submission Clause for 2017-2018 #4</i></span> , <span class="ldml-cite">2017 CO 57</span></a></span>, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_7858"><span class="ldml-cite">¶ 8</span></a></span></span>, <span class="ldml-referencechain"><span class="ldml-entity"><a href="/vid/890467676" data-vids="890467676" class="ldml-reference"><span class="ldml-cite">395 P.3d 318, 321</span></a></span> <span class="ldml-parenthetical">(<span class="ldml-cert">quoting</span> <span class="ldml-entity"><a href="/vid/887447218" data-vids="887447218" class="ldml-reference"><i class="ldml-italics"><span class="ldml-refname">In re Title, Ballot Title & Submission Clause, & Summary for 1999-00 #256</span>,</i> <span class="ldml-cite">12 P.3d 246, 253</span> <span class="ldml-parenthetical">(<span class="ldml-court">Colo.</span> <span class="ldml-date">2000</span>)</span></a></span> )</span></span>.</span> <span data-paragraph-id="7857" data-sentence-id="8251" class="ldml-sentence">And <span class="ldml-quotation quote">"<span class="ldml-parenthetical">[a]</span>n initiative proposing a comprehensive framework contains a single subject if all of its provisions relate directly to its single subject."</span></span> <span data-paragraph-id="7857" data-sentence-id="8399" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_8251" data-refglobal="case:inre2009–201091,235p3dat1073–79"><i class="ldml-italics"><span class="ldml-refname">In re 2009-2010 #91</span>,</i> <span class="ldml-cite">235 P.3d at 1076</span></a></span>.</span> <span data-paragraph-id="7857" data-sentence-id="8438" class="ldml-sentence">Similarly, <span class="ldml-quotation quote">"an initiative will not be deemed to violate the single subject requirement merely because it spells out details relating to its implementation."</span></span> <span data-paragraph-id="7857" data-sentence-id="8595" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_8438"><i class="ldml-italics"><span class="ldml-refname">In re 2019-2020 #315</span>,</i> <span class="ldml-cite">¶ 15</span></a></span>.</span></p><p data-paragraph-id="8622" class="ldml-paragraph "> <span data-paragraph-id="8622" data-sentence-id="8623" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_8623"><span class="ldml-cite">¶15</span></a></span> <span class="ldml-quotation quote">"The <span class="ldml-parenthetical">[permissible]</span> breadth of <span class="ldml-parenthetical">[an]</span> initiative's objective, however, is not without limits."</span></span> <span data-paragraph-id="8622" data-sentence-id="8719" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_8623"><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 ¶ 16</span></a></span>.</span> <span data-paragraph-id="8622" data-sentence-id="8732" class="ldml-sentence"><span class="ldml-quotation quote">"<span class="ldml-parenthetical">[W]</span>here an initiative advances separate and distinct purposes, <span class="ldml-quotation quote">‘the fact that both purposes relate to a broad concept or subject is insufficient to satisfy the single subject requirement.’</span> "</span></span> <span data-paragraph-id="8622" data-sentence-id="8924" class="ldml-sentence"><span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_8732" data-refglobal="case:inre2009–201091,235p3dat1073–79"><i class="ldml-italics"><span class="ldml-refname">In re 2009-2010 #91</span>,</i> <span class="ldml-cite">235 P.3d at 1076</span></a></span> <span class="ldml-parenthetical">(<span class="ldml-referencenote">alteration omitted</span>)</span> <span class="ldml-parenthetical">(<span class="ldml-cert">quoting</span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_8732" data-refglobal="case:inthematterofthetitle,ballottitleandsubmissionclause,andsummaryfor1997-199864bennettsaisenbergno98sa131960p2d1192june22,1998"><i class="ldml-italics"><span class="ldml-refname">In re Title, Ballot Title & Submission Clause, & Summary for 1997-1998 #64</span>,</i> <span class="ldml-cite">960 P.2d 1192, 1196</span> <span class="ldml-parenthetical">(<span class="ldml-court">Colo.</span> <span class="ldml-date">1998</span>)</span></a></span> )</span></span>.</span></p><p data-paragraph-id="9103" class="ldml-paragraph "><span data-paragraph-id="9103" data-sentence-id="9103" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_9103"><span class="ldml-cite">¶16</span></a></span> Finally, given the anti-logrolling and anti-fraud purposes of the single-subject requirement, our application of the necessarily-and-properly-related test has often taken into account whether voters might favor only part of an initiative and the potential for voter surprise.</span> <span data-paragraph-id="9103" data-sentence-id="9383" class="ldml-sentence"><i class="ldml-italics">See, e.g., </i> <i class="ldml-italics">In re <span class="ldml-entity">2017</span>-<span class="ldml-entity">2018</span> #4,</i> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_9383"><span class="ldml-cite">¶ 14</span></a></span>, <span class="ldml-referencechain"><span class="ldml-entity"><a href="/vid/890467676" data-vids="890467676" class="ldml-reference" data-prop-ids="sentence_9383"><span class="ldml-cite">395 P.3d at 322</span></a></span> <span class="ldml-referenceseparator">;</span> <span class="ldml-entity"><a href="/vid/890260528" data-vids="890260528" class="ldml-reference" data-prop-ids="sentence_9383"><i class="ldml-italics"><span class="ldml-refname">In re Title, Ballot Title, & Submission Clause for 2011-2012 #3</span>,</i> <span class="ldml-cite">2012 CO 25</span></a></span>, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_9383"><span class="ldml-cite">¶¶ 18-20</span></a></span></span>, <span class="ldml-referencechain"><span class="ldml-entity"><a href="/vid/890260528" data-vids="890260528" class="ldml-reference" data-prop-ids="sentence_9383"><span class="ldml-cite">274 P.3d 562, 567-68</span></a></span> <span class="ldml-referenceseparator">;</span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_9383" data-refglobal="case:inre2009–201091,235p3dat1073–79"><i class="ldml-italics"><span class="ldml-refname">In re 2009-2010 #91</span>,</i> <span class="ldml-cite">235 P.3d at 1079</span></a></span></span>.</span></p></div><div class="ldml-section"><section class="ldml-heading content__heading content__heading--depth2" data-ordinal_start="3" data-content-heading-label="C. Initiative 16 Violates the Single-Subject Requirement" data-parsed="true" data-value="C. Initiative 16 Violates the Single-Subject Requirement" data-ordinal_end="3" data-format="upper_case_letters" data-id="heading_9587" id="heading_9587" data-specifier="C"><span data-paragraph-id="9587" class="ldml-paragraph "><b class="ldml-bold"><span data-paragraph-id="9587" data-sentence-id="9587" class="ldml-sentence">C.</span> <span data-paragraph-id="9587" data-sentence-id="9590" class="ldml-sentence">Initiative 16 Violates the Single-Subject Requirement</span></b></span></section><div class="ldml-section"><section class="ldml-heading content__heading content__heading--depth3" data-ordinal_start="1" data-content-heading-label="1. Initiative 16 " data-parsed="true" data-value="1. Initiative 16" data-ordinal_end="1" data-format="number" data-id="heading_9643" id="heading_9643" data-specifier="1"><span data-paragraph-id="9643" class="ldml-paragraph "><b class="ldml-bold"><span data-paragraph-id="9643" data-sentence-id="9643" class="ldml-sentence">1.</span> <span data-paragraph-id="9643" data-sentence-id="9646" class="ldml-sentence">Initiative 16<a href="#note-fr2" class="ldml-noteanchor" id="note-ref-fr2">2</a></span> </b></span></section><p data-paragraph-id="9660" class="ldml-paragraph "> <span data-paragraph-id="9660" data-sentence-id="9661" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_9661"><span class="ldml-cite">¶17</span></a></span> Initiative 16 would remove the animal cruelty <span class="ldml-entity">statutes</span>' exception for <span class="ldml-quotation quote">"accepted animal husbandry practices utilized by any person in the care of companion or livestock animals."</span></span> <span data-paragraph-id="9660" data-sentence-id="9843" 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_9661"><span class="ldml-cite">§ 18-9-201.5<span class="ldml-parenthetical">(1)</span>, C.R.S.</span> <span class="ldml-parenthetical">(<span class="ldml-date">2020</span>)</span></a></span></span>.</span> <span data-paragraph-id="9660" data-sentence-id="9879" class="ldml-sentence">Similarly, the measure would end an exemption to certain sentencing provisions for <span class="ldml-quotation quote">"the treatment of livestock and other animals used in the farm or ranch production of food, fiber, or other agricultural products when the treatment is in accordance with accepted agricultural animal husbandry practices."</span></span> <span data-paragraph-id="9660" data-sentence-id="10184" 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_9879" data-refglobal="statute:/co/statutes/18/9/202_2"><span class="ldml-cite">§ 18-9-202<span class="ldml-parenthetical">(2)</span></span></a></span><span class="ldml-parenthetical">(a.5)</span><span class="ldml-parenthetical">(VII)</span></span>, C.R.S. <span class="ldml-parenthetical">(<span class="ldml-entity">2020</span>)</span>.</span></p><p data-paragraph-id="10227" class="ldml-paragraph "><span data-paragraph-id="10227" data-sentence-id="10227" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_10227"><span class="ldml-cite">¶18</span></a></span> Initiative 16 would also enact a safe harbor, exempting the slaughter of livestock from <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_10227" data-refglobal="statute:/co/statutes/18/9/202_1"><span class="ldml-cite">section 18-9-202<span class="ldml-parenthetical">(1)</span></span></a></span> of the animal cruelty <span class="ldml-entity">statutes</span>, which lists multiple forms of animal cruelty, under limited circumstances:</span></p><blockquote data-paragraph-id="b_10445" class="ldml-blockquote"><span data-sentence-id="10445" class="ldml-sentence">Any person who slaughters livestock <i class="ldml-italics">in accordance with accepted agricultural animal husbandry practices</i> does not violate the provisions of <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_10445"><span class="ldml-cite">subsection <span class="ldml-parenthetical">(1)</span></span></a> of <span class="ldml-entity">this section</span></span> so long as the animal has <i class="ldml-italics">lived one quarter of their natural lifespan</i> based on species, breed, and type of animal and the <span class="ldml-pagenumber" data-page_type="bracketed_cite" data-vol="489" data-val="1222" data-rep="P.3d" data-id="pagenumber_10737"></span> animal is slaughtered in such a way that the animal <i class="ldml-italics">does not needlessly suffer.</i></span></blockquote><p data-paragraph-id="10817" class="ldml-paragraph "><span data-paragraph-id="10817" data-sentence-id="10817" class="ldml-sentence"><span class="ldml-parenthetical">(<span class="ldml-referencenote">Emphases added</span>.)</span></span> <span data-paragraph-id="10817" data-sentence-id="10835" class="ldml-sentence">The initiative defines <span class="ldml-quotation quote">"natural lifespan"</span> as twenty years for cows, fifteen for sheep and pigs, ten for turkeys, eight for chickens, and six for ducks and rabbits.</span></p><p data-paragraph-id="10998" class="ldml-paragraph "><span data-paragraph-id="10998" data-sentence-id="10998" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_10998"><span class="ldml-cite">¶19</span></a></span> Further, Initiative 16 would expand the definition of <span class="ldml-quotation quote">"sexual act with an animal,"</span> a type of animal cruelty, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_10998" data-refglobal="statute:/co/statutes/18/9/202_1_a"><span class="ldml-cite">§ 18-9-202<span class="ldml-parenthetical">(1)</span><span class="ldml-parenthetical">(a)</span></span></a></span>, which currently means <span class="ldml-quotation quote">"an act between a person and an animal involving direct physical contact between the genitals of one and the mouth, anus, or genitals of the other,"</span> <span class="ldml-entity"><a class="ldml-reference"><span class="ldml-cite">§ 18-9-201<span class="ldml-parenthetical">(5)</span>, C.R.S.</span> <span class="ldml-parenthetical">(<span class="ldml-date">2020</span>)</span></a></span>.</span> <span data-paragraph-id="10998" data-sentence-id="11330" class="ldml-sentence">The initiative would broaden that definition to include <span class="ldml-quotation quote">"any intrusion or penetration, however slight, with an object or part of a person's body into an animal's anus or genitals."</span></span> <span data-paragraph-id="10998" data-sentence-id="11511" class="ldml-sentence">It would also replace the definition's exception for <span class="ldml-quotation quote">"accepted animal husbandry practices,"</span> <i class="ldml-italics"><span class="ldml-referencechain"><span class="ldml-signal">see</span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_11511"><span class="ldml-cite">id.</span></a></span></span>,</i> with an exception for <span class="ldml-quotation quote">"dispensing care to an animal in the interest of improving that animal's health."</span></span></p><p data-paragraph-id="11715" class="ldml-paragraph "><span data-paragraph-id="11715" data-sentence-id="11715" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_11715"><span class="ldml-cite">¶20</span></a></span> <span class="ldml-entity">Petitioners</span> contend that Initiative 16's central focus is removing the livestock exceptions from the animal cruelty <span class="ldml-entity">statutes</span> and that the measure addresses two additional subjects by creating a limited safe harbor for the slaughter of livestock and enlarging the definition of <span class="ldml-quotation quote">"sexual act with an animal."</span></span> <span data-paragraph-id="11715" data-sentence-id="12025" class="ldml-sentence"><span class="ldml-entity">Respondents</span> counter that Initiative 16 relates to one subject: animal cruelty.</span> <span data-paragraph-id="11715" data-sentence-id="12104" class="ldml-sentence">The Board maintains that the initiative covers the single subject of ending the animal cruelty <span class="ldml-entity">statutes</span>' exemptions for livestock and that the initiative's other provisions implement that central focus.</span></p><p data-paragraph-id="12306" class="ldml-paragraph "> <span data-paragraph-id="12306" data-sentence-id="12307" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_12307"><span class="ldml-cite">¶21</span></a></span> <span class="ldml-quotation quote">"<span class="ldml-entity">We</span> must examine sufficiently an initiative's central theme to determine whether it contains hidden purposes under a broad theme."</span></span> <span data-paragraph-id="12306" data-sentence-id="12442" class="ldml-sentence"><i class="ldml-italics">In re Title, Ballot Title & Submission Clause, for <span class="ldml-entity">2007</span>-<span class="ldml-entity">2008</span>, #17,</i> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_12442" data-refglobal="case:inthematterofthetitle,ballottitleandsubmissionclause,for2007-2008,17newstatedepartmentandelectedboardforenvironmentalconservationdouglaskemperstuartasanderson,registeredelectorsofthestateofcoloradovhamiltonno07sa201172p3d871november19,2007"><span class="ldml-cite">172 P.3d 871, 875</span> <span class="ldml-parenthetical">(<span class="ldml-court">Colo.</span> <span class="ldml-date">2007</span>)</span></a></span>.</span> <span data-paragraph-id="12306" data-sentence-id="12541" class="ldml-sentence">Examining Initiative 16's text, <span class="ldml-entity">we</span> agree with <span class="ldml-entity">Petitioners</span> and the Board that the measure's central theme is to extend the animal cruelty <span class="ldml-entity">statutes</span> to livestock.</span> <span data-paragraph-id="12306" data-sentence-id="12701" class="ldml-sentence">Although <span class="ldml-entity">Respondents</span> now seek to characterize the initiative's theme more broadly, <span class="ldml-entity">they</span> told the Board that Initiative 16's single subject is <span class="ldml-quotation quote">"the removal of the exemptions that livestock have in the cruelty to animals <span class="ldml-entity">statutes</span>."</span></span> <span data-paragraph-id="12306" data-sentence-id="12931" class="ldml-sentence"><i class="ldml-italics">Hearing on Proposed Initiative <span class="ldml-entity">2021</span>-<span class="ldml-entity">2022</span> #16 before the Title Bd.,</i> at 9:25 <span class="ldml-parenthetical">(<span class="ldml-entity">Mar. 17, 2021</span>)</span>, https://csos.granicus.com/MediaPlayer.php?view_<span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_12931" data-refglobal="case:inthematterofthetitle,ballottitleandsubmissionclause,for2007-2008,17newstatedepartmentandelectedboardforenvironmentalconservationdouglaskemperstuartasanderson,registeredelectorsofthestateofcoloradovhamiltonno07sa201172p3d871november19,2007"><span class="ldml-cite">id</span></a></span>=1&clip_<span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_12931" data-refglobal="case:inthematterofthetitle,ballottitleandsubmissionclause,for2007-2008,17newstatedepartmentandelectedboardforenvironmentalconservationdouglaskemperstuartasanderson,registeredelectorsofthestateofcoloradovhamiltonno07sa201172p3d871november19,2007"><span class="ldml-cite">id</span></a></span>=199<span class="ldml-parenthetical">[https://perma.cc/25S4-WHXA]</span> <span class="ldml-parenthetical">(statement of <span class="ldml-entity">Alexander Sage</span>)</span>; <i class="ldml-italics">see also About Ballot Initiative PAUSE</i> , Colorado PAUSE, https://www.coloradopause.org/about <span class="ldml-parenthetical">(last visited <span class="ldml-entity">June 15, 2021</span>)</span> <span class="ldml-parenthetical">(<span class="ldml-quotation quote">"The best initiative to write was clear and simple; extend the definition of animal cruelty to farmed animals."</span>)</span></span><span data-paragraph-id="12306" data-sentence-id="13381" class="ldml-sentence">.</span></p><p data-paragraph-id="13382" class="ldml-paragraph "> <span data-paragraph-id="13382" data-sentence-id="13383" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_13383"><span class="ldml-cite">¶22</span></a></span> Moreover, <span class="ldml-quotation quote">"animal cruelty,"</span> the unifying label proposed by <span class="ldml-entity">Respondents</span>, is the type of overly broad theme that <span class="ldml-entity">we</span>'ve rejected.</span> <span data-paragraph-id="13382" data-sentence-id="13514" class="ldml-sentence"><i class="ldml-italics">See, e.g., </i> <i class="ldml-italics">In re Title, Ballot Title & Submission Clause for <span class="ldml-entity">2015</span>-<span class="ldml-entity">2016</span> #132,</i> <span class="ldml-referencechain"><span class="ldml-entity"><a href="/vid/895687514" data-vids="895687514" class="ldml-reference" data-prop-ids="sentence_13514"><span class="ldml-cite">2016 CO 55</span></a></span>, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_13514"><span class="ldml-cite">¶ 34</span></a></span></span>, <span class="ldml-referencechain"><span class="ldml-entity"><a href="/vid/895687514" data-vids="895687514" class="ldml-reference" data-prop-ids="sentence_13514"><span class="ldml-cite">374 P.3d 460, 468-69</span></a></span> <span class="ldml-parenthetical">(<span class="ldml-embeddedsentence"><span class="ldml-relatingauthority">rejecting</span> <span class="ldml-quotation quote">"the overarching subject of <span class="ldml-quotation quote">‘redistricting in Colorado’</span> "</span></span>)</span><span class="ldml-referenceseparator">;</span></span> <i class="ldml-italics">In re <span class="ldml-entity">2013</span>-<span class="ldml-entity">2014</span> #76,</i> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_13514"><span class="ldml-cite">¶ 10</span></a></span>, <span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_13514" data-refglobal="case:inthematterofthetitle,ballottitle,andsubmissionclausefor2013–201476philiphayescaseno14sa105333p3d76june23,2014"><span class="ldml-cite">333 P.3d at 79</span></a></span> <span class="ldml-parenthetical">(<span class="ldml-quotation quote"><span class="ldml-embeddedsentence">"The proponents attempt to unite these separate subjects under the description <span class="ldml-quotation quote">‘recall of government officers’</span> in the title and submission clause.</span> <span class="ldml-embeddedsentence"><span class="ldml-entity">We</span> have previously found such umbrella proposals unconstitutional."</span></span>)</span><span class="ldml-referenceseparator">;</span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_13514" data-refglobal="case:inre2009–201091,235p3dat1073–79"><i class="ldml-italics"><span class="ldml-refname">In re 2009-2010 #91</span>,</i> <span class="ldml-cite">235 P.3d at 1080</span></a></span> <span class="ldml-parenthetical">(<span class="ldml-quotation quote"><span class="ldml-embeddedsentence">"<span class="ldml-parenthetical">[T]</span>he broad purpose <span class="ldml-quotation quote">‘to protect and preserve the waters of this state’</span> does not cure the multiple subject violation of Initiative # 91."</span></span>)</span><span class="ldml-referenceseparator">;</span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_13514" data-refglobal="case:inthematterofthetitle,ballottitleandsubmissionclause,for2007-2008,17newstatedepartmentandelectedboardforenvironmentalconservationdouglaskemperstuartasanderson,registeredelectorsofthestateofcoloradovhamiltonno07sa201172p3d871november19,2007"><i class="ldml-italics"><span class="ldml-refname">In re 2007-2008 #17</span>,</i> <span class="ldml-cite">172 P.3d at 875-76</span></a></span> <span class="ldml-parenthetical">(<span class="ldml-quotation quote"><span class="ldml-embeddedsentence">"<span class="ldml-parenthetical">[J]</span>ust as <span class="ldml-quotation quote">‘water’</span> was too broad a theme ... to unite multiple subjects into a single subject, so do <span class="ldml-quotation quote">‘environmental conservation’</span> and <span class="ldml-quotation quote">‘conservation stewardship’</span> fail to suffice here."</span></span>)</span></span>.</span> <span data-paragraph-id="13382" data-sentence-id="14368" class="ldml-sentence">If such vague subjects were permissible, <span class="ldml-quotation quote">"incongruous and disconnected provisions could be contained in a single initiative and the very practices the single subject requirement was intended to prevent would be facilitated."</span></span> <span data-paragraph-id="13382" data-sentence-id="14593" class="ldml-sentence"><span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="embeddedsentence_14632,sentence_14368" data-refglobal="case:inre1997-199864,960p2dat1197"><i class="ldml-italics"><span class="ldml-refname">In re 1997-1998 #64</span>,</i> <span class="ldml-cite">960 P.2d at 1200</span></a></span> <span class="ldml-parenthetical">(<span class="ldml-embeddedsentence"><span class="ldml-relatingauthority">rejecting</span> <span class="ldml-quotation quote">"the entire judicial branch"</span> as a single subject</span>)</span></span>.</span></p><p data-paragraph-id="14692" class="ldml-paragraph "><span data-paragraph-id="14692" data-sentence-id="14692" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_14692"><span class="ldml-cite">¶23</span></a></span> <span class="ldml-entity">We</span> now examine whether the provisions identified by <span class="ldml-entity">Petitioners</span> are related to Initiative 16's central theme of expanding the animal cruelty <span class="ldml-entity">statutes</span> to include livestock.</span></p></div><div class="ldml-section"><section class="ldml-heading content__heading content__heading--depth3" data-ordinal_start="2" data-content-heading-label="2. The Safe Harbor Provision" data-parsed="true" data-value="2. The Safe Harbor Provision" data-ordinal_end="2" data-format="number" data-id="heading_14867" id="heading_14867" data-specifier="2"><span data-paragraph-id="14867" class="ldml-paragraph "><b class="ldml-bold"><span data-paragraph-id="14867" data-sentence-id="14867" class="ldml-sentence">2.</span> <span data-paragraph-id="14867" data-sentence-id="14870" class="ldml-sentence">The Safe Harbor Provision</span></b></span></section><p data-paragraph-id="14895" class="ldml-paragraph "><span data-paragraph-id="14895" data-sentence-id="14895" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_14895"><span class="ldml-cite">¶24</span></a></span> <span class="ldml-entity">We</span> begin with the safe harbor provision, which would exempt from <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_14895" data-refglobal="statute:/co/statutes/18/9/202_1"><span class="ldml-cite">section 18-9-202<span class="ldml-parenthetical">(1)</span></span></a></span> of the animal cruelty <span class="ldml-entity">statutes</span> the slaughter of livestock when it is done <span class="ldml-quotation quote">"in <span class="ldml-pagenumber" data-page_type="bracketed_cite" data-vol="489" data-val="1223" data-rep="P.3d" data-id="pagenumber_15062"></span> accordance with accepted agricultural animal husbandry practices,"</span> the animals have lived <span class="ldml-quotation quote">"one quarter of their natural lifespan<span class="ldml-parenthetical">[s]</span>,"</span> and <span class="ldml-entity">they</span> don't <span class="ldml-quotation quote">"needlessly suffer."</span></span></p><p data-paragraph-id="15232" class="ldml-paragraph "><span data-paragraph-id="15232" data-sentence-id="15232" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_15232"><span class="ldml-cite">¶25</span></a></span> <span class="ldml-entity">Petitioners</span> claim that ending the exemptions would affect <span class="ldml-quotation quote">"how animals are to be treated <i class="ldml-italics">while</i> <span class="ldml-entity">they</span> are alive,"</span> whereas the safe harbor concerns <span class="ldml-quotation quote">"what age an animal must reach in order to be lawfully slaughtered."</span></span> <span data-paragraph-id="15232" data-sentence-id="15450" class="ldml-sentence"><span class="ldml-entity">They</span> further assert that voters would be surprised to learn that, <span class="ldml-quotation quote">"by voting for better treatment, <span class="ldml-entity">they</span> are fundamentally altering when livestock may be slaughtered for food."</span></span></p><p data-paragraph-id="15625" class="ldml-paragraph "><span data-paragraph-id="15625" data-sentence-id="15625" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_15625"><span class="ldml-cite">¶26</span></a></span> <span class="ldml-entity">Respondents</span> argue that these provisions address the single subject of animal cruelty because <span class="ldml-entity">they</span> amend the animal cruelty <span class="ldml-entity">statutes</span> and because the <span class="ldml-quotation quote">"killing of baby animals"</span> is a form of animal cruelty.</span></p><p data-paragraph-id="15831" class="ldml-paragraph "><span data-paragraph-id="15831" data-sentence-id="15831" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_15831"><span class="ldml-cite">¶27</span></a></span> The Board insists that the safe harbor rule is an <span class="ldml-quotation quote">"implementing provision<span class="ldml-parenthetical">[ ]</span>"</span> directly tied to Initiative 16's <span class="ldml-quotation quote">"central focus"</span> of <span class="ldml-quotation quote">"the incorporation of livestock into the animal cruelty <span class="ldml-entity">statutes</span>."</span></span> <span data-paragraph-id="15831" data-sentence-id="16032" class="ldml-sentence">As the Board sees it, <span class="ldml-quotation quote">"<span class="ldml-parenthetical">[r]</span>emoving any existing exemption for livestock ... may be interpreted to ban the slaughter of these animals,"</span> so <span class="ldml-quotation quote">"decriminalizing the slaughter of livestock once <span class="ldml-entity">they</span> have reached a certain age ... is directly related"</span> to ending the exemptions.</span></p><p data-paragraph-id="16300" class="ldml-paragraph "> <span data-paragraph-id="16300" data-sentence-id="16301" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_16301"><span class="ldml-cite">¶28</span></a></span> Employing all legitimate presumptions in favor of the propriety of the Board's actions, <span class="ldml-entity">we</span> agree with the Board.</span> <span data-paragraph-id="16300" data-sentence-id="16418" class="ldml-sentence">The safe harbor provision seeks to implement the central focus of Initiative 16 by addressing when the slaughter of livestock would cross the threshold into animal cruelty after the livestock exceptions are repealed.</span></p><p data-paragraph-id="16634" class="ldml-paragraph "> <span data-paragraph-id="16634" data-sentence-id="16635" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_16635"><span class="ldml-cite">¶29</span></a></span> Although <span class="ldml-quotation quote">"<span class="ldml-parenthetical">[m]</span>ultiple ideas might well be parsed from even the simplest proposal by applying ever more exacting levels of analytic abstraction,"</span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_16635" data-refglobal="case:inthematterofthetitle,ballottitleandsubmissionclause,andsummaryfor1997-1998no74francisbhowes,iiino98sa146962p2d927june15,1998"><i class="ldml-italics"><span class="ldml-refname">In re Title, Ballot Title & Submission Clause, & Summary for 1997-1998 No. 74</span>,</i> <span class="ldml-cite">962 P.2d 927, 929</span> <span class="ldml-parenthetical">(<span class="ldml-court">Colo.</span> <span class="ldml-date">1998</span>)</span></a></span>, <span class="ldml-quotation quote">"<span class="ldml-parenthetical">[i]</span>mplementation details that are <span class="ldml-quotation quote">‘directly tied’</span> to the initiative's <span class="ldml-quotation quote">‘central focus’</span> do not constitute a separate subject,"</span> <span class="ldml-referencechain"><span class="ldml-entity"><a href="/vid/895742249" data-vids="895742249" class="ldml-reference" data-prop-ids="sentence_16635"><i class="ldml-italics"><span class="ldml-refname">In re Title, Ballot Title & Submission Clause, & Summary for 1999-2000 No. 200A</span>,</i> <span class="ldml-cite">992 P.2d 27, 30</span> <span class="ldml-parenthetical">(<span class="ldml-court">Colo.</span> <span class="ldml-date">2000</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_16635" data-refglobal="case:inthematterofthetitle,ballottitleandsubmissionclause,andsummaryfor1997-1998no74francisbhowes,iiino98sa146962p2d927june15,1998"><i class="ldml-italics"><span class="ldml-refname">In re 1997-1998 No. 74</span>,</i> <span class="ldml-cite">962 P.2d at 929</span></a></span> )</span></span>.</span></p><p data-paragraph-id="17181" class="ldml-paragraph "><span data-paragraph-id="17181" data-sentence-id="17181" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_17181"><span class="ldml-cite">¶30</span></a></span> For example, an initiative that would have required doctors to disclose certain information to women before performing abortions addressed a single subject even though it also required data collection and reporting.</span> <span data-paragraph-id="17181" data-sentence-id="17401" class="ldml-sentence"><span class="ldml-entity"><a href="/vid/895742249" data-vids="895742249" class="ldml-reference" data-prop-ids="sentence_17181"><span class="ldml-cite"><i class="ldml-italics">Id.</i> at 31</span></a></span>.</span> <span data-paragraph-id="17181" data-sentence-id="17412" class="ldml-sentence"><span class="ldml-quotation quote">"<span class="ldml-parenthetical">[T]</span>he physician data gathering requirement implement<span class="ldml-parenthetical">[ed]</span> the informed consent purpose by reminding physicians ... to deliver the prescribed information to each patient,"</span> and <span class="ldml-quotation quote">"the physician reporting provision enforce <span class="ldml-parenthetical">[d]</span> the informed consent requirement by requiring annual documentation ... of a physician's compliance."</span></span> <span data-paragraph-id="17181" data-sentence-id="17735" class="ldml-sentence"><span class="ldml-entity"><a href="/vid/895742249" data-vids="895742249" class="ldml-reference" data-prop-ids="sentence_17412"><span class="ldml-cite"><i class="ldml-italics">Id.</i></span></a></span></span> <span data-paragraph-id="17181" data-sentence-id="17739" class="ldml-sentence">That initiative was <span class="ldml-quotation quote">"not transformed into a multi-subject proposal simply because it specifie<span class="ldml-parenthetical">[d]</span> mechanisms for carrying out <span class="ldml-parenthetical">[its]</span> single subject."</span></span> <span data-paragraph-id="17181" data-sentence-id="17887" class="ldml-sentence"><span class="ldml-entity"><a href="/vid/895742249" data-vids="895742249" class="ldml-reference" data-prop-ids="sentence_17739"><span class="ldml-cite"><i class="ldml-italics">Id.</i></span></a></span></span></p><p data-paragraph-id="17890" class="ldml-paragraph "><span data-paragraph-id="17890" data-sentence-id="17890" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_17890"><span class="ldml-cite">¶31</span></a></span> More recently, an initiative addressed the single subject of limiting housing growth where it would have <span class="ldml-quotation quote">"limit<span class="ldml-parenthetical">[ed]</span> housing growth to one percent annually in ten jurisdictions until <span class="ldml-entity">2021</span> and prohibit<span class="ldml-parenthetical">[ed]</span> permits for new residential housing units in the same jurisdictions until <span class="ldml-entity">2019</span>"</span>; <span class="ldml-quotation quote">"designate<span class="ldml-parenthetical">[d]</span> who has authority ... to enact, alter, and repeal regulations on housing growth"</span>; and <span class="ldml-quotation quote">"establishe<span class="ldml-parenthetical">[d]</span> a signature requirement for proposals to regulate the growth of privately owned residential housing and outline<span class="ldml-parenthetical">[d]</span> procedures for challenging signatures and the form and content of a petition."</span></span> <span data-paragraph-id="17890" data-sentence-id="18488" class="ldml-sentence"><i class="ldml-italics">In re <span class="ldml-entity">2017</span>-<span class="ldml-entity">2018</span> #4</i> , <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_18488"><span class="ldml-cite">¶¶ 10-12</span></a></span>, <span class="ldml-entity"><a href="/vid/890467676" data-vids="890467676" class="ldml-reference" data-prop-ids="sentence_18488"><span class="ldml-cite">395 P.3d at 321-22</span></a></span>.</span> <span data-paragraph-id="17890" data-sentence-id="18539" class="ldml-sentence">These provisions addressed one subject because <span class="ldml-entity">they</span> <span class="ldml-quotation quote">" <span class="ldml-quotation quote">‘tend<span class="ldml-parenthetical">[ed]</span> to ... carry out the one general objective’</span> of limiting housing growth in Colorado,"</span> <span class="ldml-entity"><a href="/vid/890467676" data-vids="890467676" class="ldml-reference" data-prop-ids="sentence_18539"><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_18539"><span class="ldml-cite">¶ 10</span></a></span>, <span class="ldml-referencechain"><span class="ldml-entity"><a href="/vid/890467676" data-vids="890467676" class="ldml-reference" data-prop-ids="sentence_18539"><span class="ldml-cite">395 P.3d at 321</span></a></span> <span class="ldml-parenthetical">(<span class="ldml-referencenote">alteration omitted</span>)</span> <span class="ldml-parenthetical">(<span class="ldml-cert">quoting</span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_18539" data-refglobal="case:inre1999-00256,12p3dat253"><i class="ldml-italics"><span class="ldml-refname">In re 1999-00 #256</span>,</i> <span class="ldml-cite">12 P.3d at 253</span></a></span> )</span></span>, or were <span class="ldml-quotation quote">"implementing provision<span class="ldml-parenthetical">[s]</span> ... directly tied to the initiative's central focus,"</span> <span class="ldml-entity"><a href="/vid/890467676" data-vids="890467676" class="ldml-reference" data-prop-ids="sentence_18539"><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_18539"><span class="ldml-cite">¶ 13</span></a></span>, <span class="ldml-referencechain"><span class="ldml-entity"><a href="/vid/890467676" data-vids="890467676" class="ldml-reference" data-prop-ids="sentence_18539"><span class="ldml-cite">395 P.3d at 322</span></a></span> <span class="ldml-parenthetical">(<span class="ldml-referencenote">alteration omitted</span>)</span> <span class="ldml-parenthetical">(<span class="ldml-cert">quoting</span> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_18539" data-refglobal="case:inthematterofthetitle,ballottitleandsubmissionclausefor2009-201045drmarkearnestleibigvgormanno10sa100234p3d642june21,2010"><i class="ldml-italics"><span class="ldml-refname">In re Title, Ballot Title & Submission Clause for 2009-2010 #45</span>,</i> <span class="ldml-cite">234 P.3d 642, 646</span> <span class="ldml-parenthetical">(<span class="ldml-court">Colo.</span> <span class="ldml-date">2010</span>)</span></a></span> )</span></span>.</span></p><p data-paragraph-id="19031" class="ldml-paragraph "><span data-paragraph-id="19031" data-sentence-id="19031" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_19031"><span class="ldml-cite">¶32</span></a></span> Here, too, carving out a limited safe harbor tends to carry out and implement the general objective of Initiative 16.</span> <span data-paragraph-id="19031" data-sentence-id="19153" class="ldml-sentence">If the animal cruelty <span class="ldml-entity">statutes</span> were revised to cover livestock, a natural next question would be when, if ever, the slaughter of livestock would qualify as animal cruelty.</span> <span data-paragraph-id="19031" data-sentence-id="19325" class="ldml-sentence">The safe harbor provision aims to provide some guidance by clarifying that slaughtering livestock <span class="ldml-pagenumber" data-page_type="bracketed_cite" data-vol="489" data-val="1224" data-rep="P.3d" data-id="pagenumber_19423"></span> wouldn't count as animal cruelty under <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_19325" data-refglobal="statute:/co/statutes/18/9/202_1_a"><span class="ldml-cite">section 18-9-202<span class="ldml-parenthetical">(1)</span><span class="ldml-parenthetical">(a)</span></span></a></span> if the animals have lived a minimum number of years and <span class="ldml-entity">they</span>'re killed in accordance with accepted animal husbandry practices that don't cause needless suffering.</span> <span data-paragraph-id="19031" data-sentence-id="19649" class="ldml-sentence">Contrary to <span class="ldml-entity">Petitioners</span>' suggestion that such a safe harbor concerns the separate topic of livestock's deaths, a policy that prevents the killing of young livestock addresses the treatment of living animals.</span> <span data-paragraph-id="19031" data-sentence-id="19857" class="ldml-sentence">So, the safe harbor provision is necessarily and properly connected because it is an implementation detail directly tied to the initiative's central focus.<a href="#note-fr3" class="ldml-noteanchor" id="note-ref-fr3">3</a></span> </p><p data-paragraph-id="20013" class="ldml-paragraph "><span data-paragraph-id="20013" data-sentence-id="20013" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_20013"><span class="ldml-cite">¶33</span></a></span> <span class="ldml-entity">We</span> also note that the safe harbor provision presents neither of the evils that the single-subject requirement aims to prevent.</span> <span data-paragraph-id="20013" data-sentence-id="20144" class="ldml-sentence">The risk of logrolling is low because ending the exemptions and creating the safe harbor <span class="ldml-quotation quote">"point in the same direction"</span> of increasing the welfare of livestock, <i class="ldml-italics">see </i> <i class="ldml-italics">In re <span class="ldml-entity">2017</span>-<span class="ldml-entity">2018</span> #4</i> , <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_20144"><span class="ldml-cite">¶ 14</span></a></span>, <span class="ldml-entity"><a href="/vid/890467676" data-vids="890467676" class="ldml-reference" data-prop-ids="sentence_20144"><span class="ldml-cite">395 P.3d at 322</span></a></span>, and thus don't <span class="ldml-quotation quote">"seek to garner support from various factions"</span> with <span class="ldml-quotation quote">"different or conflicting goals,"</span> <span class="ldml-referencechain"><i class="ldml-italics"><span class="ldml-signal">see</span> </i> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_20144" data-refglobal="case:inretitle,ballottitle,submissionclausefor2013-201489,2014co66"><i class="ldml-italics"><span class="ldml-refname">In re Title, Ballot Title, & Submission Clause for 2013-2014 #89</span>,</i> <span class="ldml-cite">2014 CO 66</span></a></span>, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_20144"><span class="ldml-cite">¶ 18</span></a></span></span>, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_20144" data-refglobal="case:inthematterofthetitle,ballottitle,andsubmissionclausefor2013–201489douglaskemper,mizraimscorderoprestidgevleahycaseno14sa126328p3d172june30,2014"><span class="ldml-cite">328 P.3d 172, 178</span></a></span>.</span> <span data-paragraph-id="20013" data-sentence-id="20561" class="ldml-sentence">And the safe harbor provision wouldn't surprise voters because it <span class="ldml-quotation quote">"relates to the same subject"</span> as ending the livestock exemptions, its <span class="ldml-quotation quote">"plain language"</span> unambiguously proposes the safe harbor rule, and <span class="ldml-quotation quote">"the proposal is not particularly lengthy or complex."</span></span> <span data-paragraph-id="20013" data-sentence-id="20818" class="ldml-sentence"><span class="ldml-referencechain"><i class="ldml-italics"><span class="ldml-signal">See</span> </i> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_20561" data-refglobal="case:inthematterofthetitle,ballottitle,andsubmissionclausefor2013–201489douglaskemper,mizraimscorderoprestidgevleahycaseno14sa126328p3d172june30,2014"><span class="ldml-cite"><i class="ldml-italics">id.</i></span></a></span></span> at <span class="ldml-entity"><a class="ldml-reference"><span class="ldml-cite">¶ 19</span></a></span>, <span class="ldml-entity"><a class="ldml-reference" data-refglobal="case:inthematterofthetitle,ballottitle,andsubmissionclausefor2013–201489douglaskemper,mizraimscorderoprestidgevleahycaseno14sa126328p3d172june30,2014"><span class="ldml-cite">328 P.3d at 178</span></a></span>.</span></p><p data-paragraph-id="20852" class="ldml-paragraph "><span data-paragraph-id="20852" data-sentence-id="20852" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_20852"><span class="ldml-cite">¶34</span></a></span> Next, <span class="ldml-entity">we</span> examine whether Initiative 16 violates the single-subject rule by expanding the definition of <span class="ldml-quotation quote">"sexual act with an animal."</span></span></p></div><div class="ldml-section"><section class="ldml-heading content__heading content__heading--depth3" data-ordinal_start="3" data-content-heading-label="3. The Definition of &quot;Sexual Act with an Animal&quot;" data-parsed="true" data-value="3. The Definition of &quot;Sexual Act with an Animal&quot;" data-ordinal_end="3" data-format="number" data-id="heading_20987" id="heading_20987" data-specifier="3"><span data-paragraph-id="20987" class="ldml-paragraph "><b class="ldml-bold"><span data-paragraph-id="20987" data-sentence-id="20987" class="ldml-sentence">3.</span> <span data-paragraph-id="20987" data-sentence-id="20990" class="ldml-sentence">The Definition of <span class="ldml-quotation quote">"<span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_20990"><span class="ldml-cite">Sexual Act</span></a></span> with an Animal"</span></span></b></span></section><p data-paragraph-id="21035" class="ldml-paragraph "> <span data-paragraph-id="21035" data-sentence-id="21036" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_21036"><span class="ldml-cite">¶35</span></a></span> Initiative 16 would amend the definition of <span class="ldml-quotation quote">"sexual act with an animal"</span> to include <span class="ldml-quotation quote">"any intrusion or penetration, however slight, with an object or part of a person's body into an animal's anus or genitals"</span> unless you're <span class="ldml-quotation quote">"dispensing care to an animal in the interest of improving that animal's health."</span></span> <span data-paragraph-id="21035" data-sentence-id="21343" class="ldml-sentence">Currently, the definition is limited to <span class="ldml-quotation quote">"an act between a person and an animal involving direct physical contact between the genitals of one and the mouth, anus, or genitals of the other,"</span> with an exception for <span class="ldml-quotation quote">"accepted animal husbandry practices."</span></span> <span data-paragraph-id="21035" data-sentence-id="21593" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_21343" data-refglobal="statute:/co/statutes/18/9/201_5"><span class="ldml-cite">§ 18-9-201<span class="ldml-parenthetical">(5)</span></span></a></span>.</span> <span data-paragraph-id="21035" data-sentence-id="21608" class="ldml-sentence">Engaging in a sexual act with an animal is one way to commit animal cruelty.</span> <span data-paragraph-id="21035" data-sentence-id="21685" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_21608" data-refglobal="statute:/co/statutes/18/9/202_1_a"><span class="ldml-cite">§ 18-9-202<span class="ldml-parenthetical">(1)</span><span class="ldml-parenthetical">(a)</span></span></a></span>.</span></p><p data-paragraph-id="21702" class="ldml-paragraph "><span data-paragraph-id="21702" data-sentence-id="21702" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_21702"><span class="ldml-cite">¶36</span></a></span> <span class="ldml-entity">Petitioners</span> contend that this change isn't necessarily and properly connected to removing the livestock exceptions because <span class="ldml-quotation quote">"<span class="ldml-parenthetical">[o]</span>ne issue concerns expanding the types of animals covered by <span class="ldml-parenthetical">[the animal cruelty <span class="ldml-entity">statutes</span>]</span>, while the other redefines a type of conduct that constitutes animal cruelty"</span> for both livestock and other animals.</span> <span data-paragraph-id="21702" data-sentence-id="22039" class="ldml-sentence"><span class="ldml-entity">They</span> also argue that the initiative presents the <span class="ldml-quotation quote">"politically explosive topic"</span> of sex with animals <span class="ldml-quotation quote">"to provide cover for their seemingly less politically compelling topic of treating livestock like pets."</span></span> <span data-paragraph-id="21702" data-sentence-id="22244" class="ldml-sentence">Finally, <span class="ldml-entity">they</span> say that voters <span class="ldml-quotation quote">"will be surprised to discover, in voting on a measure that is supposedly about <span class="ldml-quotation quote">‘livestock,’</span> <span class="ldml-entity">they</span> actually approved a measure that covers the care of pets."</span></span></p><p data-paragraph-id="22430" class="ldml-paragraph "><span data-paragraph-id="22430" data-sentence-id="22430" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_22430"><span class="ldml-cite">¶37</span></a></span> <span class="ldml-entity">Respondents</span> counter that <span class="ldml-quotation quote">"enhancing the illegality of sexual acts committed against animals"</span> falls under the umbrella of amending the animal cruelty <span class="ldml-entity">statutes</span>.</span></p><p data-paragraph-id="22592" class="ldml-paragraph "><span data-paragraph-id="22592" data-sentence-id="22592" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_22592"><span class="ldml-cite">¶38</span></a></span> The Board claims that this is another implementing provision because <span class="ldml-quotation quote">"specifically including livestock within the ambit of criminal animal cruelty <span class="ldml-entity">statutes</span> ... threatens to implicate many traditional or widely accepted agricultural or veterinary practices,"</span> including artificial insemination.</span> <span data-paragraph-id="22592" data-sentence-id="22889" class="ldml-sentence">According to the Board, amending the definition <span class="ldml-quotation quote">"clarif<span class="ldml-parenthetical">[ies]</span> how the definition ... will apply to livestock."</span></span> <span data-paragraph-id="22592" data-sentence-id="22999" class="ldml-sentence">Further, the Board rejects <span class="ldml-entity">Petitioners</span>' logrolling argument because <span class="ldml-quotation quote">"<span class="ldml-parenthetical">[v]</span>oters will either favor expanding the reach of <span class="ldml-parenthetical">[the <span class="ldml-pagenumber" data-page_type="bracketed_cite" data-vol="489" data-val="1225" data-rep="P.3d" data-id="pagenumber_23123"></span> animal cruelty]</span> laws to criminalize a greater range of activity, or not."</span></span></p><p data-paragraph-id="23197" class="ldml-paragraph "><span data-paragraph-id="23197" data-sentence-id="23197" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_23197"><span class="ldml-cite">¶39</span></a></span> Even applying the deferential standard of review for the consideration of the Board's single-subject decisions, <span class="ldml-entity">we</span> agree with <span class="ldml-entity">Petitioners</span> that this provision addresses a second subject.</span> <span data-paragraph-id="23197" data-sentence-id="23387" class="ldml-sentence">It doesn't clarify how <span class="ldml-quotation quote">"sexual act with an animal"</span> would apply to livestock if the livestock exemptions were repealed, something that arguably would further Initiative 16's central focus.</span> <span data-paragraph-id="23197" data-sentence-id="23575" class="ldml-sentence">Instead, it would modify the standard of care for all animals by criminalizing new conduct, regardless of whether that conduct is directed at livestock or other animals.</span></p><p data-paragraph-id="23744" class="ldml-paragraph "><span data-paragraph-id="23744" data-sentence-id="23744" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_23744"><span class="ldml-cite">¶40</span></a></span> By serving at least two distinct and separate purposes, Initiative 16 is analogous to the initiative that tried, impermissibly, to combine a tax credit with procedural requirements for future ballot titles, <span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_23744" data-refglobal="case:inthematterofthetitle,ballottitleandsubmissionno95sa192900p2d121july19,1995"><i class="ldml-italics"><span class="ldml-refname">In re Amend TABOR 25</span>,</i> <span class="ldml-cite">900 P.2d 121, 125</span> <span class="ldml-parenthetical">(<span class="ldml-court">Colo.</span> <span class="ldml-date">1995</span>)</span></a></span> <span class="ldml-referenceseparator">;</span></span> the initiatives that erroneously combined tax cuts with mandatory reductions in state spending, <span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_23744" data-refglobal="case:matteroftitle,ballottitleandsubmissionclause,summaryfor1997-98no84johnsoutceltnos98sa147,98sa148961p2d456june8,1998"><i class="ldml-italics"><span class="ldml-refname">In re Title, Ballot Title & Submission Clause, Summary for 1997-98 No. 84</span>,</i> <span class="ldml-cite">961 P.2d 456, 460</span> <span class="ldml-parenthetical">(<span class="ldml-court">Colo.</span> <span class="ldml-date">1998</span>)</span></a></span> <span class="ldml-referenceseparator">;</span></span> and the initiative that focused on the qualifications of judicial officers while also addressing the second subject of the number of judges in each district, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_23744" data-refglobal="case:inre1997-199864,960p2dat1197"><i class="ldml-italics"><span class="ldml-refname">In re 1997-1998 #64</span>,</i> <span class="ldml-cite">960 P.2d at 1197</span></a></span>.</span></p><p data-paragraph-id="24410" class="ldml-paragraph "><span data-paragraph-id="24410" data-sentence-id="24410" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_24410"><span class="ldml-cite">¶41</span></a></span> So, Initiative 16 fails to satisfy the single-subject requirement because expanding the definition of <span class="ldml-quotation quote">"sexual act with an animal"</span> isn't necessarily and properly connected to the measure's central focus of incorporating livestock into the animal cruelty <span class="ldml-entity">statutes</span>.</span> <span data-paragraph-id="24410" data-sentence-id="24677" class="ldml-sentence">Indeed, notwithstanding the initiative's brevity, combining the repeal of the livestock exceptions with the criminalization of new conduct toward all animals <span class="ldml-quotation quote">"run<span class="ldml-parenthetical">[s]</span> the risk of surprising voters with a <span class="ldml-quotation quote">‘surreptitious’</span> change,"</span> <i class="ldml-italics">see </i> <i class="ldml-italics">In re <span class="ldml-entity">2015</span>-<span class="ldml-entity">2016</span> #132,</i> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_24677"><span class="ldml-cite">¶ 26</span></a></span>, <span class="ldml-referencechain"><span class="ldml-entity"><a href="/vid/895687514" data-vids="895687514" class="ldml-reference" data-prop-ids="sentence_24677"><span class="ldml-cite">374 P.3d at 467</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_24677"><span class="ldml-cite">§ 1-40-106.5<span class="ldml-parenthetical">(1)</span><span class="ldml-parenthetical">(e)</span><span class="ldml-parenthetical">(II)</span></span></a></span> )</span></span>, because voters may focus on one change and overlook the other, <i class="ldml-italics">see </i> <i class="ldml-italics">In re <span class="ldml-entity">2013</span>-<span class="ldml-entity">2014</span> #89,</i> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_24677"><span class="ldml-cite">¶ 19</span></a></span>, <span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_24677" data-refglobal="case:inthematterofthetitle,ballottitle,andsubmissionclausefor2013–201489douglaskemper,mizraimscorderoprestidgevleahycaseno14sa126328p3d172june30,2014"><span class="ldml-cite">328 P.3d at 178</span></a></span> <span class="ldml-parenthetical">(<span class="ldml-quotation quote"><span class="ldml-embeddedsentence">"Th<span class="ldml-parenthetical">[e]</span> danger <span class="ldml-parenthetical">[of surprise]</span> exists where an initiative, although claiming to have a single subject, in reality has multiple purposes, and as a result, voters would not expect that passing the initiative would lead to one or more of the initiative's outcomes."</span></span>)</span></span></span><span data-paragraph-id="24410" data-sentence-id="25361" class="ldml-sentence">.</span></p></div></div></div><div class="ldml-section"><section class="ldml-heading content__heading content__heading--depth1" data-ordinal_start="3" data-content-heading-label="III. Conclusion" data-parsed="true" data-value="III. Conclusion" data-confidences="very_high" data-ordinal_end="3" data-types="conclusion" data-format="upper_case_roman_numeral" data-id="heading_25362" id="heading_25362" data-specifier="III"><span data-paragraph-id="25362" class="ldml-paragraph "><b class="ldml-bold"><span data-paragraph-id="25362" data-sentence-id="25362" class="ldml-sentence">III.</span> <span data-paragraph-id="25362" data-sentence-id="25367" class="ldml-sentence">Conclusion</span></b></span></section><p data-paragraph-id="25377" class="ldml-paragraph "><span data-paragraph-id="25377" data-sentence-id="25377" class="ldml-sentence"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_25377"><span class="ldml-cite">¶42</span></a></span> <span class="ldml-entity">We</span> reverse the Board's actions and return this matter to the Board with directions to strike the titles and to return the initiative to its proponents.</span> <span data-paragraph-id="25377" data-sentence-id="25533" class="ldml-sentence">Because <span class="ldml-entity">we</span> determine that Initiative 16 contains multiple subjects, <span class="ldml-entity">we</span> don't address whether the Board included impermissible catch phrases in the measure's titles.</span></p></div></div><span class="ldml-appendix"><p data-paragraph-id="25697" class="ldml-paragraph "><span data-paragraph-id="25697" data-sentence-id="25697" class="ldml-sentence"><b class="ldml-bold">APPENDIX A: Initiative 16</b></span></p><p data-paragraph-id="25722" class="ldml-paragraph "><span data-paragraph-id="25722" data-sentence-id="25722" class="ldml-sentence"><i class="ldml-italics">Be it enacted by <span class="ldml-entity">the people</span> of the <span class="ldml-entity">state of Colorado</span>:</i></span></p><p data-paragraph-id="25775" class="ldml-paragraph "><span data-paragraph-id="25775" data-sentence-id="25775" class="ldml-sentence"><b class="ldml-bold"><span class="ldml-entity"><a class="ldml-reference"><span class="ldml-cite">Section 1</span></a></span>.</b></span> <span data-paragraph-id="25775" data-sentence-id="25786" class="ldml-sentence">In <span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_25786" data-refglobal="statute:/co/statutes/18/9/201_amend_2_2.9_and_5"><span class="ldml-cite">Colorado Revised Statutes, 18-9-201, amend <span class="ldml-parenthetical">(2)</span>, <span class="ldml-parenthetical">(2.9)</span>, and <span class="ldml-parenthetical">(5)</span></span></a></span> <span class="ldml-referenceseparator">;</span></span> add <span class="ldml-parenthetical">(3.5)</span> as follows:</span></p><p data-paragraph-id="25875" class="ldml-paragraph "><b class="ldml-bold"><span data-paragraph-id="25875" data-sentence-id="25875" class="ldml-sentence">18-9-201.</span> <span data-paragraph-id="25875" data-sentence-id="25885" class="ldml-sentence">Definitions</span></b></p><p data-paragraph-id="25896" class="ldml-paragraph "><span data-paragraph-id="25896" data-sentence-id="25896" class="ldml-sentence">As used in this <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_25896"><span class="ldml-cite">part 2</span></a></span>, unless the context otherwise requires:</span></p><p data-paragraph-id="25958" class="ldml-paragraph "><span data-paragraph-id="25958" data-sentence-id="25958" class="ldml-sentence"><span class="ldml-headnoteanchor"><span class="ldml-parenthetical"><b class="ldml-bold">(2)</b></span></span> <span class="ldml-quotation quote">"Animal"</span> means any living dumb NON-HUMAN creature, including, <span class="ldml-entity">BUT NOT LIMITED</span> TO, A DOG, A CAT, A HORSE, LIVESTOCK, a certified police working dog, a police working horse, and a service animal as those terms are defined, respectively, in <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_25958"><span class="ldml-cite">subsections <span class="ldml-parenthetical">(2.3)</span>, <span class="ldml-parenthetical">(2.9)</span>, <span class="ldml-parenthetical">(2.4)</span>, and <span class="ldml-parenthetical">(4.7)</span></span></a> of <span class="ldml-entity">this section</span></span>.</span></p><p data-paragraph-id="26259" class="ldml-paragraph "><span data-paragraph-id="26259" data-sentence-id="26259" class="ldml-sentence"><span class="ldml-parenthetical"><b class="ldml-bold">(2.9)</b></span></span> <span data-paragraph-id="26259" data-sentence-id="26265" class="ldml-sentence"><span class="ldml-quotation quote">"Livestock"</span> means bovine, camelids, caprine, equine, ovine, porcine, FISH and poultry.</span></p><p data-paragraph-id="26351" class="ldml-paragraph "><span data-paragraph-id="26351" data-sentence-id="26351" class="ldml-sentence"><span class="ldml-parenthetical"><b class="ldml-bold">(3.5)</b></span></span> <span data-paragraph-id="26351" data-sentence-id="26357" class="ldml-sentence"><span class="ldml-quotation quote">"NATURAL LIFESPAN"</span> FOR <span class="ldml-entity"><a class="ldml-reference"><span class="ldml-refname">THE FOLLOWING SPECIES SHALL BE EXPLICITLY DEFINED HERE BASED ON STATISTICAL ESTIMATES: A COW LIVES TO</span> <span class="ldml-cite">20 YEARS</span></a></span>, <span class="ldml-entity"><a class="ldml-reference"><span class="ldml-refname">A CHICKEN LIVES TO</span> <span class="ldml-cite">8 YEARS</span></a></span>, <span class="ldml-entity"><a class="ldml-reference"><span class="ldml-refname">A TURKEY LIVES TO</span> <span class="ldml-cite">10 YEARS</span></a></span>, <span class="ldml-entity"><a class="ldml-reference"><span class="ldml-refname">A DUCK LIVES TO</span> <span class="ldml-cite">6 YEARS</span></a></span>, <span class="ldml-entity"><a class="ldml-reference"><span class="ldml-refname">A PIG LIVES TO</span> <span class="ldml-cite">15 YEARS</span></a></span>, <span class="ldml-entity"><a class="ldml-reference"><span class="ldml-refname">A SHEEP LIVES TO</span> <span class="ldml-cite">15 YEARS</span></a></span>, <span class="ldml-entity"><a class="ldml-reference"><span class="ldml-refname">A RABBIT LIVES TO</span> <span class="ldml-cite">6 YEARS.</span></a></span></span></p><p data-paragraph-id="26651" class="ldml-paragraph "><span data-paragraph-id="26651" data-sentence-id="26651" class="ldml-sentence"><span class="ldml-headnoteanchor"><span class="ldml-parenthetical"><b class="ldml-bold">(5)</b></span></span> <span class="ldml-quotation quote">"Sexual act with an animal"</span> means an act between a person and an animal involving either direct physical contact between the genitals of one and the mouth, anus, or genitals of the other.</span> <span data-paragraph-id="26651" data-sentence-id="26843" class="ldml-sentence">SEXUAL ACT WITH AN ANIMAL ALSO INCLUDES ANY INTRUSION OR PENETRATION, HOWEVER <span class="ldml-pagenumber" data-page_type="bracketed_cite" data-vol="489" data-val="1226" data-rep="P.3d" data-id="pagenumber_26921"></span> SLIGHT, WITH AN OBJECT OR PART OF A PERSON'S BODY INTO AN ANIMAL'S ANUS OR GENITALS.</span> <span data-paragraph-id="26651" data-sentence-id="27007" class="ldml-sentence">A sexual act with an animal may be proven without allegation or proof of penetration.</span> <span data-paragraph-id="26651" data-sentence-id="27093" class="ldml-sentence">Nothing in this <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_27093"><span class="ldml-cite">subsection <span class="ldml-parenthetical">(5)</span></span></a></span> shall be construed to prohibit ANY PERSON FROM DISPENSING CARE TO AN ANIMAL IN THE INTEREST OF IMPROVING THAT ANIMAL'S HEALTH __________.</span></p><p data-paragraph-id="27261" class="ldml-paragraph "><span data-paragraph-id="27261" data-sentence-id="27261" class="ldml-sentence"><b class="ldml-bold"><span class="ldml-entity"><a class="ldml-reference"><span class="ldml-cite">Section 2</span></a></span>.</b></span> <span data-paragraph-id="27261" data-sentence-id="27272" class="ldml-sentence">In <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_27272" data-refglobal="statute:/co/statutes/18/9/201.5_amend_1_and_3"><span class="ldml-cite">Colorado Revised Statutes, 18-9-201.5, amend <span class="ldml-parenthetical">(1)</span> and <span class="ldml-parenthetical">(3)</span></span></a></span> as follows:</span></p><p data-paragraph-id="27343" class="ldml-paragraph "><b class="ldml-bold"><span data-paragraph-id="27343" data-sentence-id="27343" class="ldml-sentence">18-9-201.5.</span> <span data-paragraph-id="27343" data-sentence-id="27355" class="ldml-sentence">Scope of <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_27355"><span class="ldml-cite">Part 2</span></a></span></span></b></p><p data-paragraph-id="27370" class="ldml-paragraph "><span data-paragraph-id="27370" data-sentence-id="27370" class="ldml-sentence"><span class="ldml-parenthetical"><b class="ldml-bold">(1)</b></span> Nothing in this <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_27370"><span class="ldml-cite">part 2</span></a></span> shall affect __________ the extermination of undesirable pests as defined in <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_27370"><span class="ldml-cite">articles 7 AND 10, <s class="ldml-strikethrough">and 43</s> of title 35</span></a></span>, C.R.S.</span></p><p data-paragraph-id="27519" class="ldml-paragraph "><span data-paragraph-id="27519" data-sentence-id="27519" class="ldml-sentence"><span class="ldml-parenthetical"><b class="ldml-bold">(2)</b></span> In case of any conflict between this <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_27519"><span class="ldml-cite">part 2</span></a></span> or <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_27519"><span class="ldml-cite">section 35-43-126</span></a></span>, C.R.S., and the wildlife <span class="ldml-entity">statutes of <span class="ldml-entity">the state</span></span>, said wildlife <span class="ldml-entity">statutes</span> shall control.</span></p><p data-paragraph-id="27674" class="ldml-paragraph "><span data-paragraph-id="27674" data-sentence-id="27674" class="ldml-sentence"><span class="ldml-parenthetical"><b class="ldml-bold">(3)</b></span> IN <span class="ldml-entity"><a class="ldml-reference"><span class="ldml-refname">CASE OF ANY CONFLICT BETWEEN ANIMAL CARE OTHERWISE AUTHORIZED BY LAW, THIS PART</span> <span class="ldml-cite">2 SHALL CONTROL. __________</span></a></span></span></p><p data-paragraph-id="27788" class="ldml-paragraph "><span data-paragraph-id="27788" data-sentence-id="27788" class="ldml-sentence"><b class="ldml-bold"><span class="ldml-entity"><a class="ldml-reference"><span class="ldml-cite">Section 3</span></a></span>.</b></span> <span data-paragraph-id="27788" data-sentence-id="27799" class="ldml-sentence">In <span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_27799" data-refglobal="statute:/co/statutes/18/9/202_amend_1_b_2"><span class="ldml-cite">Colorado Revised Statutes, 18-9-202, amend <span class="ldml-parenthetical">(1)</span><span class="ldml-parenthetical">(b)</span>, <span class="ldml-parenthetical">(2)</span></span></a></span><span class="ldml-parenthetical">(a.5)</span><span class="ldml-parenthetical">(VII)</span></span>, and <span class="ldml-parenthetical">(4)</span>; add <span class="ldml-parenthetical">(1.9)</span> and <span class="ldml-parenthetical">(2)</span><span class="ldml-parenthetical">(a.5)</span><span class="ldml-parenthetical">(VIII)</span> as follows:</span></p><p data-paragraph-id="27917" class="ldml-paragraph "><b class="ldml-bold"><span data-paragraph-id="27917" data-sentence-id="27917" class="ldml-sentence">18-9-202.</span> <span data-paragraph-id="27917" data-sentence-id="27927" class="ldml-sentence">Cruelty to animals - aggravated cruelty to animals</span></b></p><p data-paragraph-id="27977" class="ldml-paragraph "><span data-paragraph-id="27977" data-sentence-id="27977" class="ldml-sentence"><b class="ldml-bold"><span class="ldml-parenthetical">(1)</span> <span class="ldml-parenthetical">(a)</span></b> A person commits cruelty to animals if <span class="ldml-entity">he</span> or <span class="ldml-entity">she</span> knowingly, recklessly, or with criminal negligence overdrives, overloads, overworks, torments, deprives of necessary sustenance, unnecessarily or cruelly beats, allows to be housed in a manner that results in chronic or repeated serious physical harm, carries or confines in or upon any vehicles in a cruel or reckless manner, engages in a sexual act with an animal, or otherwise mistreats or neglects any animal, or causes or procures it to be done, or, having the charge or custody of any animal, fails to provide it with proper food, drink, or protection from the weather consistent with the species, breed, and type of animal involved, or abandons an animal.</span></p><blockquote data-paragraph-id="b_28696" class="ldml-blockquote"><span data-sentence-id="28696" class="ldml-sentence"><span class="ldml-parenthetical"><b class="ldml-bold">(b)</b></span> Any person who intentionally abandons AN ANIMAL __________ commits the offense of cruelty to animals.</span></blockquote><p data-paragraph-id="28801" class="ldml-paragraph "><span data-paragraph-id="28801" data-sentence-id="28801" class="ldml-sentence"><span class="ldml-parenthetical"><b class="ldml-bold">(1.9)</b></span></span> <span data-paragraph-id="28801" data-sentence-id="28807" class="ldml-sentence">ANY PERSON WHO SLAUGHTERS LIVESTOCK IN ACCORDANCE WITH ACCEPTED AGRICULTURAL ANIMAL HUSBANDRY PRACTICES DOES NOT VIOLATE THE PROVISIONS OF <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_28807"><span class="ldml-cite">SUBSECTION <span class="ldml-parenthetical">(1)</span></span></a> OF <span class="ldml-entity">THIS SECTION</span></span> SO LONG AS THE ANIMAL HAS LIVED ONE QUARTER OF THEIR NATURAL LIFESPAN BASED ON SPECIES, BREED, AND TYPE OF ANIMAL AND THE ANIMAL IS SLAUGHTERED IN SUCH A WAY THAT THE ANIMAL DOES NOT NEEDLESSLY SUFFER.</span></p><p data-paragraph-id="29178" class="ldml-paragraph "><span data-paragraph-id="29178" data-sentence-id="29178" class="ldml-sentence"><b class="ldml-bold"><span class="ldml-parenthetical">(2)</span> <span class="ldml-parenthetical">(a)</span></b> Except as otherwise provided in <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_29178"><span class="ldml-cite">subsection <span class="ldml-parenthetical">(2)</span><span class="ldml-parenthetical">(b)</span></span></a> of <span class="ldml-entity">this section</span></span>, cruelty to animals, or cruelty to a service animal or certified police working dog or police working horse pursuant to <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_29178"><span class="ldml-cite">subsection <span class="ldml-parenthetical">(1.5)</span><span class="ldml-parenthetical">(c)</span></span></a> of <span class="ldml-entity">this section</span></span>, is a class 1 misdemeanor.</span></p><div class="ldml-embeddeddocument"><blockquote data-paragraph-id="b_29434" class="ldml-blockquote"><span data-sentence-id="29434" class="ldml-sentence"><span class="ldml-parenthetical"><b class="ldml-bold">(a.5)</b></span></span></blockquote><blockquote data-paragraph-id="b_29439" class="ldml-blockquote"><span data-sentence-id="29439" class="ldml-sentence"><span class="ldml-parenthetical"><b class="ldml-bold">(VII)</b></span></span> <span data-sentence-id="29445" class="ldml-sentence">This <span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_29445"><span class="ldml-cite">subsection <span class="ldml-parenthetical">(2)</span></span></a></span><span class="ldml-parenthetical">(a.5)</span></span> does not apply to the treatment of pack or draft animals by negligently overdriving, overloading, or overworking them, or the treatment of livestock and other animals used in the farm or ranch production of food, fiber, or other agricultural products when REGARDLESS OF WHETHER <s class="ldml-strikethrough">the treatment is in accordance with accepted agricultural animal husbandry practices, the treatment of animals involved in activities regulated pursuant to <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_29445"><span class="ldml-cite">article 32 of title 44</span></a></span>, the treatment of animals involved in research if the research</s>__________ the treatment of animals involved in rodeos, OR the treatment of dogs used for legal hunting activities.__________</span></blockquote><blockquote data-paragraph-id="b_30114" class="ldml-blockquote"><span data-sentence-id="30114" class="ldml-sentence"><span class="ldml-parenthetical"><b class="ldml-bold">(VIII)</b></span></span> <span data-sentence-id="30121" class="ldml-sentence">THIS <span class="ldml-referencechain"><span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_30121"><span class="ldml-cite">SUBSECTION <span class="ldml-parenthetical">(2)</span></span></a></span><span class="ldml-parenthetical">(a.5)</span></span> DOES NOT APPLY TO THE TREATMENT OF ANY ANIMAL INVOLVED IN RESEARCH IF THE RESEARCH FACILITY IS OPERATING UNDER RULES SET FORTH BY THE <span class="ldml-entity">STATE OR</span> FEDERAL GOVERNMENT, WILDLIFE NUISANCES, OR TO <span class="ldml-entity">STATUTES</span> REGULATING ACTIVITIES CONCERNING WILDLIFE AND PREDATOR</span> <span class="ldml-pagenumber" data-page_type="bracketed_cite" data-vol="489" data-val="1227" data-rep="P.3d" data-id="pagenumber_30399"></span></blockquote><blockquote data-paragraph-id="b_30399" class="ldml-blockquote"> <span data-sentence-id="30400" class="ldml-sentence">CONTROL IN <span class="ldml-entity">THE STATE</span>, INCLUDING TRAPPING.</span></blockquote></div><p data-paragraph-id="30441" class="ldml-paragraph "><span data-paragraph-id="30441" data-sentence-id="30441" class="ldml-sentence"><span class="ldml-parenthetical"><b class="ldml-bold">(4)</b></span> The short title of <span class="ldml-entity">this section</span> is <span class="ldml-quotation quote">"__________ WILBUR's Law"</span>.</span></p><p data-paragraph-id="30506" class="ldml-paragraph "><span data-paragraph-id="30506" data-sentence-id="30506" class="ldml-sentence"><b class="ldml-bold"><span class="ldml-entity"><a class="ldml-reference"><span class="ldml-cite">Section 4</span></a></span>.</b></span> <span data-paragraph-id="30506" data-sentence-id="30517" class="ldml-sentence">Effective Date:</span></p><p data-paragraph-id="30532" class="ldml-paragraph "><span data-paragraph-id="30532" data-sentence-id="30532" class="ldml-sentence"><span class="ldml-entity">This act</span> takes effect <span class="ldml-entity">April 1</span><sup class="ldml-superscript">st</sup> <span class="ldml-entity">2023</span>, and applies to offenses committed on or after said date.</span></p><p data-paragraph-id="30626" class="ldml-paragraph "><span data-paragraph-id="30626" data-sentence-id="30626" class="ldml-sentence"><b class="ldml-bold"><span class="ldml-entity"><a class="ldml-reference"><span class="ldml-cite">Section 5</span></a></span>.</b></span> <span data-paragraph-id="30626" data-sentence-id="30637" class="ldml-sentence">Severability:</span></p><p data-paragraph-id="30650" class="ldml-paragraph "><span data-paragraph-id="30650" data-sentence-id="30650" class="ldml-sentence">If any provision of <span class="ldml-entity">this Act</span> or its application to any person or circumstance is held invalid, the invalidity does not affect any other provision or application of <span class="ldml-entity">this Act</span> that can be given effect without the invalid provision or application, and to this end the provisions of <span class="ldml-entity">this Act</span> are severable.</span></p><div class="ldml-embeddeddocument"><p data-paragraph-id="30951" class="ldml-paragraph "><span data-paragraph-id="30951" data-sentence-id="30951" class="ldml-sentence">*new text in capitalized letters and text that is being eliminated in strikeout type</span></p><p data-paragraph-id="31035" class="ldml-paragraph "><span data-paragraph-id="31035" data-sentence-id="31035" class="ldml-sentence"><b class="ldml-bold">APPENDIX B: Initiative 16's Titles</b></span></p></div><p data-paragraph-id="31069" class="ldml-paragraph "><span data-paragraph-id="31069" data-sentence-id="31069" class="ldml-sentence"><span class="ldml-entity"><span class="ldml-underline">Ballot Title Setting Board</span></span></span> </p><p data-paragraph-id="31096" class="ldml-paragraph "><span data-paragraph-id="31096" data-sentence-id="31096" class="ldml-sentence">Proposed Initiative <span class="ldml-entity">2021</span>-<span class="ldml-entity">2022</span> #16</span></p><p data-paragraph-id="31129" class="ldml-paragraph "><span data-paragraph-id="31129" data-sentence-id="31129" class="ldml-sentence">The title as designated and fixed by the Board is as follows:</span></p><p data-paragraph-id="31190" class="ldml-paragraph "><span data-paragraph-id="31190" data-sentence-id="31190" class="ldml-sentence">A change to the <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_31190"><span class="ldml-cite">Colorado Revised Statutes</span></a></span> concerning expanding crimes relating to cruelty to animals, and, in connection therewith, expanding the definition of <span class="ldml-quotation quote">"livestock"</span> to include fish; expanding the definition of <span class="ldml-quotation quote">"sexual act with an animal"</span> to include intrusion or penetration, however slight, into an animal's anus or genitals with an object or part of a person's body and removing the existing exception for animal husbandry practices and creating an exception for care to improve the animal's health; defining the <span class="ldml-quotation quote">"natural lifespan"</span> for certain species of livestock and providing that slaughtering those animals is not criminal animal cruelty if done according to accepted animal husbandry practices after the animal has lived 1/4 of the natural lifespan; removing the exception to the animal cruelty <span class="ldml-entity">statutes</span> for animal husbandry practices used in the care of companion or livestock animals; eliminating some exceptions to certain sentencing requirements; and providing that, in case of a conflict with animal care otherwise authorized by law, the criminal cruelty to animals <span class="ldml-entity">statutes</span> control.</span></p><p data-paragraph-id="32291" class="ldml-paragraph "><span data-paragraph-id="32291" data-sentence-id="32291" class="ldml-sentence">The ballot title and submission clause as designated and fixed by the Board is as follows:</span></p><p data-paragraph-id="32381" class="ldml-paragraph "><span data-paragraph-id="32381" data-sentence-id="32381" class="ldml-sentence">Shall there be a change to the <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_32381"><span class="ldml-cite">Colorado Revised Statutes</span></a></span> concerning expanding crimes relating to cruelty to animals, and, in connection therewith, expanding the definition of <span class="ldml-quotation quote">"livestock"</span> to include fish; expanding the definition of <span class="ldml-quotation quote">"sexual act with an animal"</span> to include intrusion or penetration, however slight, into an animal's anus or genitals with an object or part of a person's body and removing the existing exception for animal husbandry practices and creating an exception for care to improve the animal's health; defining the <span class="ldml-quotation quote">"natural lifespan"</span> for certain species of livestock and providing that slaughtering those animals is not criminal animal cruelty if done according to accepted animal husbandry practices after the animal has lived 1/4 of the natural lifespan; removing the exception to the animal cruelty <span class="ldml-entity">statutes</span> for animal husbandry practices used in the care of companion or livestock animals; eliminating some exceptions to certain sentencing requirements; and providing that, in case of a conflict with animal care otherwise authorized by law, the criminal cruelty to animals <span class="ldml-entity">statutes</span> control?</span></p></span><div class="ldml-notes content__heading content__heading--depth1" data-content-heading-label="Footnotes"><div class="ldml-note ldml-note"><p data-paragraph-id="33497" 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="33497" data-sentence-id="33498" class="ldml-sentence"><span class="ldml-entity">We</span> have appended Initiative 16's text and titles to this opinion.</span></p></div><div class="ldml-note ldml-note"><p data-paragraph-id="33563" 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="33563" data-sentence-id="33564" class="ldml-sentence"><span class="ldml-entity">We</span> discuss only those provisions of Initiative 16 that are relevant to our resolution of the single-subject challenge, as framed by <span class="ldml-entity">Petitioners</span>.</span></p></div><div class="ldml-note ldml-note"><p data-paragraph-id="33708" class="ldml-paragraph "><sup class="ldml-superscript"></sup><a href="#note-ref-fr3" class="ldml-notemarker" id="note-fr3">3</a> <span data-paragraph-id="33708" data-sentence-id="33709" class="ldml-sentence"><span class="ldml-entity">We</span> need not and do not address whether Initiative 16 would, as <span class="ldml-entity">Petitioners</span> and <span class="ldml-entity">Respondents</span> suggest, successfully criminalize all slaughter of livestock not done in conformity with the safe harbor provision.</span> <span data-paragraph-id="33708" data-sentence-id="33916" class="ldml-sentence">Our limited review of the Board's single-subject rulings concerns whether initiatives <span class="ldml-quotation quote">"contain separate and unconnected purposes,"</span> not their <span class="ldml-quotation quote">"efficacy."</span></span> <span data-paragraph-id="33708" data-sentence-id="34069" class="ldml-sentence"><span class="ldml-referencechain"><span class="ldml-entity"><a href="/vid/895742249" data-vids="895742249" class="ldml-reference" data-prop-ids="sentence_33916"><i class="ldml-italics"><span class="ldml-refname">In re 1999-2000 No. 200A</span>,</i> <span class="ldml-cite">992 P.2d at 30</span></a></span> <span class="ldml-referenceseparator">;</span> <i class="ldml-italics"><span class="ldml-signal">see also</span> </i> <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_33916" data-refglobal="case:inretitle,ballottitlesubmissionclausefor2015–201663,2016co34"><i class="ldml-italics"><span class="ldml-refname">In re Title, Ballot Title & Submission Clause for 2015-2016 #63</span>,</i> <span class="ldml-cite">2016 CO 34</span></a></span>, <span class="ldml-entity"><a class="ldml-reference" data-prop-ids="sentence_33916"><span class="ldml-cite">¶ 14</span></a></span></span>, <span class="ldml-referencechain"><span class="ldml-entity"><a href="/vid/888084598" data-vids="888084598" class="ldml-reference" data-prop-ids="embeddedsentence_34224"><span class="ldml-cite">370 P.3d 628, 632</span></a></span> <span class="ldml-parenthetical">(<span class="ldml-quotation quote"><span class="ldml-embeddedsentence">"While <span class="ldml-entity">Petitioners</span>' objection arguably overstates the initiative's reach, our inquiry at this juncture avoids interpretation beyond that necessary to determine whether there is a single subject and clear title."</span></span>)</span></span></span><span data-paragraph-id="33708" data-sentence-id="34436" class="ldml-sentence">.</span></p></div></div></div></div>
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