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Jun 30, 2025

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Karly Kaufman serves as Communications Manager for CCLP. Staff page ›

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CCLP’s 2025 legislative wrap-up, part 2

by | Jun 30, 2025

Equity work, Family Economic Security, Health, Housing, Immigration, Income, Language Access, Legislative Updates, Research and Policy Analysis, Testimony

Colorado Capitol, in Denver, Colorado at sunset. The Colorado State Capitol Building is the home of the General Assembly and the offices of the Governor, Lieutenant Governor, and the State Treasurer.

Building worker and community power

This year, CCLP supported building community power by amplifying Coloradans’ voices in the workplace and civic life. Most of the positions we took on bills landed in this category, including four of our priority bills: SB25-276, HB25-1090, HB25-1153, and HB25-1264.

SB25-276, Protect Civil Rights Immigration Status, brought by Colorado Immigrant Rights Coalition, strengthens Colorado’s existing laws by closing data privacy loopholes, fortifying constitutional protections for immigrants at public locations like hospitals, schools, and childcare centers, and by prohibiting local law enforcement from honoring ICE detainer requests without a judicial warning.[1] This legislation reaffirms our state’s commitment to upholding the civil liberties of all residents, and fostering a more just and safe community for everyone, regardless of immigration status.

HB25-1090, Protections Against Deceptive Pricing Practices, protects Colorado consumers from deceptive “junk fees” — those hidden, mandatory charges that some businesses and landlords add to the advertised price of goods and services. Some examples of junk fees include resort fees at hotels, processing or administrative fees, and mandatory service charges. This is a good bill, but it was weakened by eliminating “private right of action” — your right to question hidden fees through demand letters and to take direct action when a business or landlord violates the law. Chris Nelson, CCLP’s Research & Policy Analyst, provided testimony in support of the bill.

HB25-1153, Statewide Government Language Access Assessment, requires Colorado agencies to assess language access services and create a statewide language access policy. Language access helps Coloradans who speak different languages communicate with one another and receive important information in a way they understand. Language access can be spoken, signed, or written.[2] CCLP co-led this bill with Spring Institute of Intercultural Learning, and jointly-released a press release in response to the bill passing, which you can read here. Morgan Turner, CCLP’s Community Engagement Director, provided testimony in support of the bill.

We also supported SB25-020, Tenant and Landlord Law Enforcement, which gives local communities and the Attorney General the power to enforce landlord-tenant housing laws. Additionally, HB25-1001, Enforcement Wage Hour Laws, expands enforcement of wage and hour laws, ensuring Colorado workers are paid the wages they have worked and earned, further protecting and supporting Colorado’s workforce. Chris Nelson provided testimony in support of the bill. HB25-1010, Prohibiting Price Gouging in Sales of Necessities, is a new Colorado consumer protection prohibiting “price gouging,” — a price increase of 10% or more — on essential goods and services, in emergency situations. Things like groceries or sanitary products are considered essential for the health and safety of the public, and are banned from price gouging.

A bill we opposed but still became law is HB25-1208, Local Governments Tip Offsets for Tipped Employees, which claims to let local governments establish lower minimum wages for tipped workers. In reality, the law cuts wages for tipped workers and increases wage theft. According to our Issue Brief: Denver Restaurants and Minimum Wage, a regular server in Denver could lose $3,220 to $4,000 in income for this year. Charles Brennan, CCLP’s Income and Housing Policy Director, provided testimony in opposition of the bill.

Click on the image to expand.

Advocating for progressive tax and budget policy

Along with other fiscal-focused partners, including the Bell Policy Center and Colorado Fiscal Institute, CCLP supported bills advocating for progressive tax and budget policies allowing for investment in public programs and critical infrastructure.

One such bill, SB25-173, Revenue Classification for Taxpayers Bill of Rights, clarifies TABOR exemptions — “damage award” and “property sale” — preventing these revenues from being subject to TABOR spending limits. This allows Colorado to retain some funding flexibility. HB25-1296, Tax Expenditure Adjustment, also retained some state funding by adjusting several of Colorado’s tax expenditures to provide more flexibility to our already constrained budget. Additionally, HB25-1274, Healthy School Meals for All Program aims to secure funding to provide free healthy school meals for all public-school students. To further fund this program, Colorado voters will consider two ballot issues in November 2025 that would reduce tax deductions for high-income individuals — anyone making more than $300,000 a year.

In the effort to advocate for progressive tax and budget policies, we opposed SB25-138, Reductions to State Income Tax, which would have lowered our income tax rate from 4.4% to 4.25% for tax years 2025-2034 and eliminate the state income tax altogether for tax year 2035 and beyond. The bill lost in its first committee, proving that income tax rate cuts provide no benefit to the majority of our population. Chaer Robert provided testimony in opposition to the bill.

Improving health system accountability

This session, CCLP aimed to keep the health care industry accountable, ensuring they provide Coloradans with the care and coverage they need, and honoring their commitment to the public good. We had one of our priority bills in this section, SB25-290, Stabilization Payments for Safety Net Providers, brought forward by the Save Our Safety Net coalition. It creates a plan to help stabilize a broad cross-section of safety net providers that have been struggling in the wake of the Medicaid coverage losses. The Provider Stabilization Fund brings together available state funding, private contributions, and a federal match to facilitate payment to qualifying clinics in Fiscal Year 2025-26.

One of the first laws passed this year was HB25-1002, Medical Necessity Determination Insurance Coverage, which makes behavioral, mental health and substance use treatment have the same coverage as physical health treatment including prevention, screening, and treatment. This ensures fair standards for mental health coverage, so Coloradans get the life-saving services they’re already paying for.[3]  CCLP provided testimony in support of the bill. HB25-1309, Protect Access to Gender-Affirming Health Care, also requires health insurance plans to cover medically necessary gender-affirming health care. It prohibits insurance discrimination and protects patient privacy for transgender and gender-diverse people.

To many health advocates’ delight, SB25-045, Health-Care Payment System Analysis, allows for analysis of a model for a single-payer universal health care system for Colorado and must report its findings to the legislature by the end of 2026. The goal is to gather information on how we could have a universal, state-financed health care system that would work for all Coloradans. We also supported HB25-1017, Community Integration Plan Individuals with Disabilities, which seeks to help people with disabilities participate in their communities more fully by providing services and programs in inclusive community settings. Bethany Pray, CCLP’s Chief Legal and Policy Officer, provided testimony in support of the bill.

Because of concerning federal changes, SB25-196, Insurance Coverage Preventative Health-Care Services, creates a state-level system to identify preventative services that must be covered in Affordable Care Act (ACA) plans, in the event federal litigation takes away the process established by the ACA. This ensures Coloradans will continue to get the necessary health care they need and deserve.

Other bills

The following bills we took positions on, but the parameters fell outside of our four priorities. We were successful in opposing two bills with anti-immigration rhetoric that died in committee: SB25-047, Enforcement of Federal Immigration Law, aimed to bring back Colorado’s “Show Me Your Papers” law, under the guise of only allowing eligible citizens to vote, SB25-057, Noncitizen Voter Registration Cancellation, would have allowed for data sharing to federal immigration officers, likely resulting in the deportation of undocumented individuals. Milena Tayah, a Policy Advocate at CCLP provided testimony in opposition of the bill.

On the opposite end, we supported two laws that increase visitation rights for incarcerated people in correctional facilities in Colorado, HB25-1013, Department of Corrections Visitation Rights, and for the creation of the Colorado Defense Fund, HB25-1321, Support Against Adverse Federal Action. It sets aside $4 million to protect Coloradans from federal changes to freeze our state’s allocated funding or disrupt essential services, a move Democrats are calling, “Musk-proof,” [4] to safeguard against any type of retaliation Colorado could see should the state defy the president’s executive orders.

 

Click here to read CCLP’s 2025 legislative wrap-up, part 1.

Click here to read CCLP’s 2025 legislative wrap-up part 3.

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[1] https://coloradoimmigrant.org/wp-content/uploads/2025/04/SB25-276-Fact-Sheet-.pdf

[2] https://www.canva.com/design/DAGdfzZuCYI/PdWSoWsxBIRt9UOhm1zNOw/view?utm_content=DAGdfzZuCYI&utm_campaign=designshare&utm_medium=link&utm_source=viewer

[3] https://drive.google.com/file/d/1q4JoX0nVra4dwzO91Wt3WdYZ82PifGIj/view

[4] https://www.senatedems.co/newsroom/senate-approves-legislation-to-create-the-colorado-defense-fund

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HEALTH:
HEALTH FIRST COLORADO (MEDICAID)

Health First Colorado is the name given to Colorado’s Medicaid program. Medicaid provides public, low-cost health insurance to qualifying adults and children. It is an entitlement program funded by the federal, state, and county governments and is administered by counties in Colorado. Those who are required to pay must pay a small co-pay when receiving certain health care services.

State Department: Department of Health Care Policy and Financing

Eligibility: Most adults 18 to 64 are eligible for Medicaid in Colorado if their household income is at or below 133% of the federal poverty limit (FPL). Pregnant women are eligible with incomes of up to 195% FPL, while children under 18 may be eligible if the live in a household with income at or below 142% FPL. Some adults over 65 may also be eligible for Medicaid.

Program Benefits: Through Medicaid, low-income Coloradans are eligible for a range of health care services at little to not cost. Services provided include doctors visits, prescription drugs, mental health services, and dental care. Co-pays for certain individuals may be needed for certain services.

Program Funding and Access: Colorado funds our Medicaid program through state and federal dollars. Medicaid is an entitlement program, which means that all who are eligible for Medicaid can access the program, regardless of the funding level in a given year. This does not mean that it is always easy to access Medicaid, even when eligible. And since the program is administered by counties, funding levels for county staff and other administrative roles can make it easier or harder for Coloradans to access the program. On top of this, not all medical providers accept Medicaid which limits the ability of Coloradans to seek health services even if enrolled, such as if the nearest provider is a 2+ hour drive away.

Note: This data is from before the pandemic and does not reflect changes in enrollment rules during the COVID-19 pandemic and public health emergency.

Statewide Program Access 2015-19: Over the study period of this report, an average of 89.0% of the population at or below 133% of FPL (i.e., the population who is likely to be eligible for Medicaid) were enrolled in Medicaid in Colorado.

FOOD SECURITY:
SUPPLEMENTAL NUTRITION ASSISTANCE PROGRAM (SNAP)

The Supplemental Nutrition Assistance Program or SNAP helps low-income Coloradans purchase food by providing individuals and families with a monthly cash benefit that can be used to buy certain foods. SNAP is an entitlement program that is funded by the federal and state governments and administered by counties in Colorado.

State Department: Department of Human Services

Eligibility: Currently, Coloradans qualify for SNAP if they have incomes below 200% FPL, are unemployed or work part-time or receive other forms of assistance such as TANF, among other eligibility criteria. Income eligibility for SNAP was different during the study period of this report than today—it was 130% FPL back in 2019 for example. The US Department of Agriculture uses the population at or below 125% FPL when calculating the Program Access Index (or PAI) for SNAP. We follow this practice in our analysis despite Colorado currently having a higher income eligibility threshold.

Program Benefits: SNAP participants receive a monthly SNAP benefit that is determined by the number of people in their household and their income. Benefit amounts decrease as income increases, helping households avoid a sudden loss of SNAP when their incomes increase, even by a minor amount. Benefits are provided to an Electronic Benefit Transfer (EBT) card that can be used to purchase eligible food items, such as fruits and vegetables; meat, poultry, and fish; dairy products; and breads and cereals. Other items, such as foods that are hot at their point of sale, are not allowable purchases under current SNAP rules.

Program Funding and Access: SNAP, like Medicaid, is a federal entitlement program. This means that Colorado must serve any Coloradan who is eligible for the program. As such, funding should not be a limit to how many Coloradans can be served by the program. However, funding for administration of SNAP at the state and county level can limit the ability of county human service departments to enroll those who are eligible. Other program rules and administrative barriers can make it difficult for Coloradans to receive the benefits they are legally entitled to receive.

Statewide Program Access 2015-19: Over the study period of this report, an average of 61.1% of the population at or below 125% of FPL (i.e., the population who is likely to be eligible for SNAP) were enrolled.

FOOD SECURITY:
SPECIAL SUPPLEMENTAL NUTRITION PROGRAM FOR WOMEN, INFANTS AND CHILDREN (WIC)

The Special Supplemental Nutrition Program for Women, Infants, and Children, also know as WIC, provides healthcare and nutritional support to low-income Coloradans who are pregnant, recently pregnant, breastfeeding, and to children under 5 who are nutritionally at risk based on a nutrition assessment.

State Department: Department of Public Health and Environment

Eligibility: To participate in WIC you must be pregnant, pregnant in the last six months, breastfeeding a baby under 1 year of age, or a child under the age of 5. Coloradans do not need to be U.S. citizens to be eligible for WIC. In terms of income, households cannot have incomes that exceed 185% FPL. Families who are enrolled in SNAP, TANF, Food Distribution Program on Indian Reservations (FDPIR), or Medicaid are automatically eligible for WIC. Regardless of gender, any parents, foster parents, or caregivers are able to apply for and use WIC services for eligible children.

Program Benefits: WIC provides a range of services to young children and their parents. These include funds to purchase healthy, fresh foods; breastfeeding support; personalized nutrition education and shopping tips; and referrals to health care and other services participants may be eligible for.

Program Funding and Access: WIC is funded by the US Department of Agriculture. The state uses these federal funds to contract with local providers, known as WIC Clinics. In most cases, these are county public health agencies, but that is not the case in all Colorado counties. Some WIC Clinics cover multiple counties, while others are served by multiple clinics. Private non-profit providers are also eligible to be selected as a WIC Clinic.

Statewide Program Access 2015-17: Between 2015 and 2017, an average of 52.2% of the population eligible for WIC were enrolled in the program in Colorado.

Financial Security:
Colorado Works

Colorado Works is the name given to Colorado’s program for Temporary Assistance to Needy Families or TANF. It is an employment program that supports families with dependent children on their path to self-sufficiency. Participants can receive cash assistance, schooling, workforce development and skills training depending on the services available in their county.

State Department: Department of Human Services

Eligibility: In general, Coloradans are eligible to enroll in TANF if they are a resident of Colorado, have one or more children under the age of 18 or pregnant, and have very low or no income. For example, to be eligible to receive a basic cash assistance grant through TANF, a single-parent of one child could not earn more than $331 per month, with some exclusions—and would only receive $440 per month (as of 2022). That said, there are other services provided by counties through TANF that those with incomes as high as $75,000 may be eligible for. In addition to these, participants in TANF are required to work or be pursuing an eligible “work activity” or work-related activity. Any eligible individual can only receive assistance if they have not previously been enrolled in TANF for a cumulative amount of time of more than 60 months—this is a lifetime limit that does not reset. Counties may have additional requirements and offer benefits that are not available in other counties in Colorado.

Program Benefits:  While the exact benefits that one is eligible for under TANF can vary, all qualified participants are eligible to receive a monthly cash payment, call basic cash assistance. Other than cash assistance, counties are have a lot of choice in how to use their TANF funding; generally a use of TANF funds is appropriate so long as it advances one or more of the four purposes of the program: (1) provide assistance to needy families so that children can be cared for in their own homes or in the homes of their relatives; (2) end the dependence of needy families on government benefits by promoting job preparation, work, and marriage; (3) prevent and reduce the incidence of out-of-wedlock pregnancies; and (4) encourage the formation and maintenance of two-parent families.

It is important to note that those eligible for TANF are also eligible for many of the other programs we’ve included in this report, such as SNAP, Medicaid, and CCCAP.

Program Funding and Access: Colorado funds its TANF program through funds received from the federal government through the Temporary Assistance for Needy Families block grant. Most of the federal funds are allocated by the state to counties, which are required to provide a 20% match of state funding. Federal and state rules allow the state and counties to retain a portion of unspent funds in a TANF reserve.

Statewide Program Access 2015-19: Over the study period of this report, an average of 50.7% of the population at or below 100% of FPL (i.e., the population who is likely to be eligible for TANF) were enrolled in TANF in Colorado.

EARLY LEARNING:
COLORADO CHILD CARE ASSISTANCE PROGRAM (CCCAP)

The Colorado Child Care Assistance Program provides child care assistance to low-income families and caregivers living in Colorado in the form of reduced payments for child care. It is a program funded by the federal, state, and county governments and is administered by counties in Colorado. The share owed by parents/caregivers is determined on a sliding scale based on the family’s income.

State Department: Department of Early Childhood Education

Eligibility: Counties set eligibility for families separately, but must serve families with incomes at or below 185% of the Federal Poverty Limit. Families accepted to the program are no longer eligible once their income exceeds 85% of the state median income. Parents or caregivers must be employed, searching for work, or engaged in another approved activity to be eligible for CCCAP. Parents and caregivers enrolled in Colorado Works (Temporary Assistance to Needy Families or TANF) or in the child welfare system are also eligible to participate in CCCAP. Generally, CCCAP serves families with children under 13, although children as old as 19 may be eligible under certain circumstances.

Program Benefits: If a family is eligible for CCCAP and has income, they may likely have to pay a portion of their child’s or children’s child care costs each month. The amount that families owe is based on their gross income, number of household members, and the number of children in child care in the household. As such, households tend not to experience a benefit cliff with CCCAP when they see their incomes increase

Program Funding and Access: Colorado funds the CCCAP program using federal dollars it receives from the Child Care and Development Block Grant program. The state allocates federal and state funds to counties using a formula that takes into account factors like current caseloads and the number of eligible residents. Assistance is available until the county’s funds are spent, so the number of families that can be served is often a function of how much funding is available and the income and composition of the household that applies. It is not uncommon for counties to overspend or underspend their allocations of funds. The state reallocates unspent funds from counties who underspent to those who overspent. While underspending could indicate a problem with the way a county administers its CCCAP program, it could just as likely be a sign that there are few providers in the county who participate in CCCAP—or a lack of providers generally.

Statewide Program Access 2015-19: Over the study period of this report, an average of 10.8% of the population at or below 165% of FPL and younger than age 13 (i.e., the population who is likely to be eligible for CCCAP) were enrolled in CCCAP.

Housing:
HUD rental assistance programs

The US Department of Housing and Urban Development (HUD) has three housing assistance programs that we look at together: Housing Choice Vouchers (Section 8), Project-based Section 8, and Public Housing. In Colorado, these programs provided assistance to over 90% of the households who received federal housing assistance from all HUD programs. Through federally funded, local or regional public housing agencies (PHAs) are the agencies that administer these programs, through not all are available in all counties. These are not the only programs available in Colorado that assist households afford the cost of housing, such as units funded through federal and state tax credit programs.

State Department: Department of Local Affairs

Eligibility: Generally, households with incomes under 50% of the area median income (AMI) of the county they live in are eligible for these rental assistance programs, although PHAs have discretion to select households with incomes at higher percentages of AMI. That said, HUD requires that 75% of new vouchers issued through the Housing Choice Voucher/Section 8 program in a given year are targeted to households with incomes at or below 30% of AMI. PHAs are also able to create criteria that give priority to certain types of households who are on waiting lists for these programs.

Program Benefits: These rental assistance programs help households afford the cost of housing by reducing their housing costs to around 30% of their household income. In the case of the Housing Choice Voucher program, the PHA pays the voucher holder’s landlord the remaining portion of the rent.

Program Funding and Access: Funding and access are both challenges for these rental assistance programs. In addition to limitations on the number of public housing units or housing vouchers a PHA can manage or issue, lack of funding compared to the need constrains the ability of PHAs to assist low-income households. In 2020, Coloradans were on waitlists for Housing Choice Vouchers for an average of 17 months. Waitlists also exist for the other rental assistance programs.

Statewide Program Access 2015-19: Over the study period of this report, an average of 21.1% of renter households with incomes at or below 50% AMI (i.e., the population who is likely to be eligible for HUD rental assistance programs) were living in subsidized housing.