Understanding The Lawmaking Process In Colorado

The Colorado General Assembly is made up of the House of Representatives, with 65 members, and the Senate, with 35 members. The process of turning a bill into a law is a long one, with many steps and requirements. A bill can be introduced by anyone, from a citizen to a business, and must be sponsored by a legislator. Once it has been assigned a number and a committee, it goes through three readings, with the possibility of amendments being made at each stage. If the bill passes the third reading, it is sent to the other chamber to go through the same process. If it passes through both chambers, it is sent to the Governor, who can sign it into law, let it become law without their signature, or veto it.

The bill is introduced

Ideas for new laws can come from anywhere, including businesses, school boards, citizens, public interest groups, and non-profit organizations. If a legislator is approached with an idea, they can decide to sponsor it and request that a bill be drafted by the Office of Legislative Legal Services. Every bill that is considered must have a "prime sponsor" from each chamber of the house before a draft can be created. Once the initial sponsor approves the draft bill, it is delivered to either the House or the Senate for its first reading.

When a bill is first introduced, it is assigned a bill number and a committee for a public hearing. Committees usually focus on a specific issue, such as education, transportation, or public health. They will hold a hearing for the introduction of the bill, which the public can attend to voice their support or concerns. However, only committee members are allowed to make amendments to the bill.

The committee can then recommend the bill (with or without amendments), postpone it indefinitely, hold it for another hearing, or refer it to another committee. After a hearing, for a bill to continue, it must be referred favorably to another committee of reference, to the Appropriations Committee, or to the Committee of the Whole (COW). A bill may have been assigned to the Appropriations Committee when it was introduced, or it may be referred there by the committee of reference if the fiscal impact of the bill requires it. During the hearing, a member of the Appropriations Committee may offer an amendment to the bill, and if the legislator is a member of the committee, they may offer an amendment. If not, they will need to ask a legislator who serves on the committee to offer amendments on their behalf. For a bill to continue, the Appropriations Committee must refer it favorably to the COW. Under some circumstances, the Appropriations Committee may refer a bill back to a committee of reference, where the process is repeated.

A bill must then pass the Second Reading, which may also be called the Committee of the Whole or COW. Any amendments recommended by the committee of reference and the Appropriations Committee, if applicable, will be considered "committee reports," and the legislator or other individual members may offer additional amendments as "floor amendments." Bills and amendments pass on Second Reading by a voice vote, unless a member requests a standing vote. To complete the Second Reading, the house of introduction must adopt the report of the COW.

The bill must then pass on Third Reading, which, by rule, cannot take place on the same calendar day as the bill's Second Reading. Generally, only technical amendments may be offered on Third Reading. If the bill passes the house of introduction, it will then undergo the same process in the second house: introduction, assignment to a committee or committees, debate, and possible amendments on Second Reading, and, hopefully, Third Reading and Final Passage.

First reading

The first reading of a bill in the Colorado General Assembly is a crucial stage in the legislative process. At this point, the bill has been introduced in either the House or the Senate and assigned a bill number. It is then sent to a committee for a public hearing. The committee will typically focus on a specific issue such as education, transportation, or public health. During the hearing, the bill's sponsor will present it to the committee and address any questions. The public can attend these hearings to voice their support or concerns for the bill.

The committee hearing is a critical stage in the legislative process as it provides an opportunity for public participation and input. It allows community members to share their perspectives and comment on the record about the legislation. After the hearing, the committee members, who are the only ones allowed to make amendments to the bill, will vote on whether to recommend the bill, postpone it, hold it for another hearing, or refer it to another committee.

If the bill passes this initial committee vote, it will move on to the next step in the process, which is the second reading or "Committee of the Whole" (COW). During the second reading, the entire chamber comes together to debate the merits of the bill and offer additional amendments. This is also when the committee reports and floor amendments are considered.

The first reading of a bill in the Colorado General Assembly is, therefore, a critical stage in the legislative process. It marks the beginning of the bill's journey through the legislative chambers and provides an opportunity for public input and participation. It is during this stage that the bill is introduced, assigned a number, and undergoes its first committee hearing, setting the tone for the rest of the legislative process.

Second reading

Once a bill has successfully made it through the first reading, it moves on to the second hearing. This second hearing requires the entire chamber to form a committee of the whole, also known as the "Committee of the Whole" or "COW". Here, members debate the merits of the bill and may offer additional amendments. A voice vote is all that is required for approval. The chairman of the chamber has the final say, however, a member of the chair may request a standing vote for approval of the bill being discussed.

Any amendments recommended by the committee of reference and the Appropriations Committee, if applicable, will be considered as "committee reports". Individual members may also offer additional amendments as "floor amendments". Bills and amendments pass on Second Reading by a voice vote, unless a member requests a standing vote. To complete Second Reading, the house of introduction must adopt the report of the COW.

If a bill passes this phase, it will then proceed to "Third Reading", where legislators take a recorded vote to pass or fail the bill. If a bill passes with a majority vote, it passes the chamber.

Third reading

The third reading of a bill in the Colorado General Assembly is the final stage of the legislative process before a bill is passed to the other chamber for review. During the third reading, the bill undergoes final debates and a recorded vote. If the bill is approved by a recorded vote, it is then written into a new document called the "Reengrossed bill", which includes any amendments made during the previous readings. This Reengrossed bill is then transferred to the other chamber, where the same process of three readings begins all over again.

The third reading cannot take place on the same calendar day as the bill's second reading. Generally, only technical amendments can be offered during the third reading. If a bill passes the third reading in the second chamber without any amendments, it will be sent directly to the Governor for action.

However, if the second chamber makes amendments to the bill, the first chamber must reconsider it and decide whether to accept the amendments and repass the bill, set up a conference committee to negotiate and compromise on a version that both chambers can agree on, or reject the amendments and fail the bill.

If a conference committee is requested, it must be made up of three members from each chamber, and its purpose is to iron out the differences between the two chambers and reach an agreement. If the conference committee can come to an agreement, the bill is sent back to both chambers for adoption of the conference committee report and to vote on readopting the bill. If both chambers adopt the report and readopt the bill, it is then sent to the Governor for action.

Governor's action

Once a bill has passed both chambers of the Colorado legislature, it is sent to the Governor's office for consideration. The Governor has three options:

• Sign the bill into law
• Let the bill become law without their signature
• Veto the bill

If the Governor signs the bill, it will become law. If the Governor does not sign the bill, it will still become law after 10 days if received during the legislative session, or after 30 days if received after the General Assembly. If the Governor vetoes the bill before the General Assembly adjourns, it is returned to the house of introduction along with a veto message. If the General Assembly is still in session, it can override the Governor's veto if both chambers repass the bill with a two-thirds majority vote from each chamber. If the General Assembly has adjourned, there is no opportunity for an override. Vetoes occurring after the General Assembly session are final and cannot be overridden.

Frequently asked questions