Amendment 85Plain Language Ballot Titles
Read the full text of the measure: on this page or in the Blue Book (PDF, page 71)
In plain words
A ballot title is the short description of a measure that voters read on the ballot. Amendment 85 would require every ballot title to be in plain language, at no more than an eighth-grade reading level. It would also block laws that require set wording in the titles of citizen-proposed measures, if that wording gets in the way of plain language. source: Blue Book, p. 27
Before and after
| Question | Today | If Amendment 85 passes |
|---|---|---|
| Must ballot titles be in plain language? | Yes, under state law, but no reading level is set | Yes, at an eighth-grade reading level or lower, written into the constitution |
| Can laws require set wording in citizen initiative titles? | Yes. For example, a measure that raises or lowers state taxes must describe the changes and the effect on taxpayers. | Not if the wording gets in the way of plain language |
| Does that ban cover titles the legislature writes for its own measures? | Not applicable | No |
| Who decides if a title meets the standard? | The Title Board writes initiative titles (staff from the Attorney General's office, the Secretary of State's office and the legislature's legal office) | The measure does not say |
From the official analysis source: Blue Book, p. 27
Example
Illustration only: Today, a citizen initiative that cuts state tax collections must include in its title an estimate of possible state spending cuts, and how lower revenue might affect the three largest areas of state spending. If Amendment 85 passes, that requirement could be blocked if it gets in the way of plain language. source: Blue Book, p. 27
Biggest change
- Laws that require set wording in citizen initiative titles, such as wording about tax changes, could be blocked if they get in the way of plain language. source: Blue Book, p. 27
- All ballot titles would have to be at an eighth-grade reading level or lower. The measure does not define plain language or say who decides if a title meets the standard. source: Blue Book, p. 27
Who it affects most: The state Title Board, which writes titles for citizen initiatives, people who propose initiatives, and voters who read the titles.
Cost to the state: Unknown. The Blue Book does not give an amount. It says the Title Board's workload may go up a small amount.
Our plain-words summary at an 8th-grade reading level. Every line points to its source.
What your vote means
Every ballot title must be at an eighth-grade reading level or lower, and laws cannot require initiative wording that gets in the way.
Titles must still be in plain language under state law, with no set reading level, and laws requiring extra wording, such as for tax changes, stay.
Our plain-words summary.
The Blue Book's official wording of YES and NO (tap to open)
YES: A “yes” vote on Amendment 85 requires that ballot titles be written in plain language, defined as an eighth-grade reading level, and prohibits any law from interfering with this requirement.
NO: A “no” vote on Amendment 85 maintains current law, which requires plain language for ballot titles, but does not specify a particular grade-level reading standard.
Why people want it, and why others object
Why this is on the ballot
- Citizens put this on the ballot by gathering voter signatures (a citizen initiative). It would change the Colorado Constitution, the state's highest set of laws, which only a statewide vote can change. It needs 55 percent of the vote to pass. source: Blue Book, p. 27
- Before people can gather signatures for a citizen initiative, the state Title Board writes its ballot title. State law already says titles must be brief, plain, and avoid legal or technical terms when possible, but it sets no reading level. source: Blue Book, p. 27
Why supporters want it
- While ballot titles are supposed to be written as plainly as possible, this measure provides additional guidance as to what that means by requiring an eighth-grade reading level as the standard. Providing a constitutional standard will help in crafting simple titles that voters may better understand when considering their vote, and may help them to navigate complicated and technical information when trying to understand a measure’s impact. source: Blue Book, p. 27
- The measure creates a constitutional protection against the state legislature interfering with plain language in initiative ballot titles. Citizen initiatives are a way for the public to pass laws without restrictions created by the legislature. This measure ensures that no future legislature may add laws or change existing laws to create complicated or confusing initiative ballot titles. source: Blue Book, p. 27
Why opponents object
- This measure is unnecessary as state law already provides ample guidance for the preparation of ballot titles in plain language. Ballot titles must convey important information to voters about complex policies. This measure creates a constitutional standard with no guidance about how its requirements are different from current law. This could lead to more challenges of initiative ballot titles, impacting the initiative process. source: Blue Book, p. 27
- This measure puts vague and undefined language in the constitution, which could prevent the creation of laws to help voters better understand the effects of ballot measures. Laws that add language to ballot titles could be prohibited, even if that language provides critical information for voters. The measure may lead to challenges of existing laws that help voters understand how their vote affects state and local programs and funding. source: Blue Book, p. 27
Who backs each side
Most totals are through October 4, 2026 (Rocky Mountain Voice, Oct 6); some are as of September 21 (Colorado Politics). Spending grows until Election Day. These figures come from news reports of state campaign finance filings and were not checked line by line against the filings.
- No committee money specific to this measure was found on either side.
Sources: Rocky Mountain Voice, Oct 6, 2026 · Colorado Politics, Sept 25, 2026 · Colorado Secretary of State: committees for and against 2026 measures · TRACER campaign finance search
Supporter and opponent arguments are the official ones printed in the Blue Book, written by the Legislative Council's nonpartisan staff after hearing from both sides. Who is registered for and against (Secretary of State) . We don't endorse either side.
At a glance
Our plain-words summary of the official Blue Book analysis. Every line points to its source.
Who it affects
- The state Title Board, made up of staff from the Attorney General's office, the Secretary of State's office and the legislature's legal office. It writes titles for citizen initiatives. (Blue Book, p. 27 )
- The state legislature, which writes titles for measures it refers to the ballot. (Blue Book, p. 27 )
- People and groups who propose citizen initiatives. (Blue Book, p. 27 )
- Voters who read ballot titles. All titles would have to be at or below an eighth-grade reading level. (Blue Book, p. 27 )
- Current laws that require set wording in initiative titles, such as wording on tax changes and on spending cuts from lower tax collections. These could be barred if they interfere with plain language. (Blue Book, p. 27 )
How many: Unknown. The Blue Book does not give a count of measures, titles or laws affected.
Money: economic and budget impact
- State: the Blue Book says workload may increase minimally for the Title Board to update its plain language standards and apply them. No dollar estimate or budget year is given. (Blue Book, p. 27 )
- No new tax, no change in state revenue and no local government effect is listed. (Blue Book, p. 27 )
- Not a direct cost, but related to money: current law requires titles of tax-changing initiatives to describe the impact on taxpayers, and titles of initiatives that cut tax collections to estimate spending cuts. The measure could bar these requirements if they interfere with plain language. (Blue Book, p. 27 )
All ballot titles must be in plain language at no more than an eighth-grade reading level. Laws requiring set wording in citizen initiative titles would be barred if they interfere with that standard. Titles for measures referred by the legislature are not covered by that ban. The measure does not define plain language or say who decides whether a title meets the standard. Because it is a constitutional amendment, changing it later would take another statewide vote.
Current law stays. The Title Board must write brief, plain language titles understandable by the widest possible audience, but no grade level is set. Laws requiring extra title wording, such as for tax changes, stay in place.
Not yet known
- Which current title wording laws would no longer apply. The Blue Book gives examples but no full list.
- Who decides if a title meets the eighth-grade standard, and how it is measured.
- Whether there would be more legal challenges to ballot titles, and any cost.
- When the measure takes effect. The Blue Book does not say.
Can it actually be enforced?
Short answer: Hard to enforce in practice. It sets a standard (eighth-grade reading level) but does not define it or say who checks. Courts would likely end up deciding what it means.
- It is a constitutional amendment, so the legislature could not repeal it or pass laws that conflict with it. (Blue Book, p. 27 )
- Who enforces it: the Blue Book says the measure does not define plain language or say who decides whether a title meets the standard. The Title Board would have to set its own standards. Disputes would likely go to court, which the Blue Book says could mean more title challenges. (Blue Book, p. 27 )
- It would override some state laws. Several current laws require specific wording in initiative titles, such as tax-change and spending-impact language. Those laws could be challenged if they interfere with plain language. A court would decide which ones fall. (Blue Book, p. 27 )
- Limited reach: it covers citizen initiatives. Titles written by the legislature for its own referred measures are not covered by the ban on required wording. (Blue Book, p. 27 )
- No federal issue: ballot titles for state measures are a state matter. We found no federal law that would override it. (Blue Book, p. 27 )
Not yet known
- How it fits with wording already required by the Colorado Constitution itself (for example TABOR's rules for tax questions). The amendment targets 'laws', and the Blue Book does not say whether constitutional wording rules are affected. We did not verify this.
This is our reading of the cited law, not legal advice. Court outcomes are uncertain.
Official ballot wording
Official ballot wording, word for word (tap to open)
The ballot title, word for word from the 2026 Blue Book.
Shall there be an amendment to the Colorado Constitution concerning ballot question language, and, in connection therewith, requiring all state and local ballot questions to be written in plain language and at no more than an 8th grade reading level and prohibiting a state statute from requiring language that conflicts with these requirements in ballot questions for citizen-initiated measures?
The official analysis
The full Blue Book analysis, word for word (tap to open)
Everything in this section is quoted from the nonpartisan Legislative Council's 2026 State Ballot Information Booklet (the Blue Book). Charts are described in words. Read the full Blue Book (PDF)
Amendment 85 proposes amending the Colorado Constitution to:
- require that ballot titles be in plain language, written at no more than an eighth-grade reading level; and
- prohibit laws that require specific language in initiative ballot titles, if the laws interfere with plain language in the ballot title.
Summary and Analysis of Amendment 85
How do measures appear on the ballot and how are ballot titles written?
A person may propose a new law or change to existing laws through the initiative process. Through this process, the change may be placed on the ballot if the person collects enough signatures from registered voters.
Before collecting signatures, every initiative receives a ballot title written by the state Title Board. The board is made up of representatives from the Attorney General’s office, the Secretary of State’s office, and the legislature’s legal office. The ballot title is a brief statement intended to fairly and accurately represent the intent and meaning of an initiative.
State law requires that the Title Board write ballot titles that are brief and help voters understand the effect of a “yes” or “no” vote on the measure. The board must write titles in plain language, that are understandable by the widest possible audience, and that avoid legal, technical, or specialized terminology, when possible.
The state legislature may also refer measures to the ballot. When the legislature refers a measure, the legislature writes the ballot title. State law requires that bills and bill titles be written in plain, nontechnical language, use words with common meaning, and be understandable to the average reader.
What does Amendment 85 do?
Amendment 85 requires that all ballot titles be in plain language, written at no more than an eighth-grade reading level. The measure does not define plain language or designate who will determine if ballot titles meet the standard. An eighth-grade reading level is described as one that is easily and fully understood by a majority of people. This typically includes short sentences, familiar words, and a conversational tone.
Amendment 85 also prohibits laws requiring citizen initiatives to include language in the ballot title that may interfere with the plain language requirement. The ballot titles for measures referred by the state legislature are not subject to this prohibition. There are several current laws that require additional language in ballot titles. For example, if a citizen initiative raises or lowers state taxes, the initiative’s title must include specific language describing the changes and the impact on taxpayers. For citizen initiatives that reduce tax collections, the title must include an estimate of potential state spending reductions and how reduced revenue might impact the three largest areas of government spending.
Arguments For Amendment 85
1) While ballot titles are supposed to be written as plainly as possible, this measure provides additional guidance as to what that means by requiring an eighth-grade reading level as the standard. Providing a constitutional standard will help in crafting simple titles that voters may better understand when considering their vote, and may help them to navigate complicated and technical information when trying to understand a measure’s impact.
2) The measure creates a constitutional protection against the state legislature interfering with plain language in initiative ballot titles. Citizen initiatives are a way for the public to pass laws without restrictions created by the legislature. This measure ensures that no future legislature may add laws or change existing laws to create complicated or confusing initiative ballot titles.
Arguments Against Amendment 85
1) This measure is unnecessary as state law already provides ample guidance for the preparation of ballot titles in plain language. Ballot titles must convey important information to voters about complex policies. This measure creates a constitutional standard with no guidance about how its requirements are different from current law. This could lead to more challenges of initiative ballot titles, impacting the initiative process.
2) This measure puts vague and undefined language in the constitution, which could prevent the creation of laws to help voters better understand the effects of ballot measures. Laws that add language to ballot titles could be prohibited, even if that language provides critical information for voters. The measure may lead to challenges of existing laws that help voters understand how their vote affects state and local programs and funding.
Information about the organizations supporting and opposing this measure is available on the Colorado Secretary of State's website:
www.coloradosos.gov/pubs/elections/Initiatives/ballot/contacts/2026.html
Fiscal Impact of Amendment 85
State Spending
The Title Board includes representatives from the Department of State, the Attorney General’s Office, and the General Assembly. The measure may minimally increase workload for the Title Board to update its standards for plain language and what constitutes an eighth-grade reading level and to apply these standards when setting titles for citizen-initiated ballot measures.
Latest news
Recent reporting from a range of outlets, newest first. We link to it; we don't endorse it.
- 2026-10-03 The Colorado Sun: Amendment 85 explained: Plain language ballot measures in Colorado
- 2026-10-02 Colorado Politics: Amendment 85 would add plain-language ballot requirements to Colorado Constitution
- 2026-09-25 CPR News: Amendment 85: 'Plain Language Ballot Questions'
Coverage of all the statewide measures
- 2026-10-06 Rocky Mountain Voice: What's on your 2026 Colorado ballot: all 14 statewide measures
- 2026-09-25 Colorado Politics: Major donors fuel Colorado ballot measure fights across the state
- 2026-09-25 CPR News: 2026 Colorado state ballot measures voter guide
Full text of the measure
Word for word from the Blue Book, page 71 (PDF ). Where the measure changes existing statutes, new wording is in CAPITAL LETTERS, as in the printed booklet.
Show the full text
Be it enacted by the People of the state of Colorado:
SECTION 1. In Colorado Constitution Article V, Section 1, add (5.6) as follows: (5.6) Ballot questions shall be in plain language at no more than an eighth-grade reading level. No statute may interfere with this provision by mandating language preceding, following, or in a ballot title of an initiative.
Read more
- 2026 Blue Book (PDF) , including the full legal text of the measure
- Colorado Secretary of State: who is registered for and against
- TRACER: Colorado campaign finance filings
What people are saying
Official campaign accounts on each side, and public posts. Links only: nothing here loads from social media sites. We link to posts; we don't endorse them.
No official campaign accounts listed yet.
No official campaign accounts listed yet.