First Regular Session
Seventy-fifth General Assembly
STATE OF COLORADO
INTRODUCED
LLS NO. 25-0812.02 Pierce Lively x2059
HOUSE BILL 25-1193
House Committees Senate Committees
State, Civic, Military, & Veterans Affairs
A BILL FOR AN ACT
C
ONCERNING THE CREATION OF THE "VOTE TRANSPARENCY101
P
ROTOCOL ACT".102
Bill Summary
(Note: This summary applies to this bill as introduced and does
not reflect any amendments that may be subsequently adopted. If this bill
passes third reading in the house of introduction, a bill summary that
applies to the reengrossed version of this bill will be available at
http://leg.colorado.gov
.)
The bill creates new processes for vote verification, voter
verification, and audit transparency.
For vote verification, the bill requires ballots to be assigned vote
tracking numbers and voters to be assigned voter identifier numbers.
Voters are given both of these numbers and the secretary of state
(secretary) publishes these numbers on a publicly accessible vetting
HOUSE SPONSORSHIP
Suckla,
SENATE SPONSORSHIP
(None),
Shading denotes HOUSE amendment. Double underlining denotes SENATE amendment.
Capital letters or bold & italic numbers indicate new material to be added to existing law.
Dashes through the words or numbers indicate deletions from existing law. transparency ledger and a publicly accessible ballot transparency ledger,
respectively. The number of vote tracking numbers on the vetting
transparency ledger must equal the number of voter identifier numbers on
the ballot transparency ledger. After a ballot is cast, the secretary
publishes the information on the ballot on a cast vote transparency ledger
along with the corresponding vote tracking number. A voter may
challenge the entry on the cast vote transparency ledger associated with
their vote tracking number. The secretary shall maintain a challenged vote
ledger and shall publish the status to challenges of entries on the cast vote
transparency ledger on the challenged vote ledger.
For voter verification, the bill requires voters to provide the
secretary with the following no less than one month before an election in
order to receive a mail ballot for that election:
! The voter's mailing address;
! A copy of the voter's relevant identification;
! Verification that the voter satisfies the necessary
qualifications to register as a voter;
! A request to receive a mail ballot;
! Acknowledgment of the penalties for committing fraud in
connection with casting a vote; and
! Verification that the voter is a human.
A voter can provide this information either on the secretary's website or
in connection with the payment of a utility bill. Further, the bill:
! Prohibits the distribution of mail ballots more than 2 weeks
before the relevant election;
! Requires the secretary, within 30 days after the effective
date of the bill, to withdraw the state from participation in
the electronic registration information system; and
! Requires the secretary to annually remove all registration
information from the the statewide voter registration
system and for that removal to be verified by an entity that
is not a state agency.
For audit transparency, the bill requires the secretary to generate
for every election a number of randomly generated and assigned audit
numbers (RAANs) equal to the amount of electors who voted in the
previous election plus one percent. The secretary shall enter each RAAN
it generates into a RAAN tracking database. The secretary must randomly
assign and attach each RAAN to a ballot. After a ballot is cast:
! A voter may keep a copy of the RAAN associated with
their ballot;
! The secretary shall enter the first 12 digits of a ballot's
RAAN (partial RAAN) in the RAAN tracking database to
ensure that the ballot's RAAN was one of the RAANs that
the secretary generated for the election;
! The secretary shall scan the ballot; and
HB25-1193
-2- ! The secretary shall enter the ballot's partial RAAN, along
with the votes cast with that ballot, in a downloadable,
searchable, and publicly accessible cast vote record
database.
After inputting information for a ballot into the cast vote record database,
the secretary shall verify that information against the scan of the ballot.
An individual can challenge the information in the cast vote record
database associated with a partial RAAN by presenting the complete
RAAN to the secretary.
Be it enacted by the General Assembly of the State of Colorado:1
SECTION 1. In Colorado Revised Statutes, add part 11 to article2
7 of title 1 as follows:3
PART 114
VOTE TRANSPARENCY PROTOCOL5
1-7-1101. Short title. T
HE SHORT TITLE OF THIS PART 11 IS THE6
"V
OTE TRANSPARENCY PROTOCOL ACT".7
1-7-1102. Definitions. A
S USED IN THIS PART 11, UNLESS THE8
CONTEXT OTHERWISE REQUIRES :9
(1) "D
ISTRIBUTED LEDGER" MEANS A PERMANENT DATABASE THAT10
IS CONSENSUALLY SHARED AND SYNCHRONIZED ACROSS MULTIPLE11
LOCATIONS. EACH RECORD IN A DISTRIBUTED LEDGER MUST BE ATTACHED12
TO THE IMMEDIATELY PRECEDING RECORD BY WAY OF A ONE -WAY HASH13
FUNCTION EXPRESSED AS A PREVIOUS HASH . THE GENERAL ASSEMBLY14
SHALL ENSURE THAT ALL DISTRIBUTED LEDGERS ARE EASILY SEARCHABLE ,15
ACCURATE, AND SECURE.16
(2) "O
NE-WAY HASH FUNCTION " MEANS A MATHEMATICAL17
FUNCTION THAT TAKES A VARIABLE-LENGTH INPUT STRING AND CONVERTS18
IT INTO A FIXED-LENGTH TEXT SEQUENCE THAT IS COMPUTATIONALLY19
DIFFICULT TO INVERT. AT A MINIMUM, THE ONE-WAY HASH FUNCTION20
HB25-1193-3- MUST BE A SECURE HASH ALGORITHM TWO HUNDRED FIFTY -SIX ONE-WAY1
CRYPTOGRAPHIC HASH FUNCTION .2
(3) "P
REVIOUS HASH" MEANS A UNIQUE HASH GENERATED BY THE3
ONE-WAY HASH FUNCTION FOR A DISTRIBUTED LEDGER .4
1-7-1103. Vote transparency protocol applicability and5
implementation - rules. (1) N
OTWITHSTANDING ANY LAW TO THE6
CONTRARY, THIS PART 11 APPLIES IN ALL ELECTIONS AND SUPERSEDES ANY7
CONFLICTING PROVISION OF THIS TITLE 1 OR ANY OTHER LAW THAT8
GOVERNS THE CONDUCT OF ELECTIONS TO WHICH THIS PART 11 APPLIES.9
(2) T
HE SECRETARY OF STATE MAY ADOPT RULES AS NECESSARY10
TO IMPLEMENT THIS PART 11.11
1-7-1104. Vote verification - definitions. (1) (a) E
ACH ELECTOR12
WHO CASTS A VOTE IN AN ELECTION MUST BE ASSIGNED AND PROVIDED A13
VOTER IDENTIFIER NUMBER.14
(b) E
ACH BALLOT CAST IN AN ELECTION MUST BE ASSIGNED A VOTE15
TRACKING NUMBER, AND THE ELECTOR WHO CAST THAT BALLOT MUST BE16
PROVIDED WITH THAT VOTE TRACKING NUMBER .17
(2) (a) F
OR EACH ELECTION, THE SECRETARY OF STATE SHALL18
CREATE A BALLOT TRANSPARENCY LEDGER , CAST VOTE TRANSPARENCY19
LEDGER, AND VETTING TRANSPARENCY LEDGER .20
(b) T
HE SECRETARY OF STATE SHALL ENSURE THAT THE TOTAL21
NUMBER OF VOTER IDENTIFIER NUMBERS IN THE BALLOT TRANSPARENCY22
LEDGER IS EQUAL TO THE TOTAL NUMBER OF VOTE TRACKING NUMBERS IN23
THE VETTING TRANSPARENCY LEDGER .24
(3) I
F, UPON REVIEWING THE CAST VOTE TRANSPARENCY LEDGER ,25
AN ELIGIBLE ELECTOR WHO CAST A VOTE IN AN ELECTION THAT HAS NOT26
YET HAD ITS RESULT CERTIFIED BELIEVES THAT THEIR VOTE WAS27
HB25-1193
-4- IMPROPERLY RECORDED , THAT ELECTOR MAY PRESENT THEIR VOTE1
TRACKING NUMBER AND VOTER IDENTIFIER NUMBER TO THE SECRETARY2
OF STATE AND REQUEST REVIEW AND CORRECTION OF THEIR VOTE . THE3
SECRETARY OF STATE SHALL RESOLVE A REQUEST MADE PURSUANT TO4
THIS SUBSECTION (3) AS QUICKLY AND TRANSPARENTLY AS POSSIBLE .5
(4) A
S USED IN THIS SECTION, UNLESS THE CONTEXT OTHERWISE6
REQUIRES:7
(a) "B
ALLOT TRANSPARENCY LEDGER " MEANS A PUBLICLY8
AVAILABLE DISTRIBUTED LEDGER THAT CONSISTS OF THE VOTER9
IDENTIFIER NUMBERS FOR ELECTORS WHO CAST A VOTE IN AN ELECTION .10
(b) "C
AST VOTE TRANSPARENCY LEDGER " MEANS A PUBLICLY11
AVAILABLE DISTRIBUTED LEDGER THAT CONSISTS OF THE FOLLOWING FOR12
EACH BALLOT CAST IN AN ELECTION:13
(I) T
HE VOTE TRACKING NUMBER ; AND14
(II) T
HE INFORMATION CONTAINED WITHIN THE BALLOT .15
(c) "V
ETTING TRANSPARENCY LEDGER " MEANS A PUBLICLY16
AVAILABLE DISTRIBUTED LEDGER THAT CONSISTS OF THE VOTE TRACKING17
NUMBERS FOR BALLOTS CAST IN AN ELECTION .18
(d) "V
OTER IDENTIFIER NUMBER" MEANS A UNIQUE, ANONYMOUS19
TEXT IDENTIFIER ASSIGNED TO AN ELECTOR WHO CASTS A BALLOT .20
(e) "V
OTE TRACKING NUMBER " MEANS A UNIQUE, ANONYMOUS21
TEXT IDENTIFIER ASSIGNED TO A BALLOT.22
1-7-1105. Voter verification. (1) I
N ORDER TO RECEIVE A MAIL23
BALLOT PACKET, AS DEFINED IN SECTION 1-7.5-103, FOR AN ELECTION, NO24
EARLIER THAN ONE MONTH BEFORE THAT ELECTION , AN ELECTOR MUST25
PROVIDE THE FOLLOWING TO THE SECRETARY OF STATE :26
(a) T
HE ELECTOR'S MAILING ADDRESS;27
HB25-1193
-5- (b) A COPY OF THE VOTER'S IDENTIFICATION AS DEFINED IN1
SECTION 1-1-104 (19.5);2
(c) V
ERIFICATION THAT THE VOTER SATISFIES THE NECESSARY3
QUALIFICATIONS TO REGISTER AS A VOTER PURSUANT TO SECTION 1-2-101;4
(d) A
REQUEST TO RECEIVE A MAIL BALLOT;5
(e) A
N ACKNOWLEDGMENT OF THE PENALTIES FOR COMMITTING6
FRAUD IN CONNECTION WITH CASTING A VOTE ; AND7
(f) I
F PROVIDING THE INFORMATION DESCRIBED IN THIS8
SUBSECTION (1) ON THE SECRETARY OF STATE'S WEBSITE, EVIDENCE THAT9
THE ELECTOR IS A HUMAN THROUGH THE COMPLETION OF A "COMPLETELY10
A
UTOMATED PUBLIC TURING TEST TO TELL COMPUTERS AND HUMANS11
A
PART".12
(2) T
HE SECRETARY OF STATE SHALL ENSURE THAN AN ELECTOR13
MAY PROVIDE THE SECRETARY OF STATE WITH THE INFORMATION14
DESCRIBED IN SUBSECTION (1) OF THIS SECTION ON THE SECRETARY OF15
STATE'S WEBSITE OR IN CONNECTION WITH THE PAYMENT OF AN16
ELECTRICITY, GAS, OR WATER BILL.17
(3) M
AIL BALLOT PACKETS, AS DEFINED IN SECTION 1-7.5-103,18
SHALL NOT BE DISTRIBUTED FOR AN ELECTION MORE THAN TWO WEEKS19
BEFORE THE DATE OF THAT ELECTION .20
(4) T
HE SECRETARY OF STATE SHALL, WITHIN THIRTY DAYS AFTER21
THE EFFECTIVE DATE OF THIS SECTION , WITHDRAW THE STATE FROM22
PARTICIPATION IN THE ELECTRONIC REGISTRATION INFORMATION CENTER .23
(5) (a) T
HE SECRETARY OF STATE SHALL ANNUALLY REMOVE ALL24
REGISTRATION INFORMATION FROM THE STATEWIDE VOTER REGISTRATION25
SYSTEM CREATED IN SECTION 1-2-301.26
(b) T
HE SECRETARY OF STATE SHALL ENSURE THAT AN ENTITY27
HB25-1193
-6- THAT IS NOT A STATE AGENCY ANNUALLY VERIFIES THAT THE SECRETARY1
OF STATE HAS COMPLIED WITH SUBSECTION (5)(a) OF THIS SECTION.2
1-7-1106. Audit transparency - definitions. (1) (a) B
EFORE3
EVERY ELECTION, THE SECRETARY OF STATE SHALL GENERATE A NUMBER4
OF RANDOMLY GENERATED AND ASSIGNED AUDIT NUMBERS EQUAL TO ONE5
HUNDRED ONE PERCENT OF THE NUMBER OF VOTES CAST THE LAST TIME A6
SIMILAR ELECTION WAS HELD.7
(b) T
HE SECRETARY OF STATE SHALL ENTER EACH RANDOMLY8
GENERATED AND ASSIGNED AUDIT NUMBER IT CREATES FOR AN ELECTION9
IN A RANDOMLY GENERATED AND ASSIGNED AUDIT NUMBER DATABASE10
FOR THAT ELECTION.11
(c) F
OR EACH BALLOT IN AN ELECTION, THE SECRETARY OF STATE12
SHALL RANDOMLY ASSIGN A RANDOMLY GENERATED AND ASSIGNED AUDIT13
NUMBER AND ATTACH THE RANDOMLY GENERATED AND ASSIGNED AUDIT14
NUMBER.15
(2) A
FTER A BALLOT IS CAST:16
(a) A
VOTER MAY CHOSE TO KEEP A COPY OF THE RANDOMLY17
GENERATED AND ASSIGNED AUDIT NUMBER ASSIGNED TO THE VOTER 'S18
BALLOT; AND19
(b) T
HE SECRETARY OF STATE SHALL:20
(I) E
NTER THE PARTIAL RANDOMLY GENERATED AND ASSIGNED21
AUDIT NUMBER FOR THE BALLOT IN THE R ANDOMLY GENERATED AND22
ASSIGNED AUDIT NUMBER DATABASE IT CREATED FOR THAT ELECTION TO23
ENSURE THAT THE PARTIAL RANDOMLY GENERATED AND ASSIGNED AUDIT24
NUMBER CORRESPONDS WITH A R ANDOMLY GENERATED AND ASSIGNED25
AUDIT NUMBER THAT THE SECRETARY OF STATE GENERATED FOR THAT26
ELECTION;27
HB25-1193
-7- (II) SCAN THE BALLOT; AND1
(III) E
NTER THE BALLOT'S PARTIAL RANDOMLY GENERATED AND2
ASSIGNED AUDIT NUMBER AND THE INFORMATION WITHIN THE BALLOT IN3
A CAST VOTE RECORD DATABASE FOR THE ELECTION .4
(3) T
HE SECRETARY OF STATE SHALL VERIFY THE BALLOT SCAN5
CREATED PURSUANT TO SUBSECTION (2)(b)(II) OF THIS SECTION6
CORRESPONDS WITH THE INFORMATION THAT THE SECRETARY OF STATE7
ENTERS IN THE CAST VOTE RECORD DATABASE PURSUANT TO SUBSECTION8
(2)(b)(III)
OF THIS SECTION.9
(4) (a) T
HE SECRETARY OF STATE SHALL CREATE AN EFFICIENT10
AND TRANSPARENT PROCESS THROUGH WHICH AN INDIVIDUAL MAY11
PRESENT A RANDOMLY GENERATED AND ASSIGNED AUDIT NUMBER AND12
CHALLENGE THE INFORMATION ASSOCIATED WITH THE CORRESPONDING13
PARTIAL RANDOMLY GENERATED AND ASSIGNED AUDIT NUMBER IN THE14
CAST VOTE RECORD DATABASE .15
(b) T
HE SECRETARY OF STATE MAY CHARGE AN INDIVIDUAL A16
MAXIMUM OF TWENTY DOLLARS IN CONNECTION WITH THE INITIATING OF17
A CHALLENGE PURSUANT TO SUBSECTION (4)(a) OF THIS SECTION, BUT THE18
SECRETARY OF STATE SHALL REFUND ANY SUCH CHARGED AMOUNT IF THE19
CHALLENGE IS SUCCESSFUL.20
(5) A
S USED IN THIS SECTION, UNLESS THE CONTEXT OTHERWISE21
REQUIRES:22
(a) "C
AST VOTE RECORD DATABASE " MEANS A PUBLICALLY23
AVAILABLE DISTRIBUTED LEDGER THAT FOR EACH BALLOT CAST IN AN24
ELECTION CONTAINS THE FOLLOWING :25
(I) T
HE PARTIAL RANDOMLY GENERATED AND ASSIGNED AUDIT26
NUMBER ASSOCIATED WITH THE BALLOT ; AND27
HB25-1193
-8- (II) THE INFORMATION WITHIN THE BALLOT .1
(b) "P
ARTIAL RANDOMLY GENERATED AND ASSIGNED AUDIT2
NUMBER" MEANS THE FIRST TWELVE CHARACTERS OF A RANDOMLY3
GENERATED AND ASSIGNED AUDIT NUMBER .4
(c) "R
ANDOMLY GENERATED AND ASSIGNED AUDIT NUMBER "5
MEANS A STRING OF THIRTY-TWO RANDOMLY GENERATED ALPHA -NUMERIC6
CHARACTERS.7
(d) "R
ANDOMLY GENERATED AND ASSIGNED AUDIT NUMBER8
TRACKING DATABASE" MEANS A DISTRIBUTED LEDGER THAT INCLUDES THE9
FOLLOWING:10
(I) E
ACH RANDOMLY GENERATED AND ASSIGNED AUDIT NUMBER11
GENERATED BY THE SECRETARY OF STATE FOR THE RELEVANT ELECTION ;12
(II) T
HE PARTIAL RANDOMLY GENERATED AND ASSIGNED AUDIT13
NUMBER THAT CORRESPONDS TO EACH RANDOMLY GENERATED AND14
ASSIGNED AUDIT NUMBER GENERATED BY THE SECRETARY OF STATE FOR15
THE RELEVANT ELECTION; AND16
(III) W
HETHER THE BALLOT ASSOCIATED WITH A RANDOMLY17
GENERATED AND ASSIGNED AUDIT NUMBER WAS CAST IN THE RELEVANT18
ELECTION.19
SECTION 2. Act subject to petition - effective date. This act20
takes effect at 12:01 a.m. on the day following the expiration of the21
ninety-day period after final adjournment of the general assembly; except22
that, if a referendum petition is filed pursuant to section 1 (3) of article V23
of the state constitution against this act or an item, section, or part of this24
act within such period, then the act, item, section, or part will not take25
effect unless approved by the people at the general election to be held in26
HB25-1193
-9- November 2026 and, in such case, will take effect on the date of the1
official declaration of the vote thereon by the governor.2
HB25-1193
-10-