BEFORETHECOLORADOSECRETARYOFSTATE OFFICEOFTHESECRETARYOFSTATE STATEOFCOLORADO
ADMINISTRATIVECOMPLAINTANDPETITION UNDERTHEHELPAMERICAVOTEACTOF2002
TitleIII,SubtitleA(52U.S.C.§21081etseq.)(formerly52U.S.C.§15481etseq.) HAVASection402(52U.S.C.§21112)(formerly52U.S.C.§15512) C.R.S.§1-1.5-105
FILEDAGAINST
JENAGRISWOLD
SecretaryofStateofColorado ChiefStateElectionOfficial
ColoradoDepartmentofState 1700Broadway,Suite200 Denver,Colorado80290
ComplainantName:MichaelCahoon
Address:5036CresthillPlace
HighlandsRanch,CO80130
Telephone:720-272-6262
Email:mike.cahoon@usa4freedom.org
ComplainantName:PeterBernegger
Address:1806BrynnwoodTrace
NewLondon,WI54961
Telephone:920-551-0510
Email:peter@electionwatch.info
FILEDBY
TABLEOFCONTENTS
I.IntroductionandJurisdictionalStatement...................................................................................3
II.IdentityofRespondent...............................................................................................................4
III.StandingofComplainant..........................................................................................................4
IV.ProceduralRequirements..........................................................................................................4
V.FactualBackground...................................................................................................................5
A.Colorado’sHAVAStatePlanCommitments............................................................5
B.Colorado’sComputerizedStatewideVoterRegistrationList...................................7
C.Post-CertificationModifications-2020GeneralElection........................................8
D.Post-CertificationModifications-2022GeneralElection.......................................8
E.Post-CertificationModifications-2024GeneralElection........................................9
F.SummaryofTotalPost-CertificationChanges..........................................................9
VI.ClaimsofViolation.................................................................................................................10
CountI-FailuretoMaintainAccurateVoterRegistrationRecords...........................10 CountII-ImproperRemovalofVotersfromtheComputerizedList.........................10 CountIII-FailuretoProvideAdequateTechnologicalSecurity................................11 CountIV-FailuretoMaintainSafeguardsAgainstErroneousRemoval...................12 CountV-FailuretoMaintaintheIntegrityofthePermanentPaperRecordandAudit Capacity.............................................................................................................................12
CountVI-FailuretoMaintaintheComputerizedListastheSingleOfficialSystem13 CountVII–FailuretoUpdatetheStatePlanasrequiredbyHAVA..........................13
VII.FederalJurisdictionandInterest............................................................................................15
VIII.RequestedReliefandRemedies...........................................................................................15
IX.RequestforHearingontheRecord........................................................................................19 X.PreservationandProductionRequests.....................................................................................20
I.INTRODUCTIONANDJURISDICTIONALSTATEMENT
1.ThisadministrativecomplaintandpetitionisfiledpursuanttoSection402oftheHelpAmerica VoteActof2002(Pub.L.107-252;52U.S.C.§21112,formerly52U.S.C.§15512)and Colorado’simplementingstatute,C.R.S.§1-1.5-105,whichtogetherestablishauniform, nondiscriminatoryprocedurebywhich“anypersonwhobelievesthatthereisaviolationof anyprovisionoftitleIII(includingaviolationwhichhasoccurred,isoccurring,orisabout tooccur)mayfileacomplaint.”HAVA§402(a)(2)(B).Accordingly,thiscomplaintproperly allegesviolationsthathaveoccurred,areoccurring,andareabouttooccurwithinthe meaningof52U.S.C.§21112(a)(2)(B).
2.ThecomplaintallegesmultipleviolationsofTitleIIIofHAVA,centeredonColorado’s computerizedstatewidevoterregistrationlistrequirementsandprotectionsinHAVA§303 (52U.S.C.§21083),includinglistmaintenance,accuracy,safeguardsagainsterroneous removal,andtechnologicalsecurity.TitleIIIoftheHelpAmericaVoteActimposes mandatory,nondiscretionaryrequirementsoneachStateadministeringfederalelections.See 52U.S.C.§21083(HAVA§303)(requiringasingle,uniform,official,centralized computerizedstatewidevoterregistrationlist;mandatorylistmaintenanceprocedures; safeguardsagainsterroneousremoval;andadequatetechnologicalsecuritymeasures).These requirementsarebindingconditionsoffederalfundingandareoperationalizedthroughthe StatePlanrequiredby52U.S.C.§21004(HAVA§254),whichobligatestheStateto describe,implement,andmaintaincompliancewithTitleIIIandprohibitsmaterialchanges totheadministrationoftheplanwithoutFederalRegisterpublication,publicnoticeand comment,anda30-daywaitingperiod.Enforcementauthorityisexpresslyvestedinthe UnitedStatesAttorneyGeneralunder52U.S.C.§21111(HAVA§401),whichauthorizes declaratoryandinjunctiverelieftoensurecompliancewith§§21081–21083.Accordingly, violationsof§21083andfailurestoadhereto§21004arenotmerelymattersofstate administration,butconstitutefederallyenforceablebreachesofmandatorystatutoryduties governingtheconductofelectionsforFederaloffice.
3.Thefactualpredicateisdocumentaryevidenceindicatinglarge-scalepost-certification modificationstovoterparticipationhistoryrecordsinColorado’sstatewidevoterregistration dataafterthe2020,2022,and2024GeneralElectionshadbeencertified.Thisevidencewas compiledbyUnite4FreedomthroughsequentialcomparisonsofofficialColoradovoter historyfilesandvoterrollfilesobtainedfromtheColoradoSecretaryofState’soffice.
4.Coloradoreceivedover$43.4millioninfederalHAVArequirementspaymentsandestablished arevisedStatePlan(2008Update)describingitsbindingoperationalcommitmentsto complywithHAVA§303requirements.Asarecipientofthesepayments,Coloradois requiredunderHAVA§402(a)(1)to“establishandmaintainState-basedadministrative complaintprocedures”meetingtherequirementsof§402(a)(2).Colorado’sStatePlan confirmstheseproceduresatSection9.
5.JurisdictionoverthiscomplaintrestswiththeColoradoSecretaryofStatepursuanttoHAVA §402(a)andC.R.S.§1-1.5-105.TheSecretaryofStatemustissueafinaldetermination within90daysoffiling(HAVA§402(a)(2)(H);C.R.S.§1-1.5-105(2)(i)),andifno determinationisissuedwithinthatperiod,thecomplaintshallberesolvedunderalternative disputeresolutionwithinanadditional60days(HAVA§402(a)(2)(I);C.R.S.§1-1.5105(2)(j)).
II.IDENTITYOFRESPONDENT
6.TheRespondentisJenaGriswold,the39thSecretaryofStateoftheStateofColorado,first electedin2018andre-electedin2022.TheSecretaryofStateservesastheChiefState ElectionOfficialofColoradowithinthemeaningofHAVA§§254and303,andas designatedbyH.B.03-1356(codifiedatC.R.S.§1-1.5-103).
7.AsChiefStateElectionOfficial,Respondentisresponsiblefortheimplementationand administrationofthecomputerizedstatewidevoterregistrationlistrequiredbyHAVA§ 303(a)(1)(A)andbearsultimateresponsibilityforensuringColorado’scompliancewithall requirementsofTitleIII.TheSecretaryofState’sofficeislocatedat1700Broadway,Suite 200,Denver,Colorado80290.
III.STANDINGOFCOMPLAINANTS
8.HAVA§402(a)(2)(B)confersstandingon“anypersonwhobelievesthatthereisaviolationof anyprovisionoftitleIII.”Thestatuteimposesnoadditionalstandingrequirementsbeyond thisbelief.TheComplainantsarepersonswithagood-faithbelief,supportedbydocumentary evidence,thattheviolationsdescribedhereinhaveoccurred,areoccurring,andarelikelyto continuetooccur.Eachisaregisteredelectorandhasbeenfortheyearscitedwithinthis document.Eachintendstovoteinupcomingfederalelectionsthisyearof2026.
IV.PROCEDURALREQUIREMENTS
9.ThiscomplaintsatisfiestheproceduralrequirementsofHAVA§402(a)(2)(C)andC.R.S.§11.5-105(2)(a)-(d):
(a)Thiscomplaintisinwriting.
(b)ThiscomplaintissignedandswornbytheComplainants,asreflectedintheVerification andOathbelow.
(c)Thiscomplaintisnotarized,asreflectedintheNotarizationsectionbelow.
(d)ThiscomplaintallegesviolationsofTitleIIIofHAVA2002.
(e)ThiscomplaintistimelyunderC.R.S.§1-1.5-105(2)(d).Theviolationsareongoing andcontinuousinnature,withthemostrecentdocumentedmodificationsoccurring throughDecember22,2025.Thecomplaintisbasedondiscoveredviolationsofthe pastwhicharestilloccurringnow,andwillcontinuetooccurinthefuture.
V.FACTUALBACKGROUND
A.Colorado’sHAVAStatePlanCommitments
10.In2003,theColoradoGeneralAssemblyenactedH.B.03-1356,theColoradoHelpAmerica VoteAct(codifiedatC.R.S.§1-1.5-101etseq.),whichdesignatedtheSecretaryofStateas theChiefStateElectionOfficialwithauthorityandresponsibilityforimplementingHAVA’s requirements.InaccordancewithHAVA§254,ColoradosubmittedaStatePlan,whichwas revisedinMarch2007andupdatedinMarch2008(hereinafter“StatePlan”).Complainants howeverchallengethatthecurrentStatePlanforfederalHAVAisnotcompliant.Material changestotheState’selectionprocesseshavetakenplacesincethelastStatePlanin2008. PerHAVA,materialchangesrequiredtheStatetohaveupdatedtheirStatePlan.TheState anditsChiefElectionOfficerhavefailedtoperformthismandatorytask.Coloradois currentlynon-compliantwithHAVA,yethasacceptedfederalgovernmentHAVAmonies.
11.Table1.2ofColorado’sStatePlanenumeratesthespecificHAVA§303requirementsthat Coloradocommittedtoimplementing.Thefollowingtablereproducestheprovisionsdirectly atissueinthiscomplaint,asacknowledgedbyColoradoinitsownStatePlan:
HAVASection Requirement(asstatedinColoradoStatePlan,Table1.2)
§303(a)(1)(B)(i) Thecomputerizedlistshallserveasthesinglesystemforstoringandmanagingtheofficial listofregisteredvotersthroughouttheState.
§303(a)(1)(B)(viii) Thecomputerizedlistshallserveastheofficialvoterregistrationlistfortheconductofall electionsforFederalofficeintheState.
§303(a)(2)(A)(i) Ifanindividualistoberemovedfromthecomputerizedlist,suchindividualshallbe removedinaccordancewiththeprovisionsoftheNationalVoterRegistrationActof1993 (42U.S.C.1973ggetseq.),includingsubsections(a)(4),(c)(2),(d),and(e)ofsection8of suchAct.
§303(a)(2)(B)(ii) Onlyvoterswhoarenotregisteredorwhoarenoteligibletovoteareremovedfromthe computerizedlist.
§303(a)(3) TheappropriateStateorlocalofficialshallprovideadequatetechnologicalsecurity measurestopreventtheunauthorizedaccesstothecomputerizedlistestablishedunder thissection.
§303(a)(4)(A) Asystemoffilemaintenancethatmakesareasonableefforttoremoveregistrantswhoare ineligibletovotefromtheofficiallistofeligiblevoters.Undersuchsystem,consistent withtheNVRA,registrantswhohavenotrespondedtoanoticeandwhohavenotvoted in2consecutivegeneralelectionsforFederalofficeshallberemovedfromtheofficial list,exceptthatnoregistrantmayberemovedsolelybyreasonofafailuretovote.
§303(a)(4)(B) Safeguardstoensurethateligiblevotersarenotremovedinerrorfromtheofficiallistof eligiblevoters.
Source:ColoradoStatePlanforHAVA(2008Update),Table1.2,pp.18-19.
12.Thesecommitmentsarebindingobligationsundertakenasaconditionofreceivingfederal requirementspaymentstotalingover$43.4million.SeeHAVA§402(a)(1);StatePlan, Sections5-6.ColoradocannotclaimignoranceoftheHAVA§303requirementsbecauseit expresslyenumeratedeachoftheminitsowncomplianceplan(of2008).
13.MaterialChangesSinceColorado'sLastStatePlan(March2008)
a.UniversalMailBallotElections-HB13-1303(2013).ColoradopassedtheVoterAccessand ModernizedElectionsActin2013,whichrequiredballotstobemailedtoeveryregisteredvoter forallelections.TheactwassignedintolawMay10,2013,bythen-Gov.JohnHickenlooper.This lawalsoimplementedsame-dayregistration,eliminatedassignedpollingplaces,andreplaced themwithcountyVoterServiceandPollingCenters.Colorado's2008StatePlanwaswrittenfor afundamentallydifferentelectionmodel-onebasedonin-personprecinctvotingwithabsentee ballotingastheexception,nottherule.
b.AutomaticVoterRegistration(AVR)-SB19-235(2019,effective2020)
BeginningJuly1,2020,thedepartmentofrevenueisrequiredtotransfertothesecretaryofstate theelectronicrecordofeachunregisteredelectororpersoneligibletopreregisterwhoappliesfor theissuance,renewal,orcorrectionofaColoradodriver'slicenseoridentificationcardandwho providesdocumentationofcitizenship.AVRwaspartoftheDemocracyPackagethatSecretary ofStateJenaGriswoldworkedcloselywiththeColoradolegislaturetopassin2019.ByJune2021, justover250,000Coloradansregisteredtovotethroughthesystemsinceitsimplementationin Mayof2020.
Thisfundamentallychangedthevoterregistrationpipelinefromanopt-insystem(wherecitizens affirmativelyapplied)toanopt-outsystem(wheretheDMVautomaticallytransfersrecordstothe SecretaryofState,andindividualsmustaffirmativelydeclineregistrationwithin20days).
c.TheHAVAStatePlanUpdateRequirement:HAVA§254(a)(11),whichisreproducedverbatim inColorado'sownStatePlanatSection11,providesthattheState"maynotmakeanymaterial changeintheadministrationoftheplan"unlessthechange:(A)isdevelopedandpublishedinthe FederalRegisterinaccordancewith§255;(B)issubjecttopublicnoticeandcommentin accordancewith§256;and(C)takeseffectonlyaftertheexpirationofa30-dayperiodbeginning onthedatethechangeispublishedintheFederalRegister.Colorado'sownStatePlan acknowledgesthisobligation: "FuturematerialchangesintheadministrationoftheStatePlan willnotbemadeunlessthechangeisdevelopedandpublishedintheFederalRegisterin accordancewithHAVA§255and§256." (StatePlan,Section11,p.41.)
d.Bothoftheselegislativechangesfundamentallyalteredthesystemsandprocessesdescribedin the2008StatePlan:
i.Universalmailballoting changedtheentiremethodofballotdelivery,theroleofcounties,the chainofcustodyforballots,thetimingofballotprocessing,andthesecurityframework-allof whicharedescribedintheStatePlanunderSections4(VotingSystemGuidelines)and7 (ProvisionalVotingandUOCAVA).
ii.Automaticvoterregistration changedtheentiremethodbywhichthecomputerizedstatewide voterregistrationlist-thecentralsubjectofHAVA§303-ispopulatedandmaintained.The2008 StatePlandescribesaregistrationsystembuiltonaffirmativevoterapplications,notautomated DMVdatatransfers.Thisdirectlyimpactsevery§303commitmentinTable1.2oftheStatePlan.
iii.YetColoradohasnotpublishedanupdatedStatePlanintheFederalRegistersinceMarch2008 -aspanofnearly18yearsduringwhichthesetransformativechangeswereimplemented.HAVA §253(b)(1)requiresthataStatefileaStatePlanwiththeElectionAssistanceCommissionasa conditionofreceivingrequirementspayments. TheStatemustcertifythattheplanmeetsthe requirementsof§254.IftheStatehasmadematerialchangestotheadministrationoftheplan withoutfollowingthe§254(a)(11)procedures,theStatePlanonfilenolongeraccuratelydescribes Colorado'selectionadministration-yetColoradohascontinuedtoreceiveandexpendfederal HAVAfundsonthebasisofaplanthatdoesnotreflectactualoperations.
iv.Coloradoreceivedover$43.4millioninfederalHAVApayments(ascitedhereinthis complaint).TheStatehasbeenoperatingoutsidethetermsoftheplanunderwhichthosefunds weredisbursed,withoutfollowingthemandatoryupdateprocedures.Eachfederalelectionduring theseyearswheretherewasnoStatePlanwerefalselyheld,and,uncertifiable.Eachelectionheld duringthistimeisnull,voidandofnolegaleffect.
B.Colorado’sComputerizedStatewideVoterRegistrationList
13.Coloradomaintainsacomputerizedstatewidevoterregistrationsystem,defined,maintained, andadministeredatthestatelevelbytheOfficeoftheSecretaryofState,pursuanttoHAVA §303(a)(1)(A)andC.R.S.§1-1.5-104.FollowingafailedinitialcontractwithAccenture LLP(terminatedDecember2005),ColoradocontractedwithSaberSoftware,Inc.todevelop thesystem,whichwaspilotedinninecountiesbeginningAugust2007anddeployed statewidebyApril2008.SeeStatePlan,§303discussion,pp.17-18.
14.Thissystemconstitutesthe“singlesystemforstoringandmanagingtheofficiallistof registeredvotersthroughouttheState”(§303(a)(1)(A)(i))andservesas“theofficialvoter registrationlistfortheconductofallelectionsforFederalofficeintheState” (§303(a)(1)(B)(viii)).Theintegrityandimmutabilityofthissystemafterelection certificationisthereforeamatterofdirectfederalconcern.
C.Post-CertificationModifications-2020GeneralElection
15.DocumentaryevidenceproducedbyUnite4Freedomthroughsequentialcomparisonofofficial Coloradovoterhistoryfilesandvoterrollfilesrevealsthatafterthefinalcertificationofthe November3,2020GeneralElection,atotalof328,895post-certificationchangesweremade tovoterparticipationhistoryrecordsinthecomputerizedstatewidevoterregistrationlist. Complainantsreviewed,read,analyzedtherawdataandthederivedoutput.Thesechanges weredocumentedacrossthreecomparisonwindowsspanningDecember1,2022through December22,2025,asfollows:
CategoryofChange
Window112/01/2022 to11/07/2023
Window211/07/2023 to12/05/2024
Window312/05/2024 to12/22/2025 VotetoNoVote(VoterIDinbothfiles)
Source:ColoradoVoteTamperingReport,Unite4Freedom(ExhibitA).
16a.Ofparticularsignificance:(a)208,304voter/ballotrecordswereaddedinthethirdcomparison windowalone(December2024throughDecember2025)-morethanfouryearsafterthe electionwascertified;and(b)acumulativetotalof111,766voter/ballotrecordsweredeleted (55,937+53,621+2,208)acrossthethreecomparisonwindows.Complainantsstatethis, these,areHAVAviolations.ThesearealsoongoingHAVAviolations.Complaintsstate theseviolationswilloccurinthefuture.
16b.Thesewillbefutureviolationstiedtothe2026electioncyclealso.Explicitlyconnectedto thesamedatabasearchitecturewhichstillremainsinplace.Tonocorrectivecontrolshavebeen implemented.Thereforetheviolationsare“abouttooccur”inthenextfederalelection(s).
D.Post-CertificationModifications-2022GeneralElection
17.FortheNovember8,2022GeneralElection,atotalof155,576post-certificationchangeswere documentedacrossthreecomparisonwindowsspanningDecember1,2022through December22,2025:
Source:ColoradoVoteTamperingReport,Unite4Freedom(ExhibitA).
18.The2022datashows79,383voter/ballotdeletions(35,112+42,750+1,521)and75,496 voter/ballotadditions(215+1,821+73,460)acrossthethreecomparisonwindows,all occurringaftertheelectionwascertified.
E.Post-CertificationModifications-2024GeneralElection
19.FortheNovember5,2024GeneralElection,atotalof3,416post-certificationchangeswere documentedinasinglecomparisonwindowbetweenDecember5,2024andDecember22, 2025:
CategoryofChange 12/05/2024to12/22/2025
Source:ColoradoVoteTamperingReport,Unite4Freedom(ExhibitA).
20.Whilethe2024totalissmallerinabsoluteterms,itnonethelessdocuments2,508voter/ballot deletionsand411changesfrom“Vote”to“NoVote”withinapproximatelyoneyearafter certification-demonstratingthatthepatternofpost-certificationmodificationisongoingand continuingunderthecurrentSecretaryofState.
F.SummaryofTotalPost-CertificationChanges
21.Thecumulativetotalof487,887post-certificationchangestovoterparticipationhistory recordsacrossthreeconsecutiveGeneralElections,eachofwhichincludedracesforfederal office,constitutesthefactualbasisfortheviolationsallegedbelow.Complainantsdonot assertthateveryindividualchangewasunauthorized;rather,Complainantsassertthatthe scale,timing,andnatureofthesemodificationsrequireexplanationandthattheRespondent bearstheburdenofdemonstratinglawfulauthority,NVRAcompliance,andadequate controlsforeachcategoryofchange.
VI.CLAIMSOFVIOLATION
CountI-FailuretoMaintainAccurateVoterRegistrationRecords HAVA§303(a)(4)(52U.S.C.§21083(a)(4))
22.Section303(a)(4)ofHAVArequiresthat“[t]heStateelectionsystemshallincludeprovisions toensurethatvoterregistrationrecordsintheStateareaccurateandareupdatedregularly.” Colorado’sStatePlanexpresslyacknowledgedthisrequirementatTable1.2,§303(a)(4)(A).
23.Thepost-certificationmodificationofvoterparticipationhistoryrecords,totaling328,895 changesforthe2020election,155,576for2022,and3,416for2024,isfundamentally incompatiblewiththisstatutorymandate.Theofficialrecordofwhovotedineachcertified electioncannotbeconsidered“accurate”whenitissubjecttoongoingretroactivealteration acrossmultipleyears.ThedatausedintheanalysisisfromtheStateofColoradoitself.
24.Iftherecordswereaccurateatthetimeofcertification,thensubsequentmodificationstovote historiespresentadilemma:either(a)therecordswerenotinfactaccurateatthetimeof certification,whichisitselfaviolationof§303(a)(4);or(b)therecordsarebeing retroactivelyalteredafterthefact,whichrendersthestatutory“accuracy”requirement meaningless.Eithercircumstanceconstitutesafailuretocomplywiththisprovision.
CountII-ImproperRemovalofVotersfromtheComputerizedList
HAVA§303(a)(2)(B)(ii)(52U.S.C.§21083(a)(2)(B)(ii))
IncorporatingHAVA§303(a)(2)(A)(i)(NVRAcompliancerequirements)
25.Section303(a)(2)(B)requireslistmaintenancetoensurethat“onlyvoterswhoarenot registeredorwhoarenoteligibletovoteareremovedfromthecomputerizedlist.”Section 303(a)(2)(A)(i)furtherrequiresthatanyremovalbeconducted“inaccordancewiththe
provisionsoftheNationalVoterRegistrationActof1993,”includingthenotice-and-waitingperiodrequirementsofSection8oftheNVRA(52U.S.C.§20507).Colorado’sStatePlan acknowledgedbothrequirementsatTable1.2.
26.Thedatadocumentsthefollowingvoter/ballotdeletionsfromthecomputerizedlistafter electioncertification:
(a)2020GeneralElection:111,766voter/ballotdeletions(55,937+53,621+2,208)
(b)2022GeneralElection:79,383voter/ballotdeletions(35,112+42,750+1,521)
(c)2024GeneralElection:2,508voter/ballotdeletions
27.Thevolumeandpost-certificationtimingoftheseremovalsraisesasubstantialquestion whethertheNVRA’sproceduralrequirements-includingnoticetothevoter,opportunityto respond,andatwo-general-electionwaitingperiodfornon-response-werefollowedforeach deletion.TheComplainantisnotawareofanypublicdisclosurebytheSecretaryofState demonstratingNVRAcomplianceforthesepost-certificationdeletions.
CountIII-FailuretoProvideAdequateTechnologicalSecurity
HAVA§303(a)(3)(52U.S.C.§21083(a)(3))
28.Section303(a)(3)requiresthat“[t]heappropriateStateorlocalofficialshallprovideadequate technologicalsecuritymeasurestopreventtheunauthorizedaccesstothecomputerizedlist.” Colorado’sStatePlanspecificallyacknowledgedthisrequirementatTable1.2.
29.Thescaleandnatureofthedocumentedpost-certificationchangesimplicatetheadequacyof thesesecuritymeasuresinatleasttworespects:
(a)Thesystempermitsbulkwriteoperationsonofficialvoterparticipationhistoryrecords afterelectioncertification,includingtheabilitytoaddanddeleteentirevoterrecords withassociatedparticipationhistories.Changesofthemagnitudedocumented,328,895 forthe2020electionalone,suggesteitherthatauthorizedpersonnelareexecutingmass modificationswithoutadequatecontrolsoraudittrails,orthatunauthorizedaccesshas occurred.
(b)Thecategoriesofchanges,particularlytheadditionof208,304voter/ballotrecordsfor the2020electioninthethirdcomparisonwindow(morethanfouryearspostcertification),indicatetheabsenceofeffectivepost-certificationwriterestrictions, whichHAVA’stechnologicalsecurityrequirementwasdesignedtoprevent.These factsraiseasubstantialcompliancequestionrequiringtheSecretarytoidentifythe lawfulauthority,accesscontrols,andaudittrailsupportinganypost-certificationedits.
CountIV-FailuretoMaintainSafeguardsAgainstErroneousRemoval
HAVA§303(a)(4)(B)(52U.S.C.§21083(a)(4)(B))
30.Section303(a)(4)(B)requires“[s]afeguardstoensurethateligiblevotersarenotremovedin errorfromtheofficiallistofeligiblevoters.”Colorado’sStatePlanexpresslycommittedto implementingthesesafeguardsatTable1.2,§303(a)(4)(B).
31.Thepost-certificationdeletionofvoterrecords,includingrecordsofvoterswithassociated voteparticipationhistories,indicatingtheywereactivevoterswhocastballotsintherelevant election,raisesasignificantriskthateligiblevotershavebeenremovedinerror.Whena voterwhoisrecordedashavingvotedinacertifiedelectionissubsequentlydeletedfromthe voterfile,themostnaturalinferenceisthataneligiblevoterhasbeenremovedwithout adequatesafeguardprocedures(suchasnotice,waitingperiods,orverificationof ineligibility).
32.TheComplainantsarenotawareofanyevidencethatsafeguardprocedureswereappliedbefore thesepost-certificationdeletionsoccurred,orthattheSecretaryofStatehaspublicly accountedforthelawfulbasisofeachcategoryofdeletion.Thesefactsraisesubstantial compliancequestionsregardingthelawfulbasis,safeguards,andaudittrailforpostcertificationdeletionsandvote-historychanges.
33.Section301(a)(2)requiresthatthevotingsystemproduce“apermanentpaperrecordwitha manualauditcapacity”thatis“availableasanofficialrecordforanyrecount.”
34.While§301(a)(2)isdirectedprimarilyatvotingsystemshardwareandpaperrecords,thepostcertificationalterationofvoterparticipationhistoriesfundamentallyunderminestheaudit frameworkHAVAwasdesignedtoprotect.Whenparticipationhistoriesarechangedafter certification,includingaddingvotesnotpreviouslyrecorded,removingvotesthatwere recorded,ordeletingentirevoterrecords,theelectronicrecordnolongercorrespondstothe paperrecordproducedonElectionDay.Thiscreatesanirreconcilablediscrepancybetween thepaperaudittrailandtheelectronicvoterfile.Theseviolationscontinuetohappenand takeplaceineachGeneralElectionComplainantshaveanalyzed.
35.Thisdiscrepancyiscriticalinanyrecountorauditscenario.Ifanauditcomparespaperballots againstvoterparticipationrecords,andthoseparticipationrecordshavebeenretroactively altered,theauditbecomesunreliable.Theintegrityoftheauditprocessdependsonthe immutabilityofboththepaperandelectronicrecordsaftercertification.Thedocumented
post-certificationmodificationsto487,887voterparticipationhistoryrecordsacrossthree consecutiveGeneralElectionsrenderthepermanentpaperrecordrequiredby§301(a)(2) incapableofservingitsstatutoryfunctionasanofficialrecordforanyrecount,and Respondenthasnotpubliclydisclosedanyreconciliationproceduretoensurethatthepaper audittrailandtheelectronicvoterfileremaininagreementaftercertification.
CountVI-FailuretoMaintaintheComputerizedListastheSingleOfficialSystem
HAVA§303(a)(1)(A)(i)and§303(a)(1)(B)(viii)(52U.S.C.§21083(a)(1))
36.Section303(a)(1)(A)(i)requiresthat“[t]hecomputerizedlistshallserveasthesinglesystem forstoringandmanagingtheofficiallistofregisteredvotersthroughouttheState.”Section 303(a)(1)(B)(viii)furtherprovidesthatthelist“shallserveastheofficialvoterregistration listfortheconductofallelectionsforFederalofficeintheState.”Colorado’sStatePlan acknowledgedbothrequirementsatTable1.2.
37.Asystemthatproducesmateriallydifferentanswerstothequestion“whovotedinthis election?”dependingonthedatetherecordsarequeriedisnotfunctioningasthe“single system”requiredbythisprovision.TheColoradodatademonstratesthattheofficialrecord ofthe2020GeneralElectionwasmateriallydifferentinDecember2022thaninNovember 2023,anddifferentagaininDecember2024.Thesamepatternholdsforthe2022and2024 elections.Thisindicatesanongoing,continuouspatternofapparentnoncompliancethat warrantsfindingsandcorrectiveactionunderHAVA§402.
38.Thisinstabilityrendersthecomputerizedlistamutablerecordratherthanthestable, authoritativesingleofficialsystemthat§303(a)(1)(A)(i)and(B)(viii)requireforthe administrationoffederalelections.
CountVII–FailuretoMaintainaValidStatePlanFollowingMaterialChangestoElection Administration
HAVA§254(a)(11)(52U.S.C.§21004(a)(11))HAVA§255(52U.S.C.§21005)HAVA§256 (52U.S.C.§21006)HAVA§253(b)(1)(52U.S.C.§21003(b)(1))
39.Section254(a)(11)ofHAVAprovidesthataState"maynotmakeanymaterialchangeinthe administrationoftheplan"unlessthechange(A)isdevelopedandpublishedintheFederal Registerinaccordancewith§255,(B)issubjecttopublicnoticeandcommentinaccordancewith §256,and(C)takeseffectonlyaftertheexpirationofa30-dayperiodbeginningonthedatethe changeispublishedintheFederalRegister.Colorado'sownStatePlanexpresslyacknowledged andcommittedtothisobligationatSection11,page41:"Futurematerialchangesinthe
administrationoftheStatePlanwillnotbemadeunlessthechangeisdevelopedandpublishedin theFederalRegisterinaccordancewithHAVA§255and§256."
40.Colorado'slastStatePlanupdatewaspublishedinMarch2008.Inthenearlyeighteenyears sincethatdate,Coloradohasenactedatleasttwofundamentalchangestotheadministrationofits electionsthatconstitutematerialchangeswithinthemeaningof§254(a)(11):
(a)UniversalMailBallotElections.In2013,theColoradoGeneralAssemblyenactedH.B.131303,theVoterAccessandModernizedElectionsAct,signedintolawonMay10,2013,which convertedColoradofromaprecinct-based,in-personvotingmodeltoauniversalmailballot systeminwhichballotsaremailedtoeveryregisteredvoterforallelections.Thislegislationalso eliminatedassignedpollingplaces,replacedthemwithcountyVoterServiceandPollingCenters, andimplementedsame-dayvoterregistration.Thesechangesfundamentallyalteredthemethod ofballotdelivery,chainofcustody,ballotprocessingtimelines,andthesecurityframework describedinthe2008StatePlanatSections4(VotingSystemGuidelinesandProcesses)and7 (ProvisionalVotingandVotingInformation).
(b)AutomaticVoterRegistration.In2019,theColoradoGeneralAssemblyenactedS.B.19-235, effectiveJuly1,2020,whichestablishedanAutomaticVoterRegistrationsystemrequiringthe DepartmentofRevenuetotransfertotheSecretaryofStatetheelectronicrecordofeach unregisteredelectorwhoappliesfortheissuance,renewal,orcorrectionofaColoradodriver's licenseoridentificationcardandwhoprovidesdocumentationofcitizenship.Individualsare registeredtovoteunlesstheyaffirmativelyoptoutwithintwentydays.Thislegislationconverted thevoterregistrationsystemfromanaffirmativeopt-inmodel,asdescribedinthe2008StatePlan, toanautomatedopt-outmodelthatfundamentallychangedthemethodbywhichthecomputerized statewidevoterregistrationlistrequiredbyHAVA§303(a)(1)(A)ispopulated,maintained,and updated.The2008StatePlandescribesnoneoftheseprocesses.
41.NeitherofthesematerialchangesweredevelopedandpublishedintheFederalRegisterin accordancewith§255,subjectedtopublicnoticeandcommentinaccordancewith§256,or implementedonlyaftertheexpirationoftherequired30-daywaitingperiod.Complainantsarenot awareofanyupdatedStatePlanhavingbeenfiledwiththeUnitedStatesElectionAssistance CommissionatanytimesinceMarch2008.
42.Section253(b)(1)ofHAVArequiresthataStatefileaStatePlanwiththeElectionAssistance Commissionasaconditionofreceivingrequirementspayments,andthattheStatecertifytheplan containseachoftheelementsdescribedin§254andwasdevelopedinaccordancewith§255.The StatePlancurrentlyonfiledoesnotaccuratelydescribeColorado'spresentelectionadministration. Thesystemsandprocessesthe2008Plandescribes—includingprecinct-basedin-personvoting, affirmativeopt-invoterregistration,andthespecificvoterregistrationsystemarchitecturethenin use—havebeensupersededbythelegislationidentifiedabove.Coloradohasnonetheless continuedtoreceiveandexpendfederalHAVAfundsonthebasisofaStatePlanthatnolonger reflectstheState'sactualoperations.
43.ThefailuretoupdatetheStatePlanisnotmerelyaproceduraldeficiency.TheStatePlanisthe instrumentthroughwhichaStatepubliclycommitstospecificoperationalcontrols,security
measures,andcompliancemechanismsfortheadministrationofelectionsinvolvingfederal offices.Itisthefoundationaldocumentagainstwhichfederaloversightbodies,thepublic,and complainantsunder§402measuretheState'scompliancewithTitleIII.WhentheStateoperates undersystemsandprocessesthatarenotdescribedin,authorizedby,orsubjecttothe accountabilityframeworkofthefiledStatePlan,thetransparencyandaccountabilitythatHAVA's StatePlanrequirementwasdesignedtoensurearenullified.Coloradohasoperatedwithoutavalid, currentStatePlanfortheconductofeveryfederalelectionsinceatleast2013,includingthethree GeneralElectionsatissueinthiscomplaint.
44.Thisfailureisongoingandcontinuous.Asofthedateofthisfiling,noupdatedStatePlanhas beenpublished,andthematerialchangesidentifiedaboveremainunaccountedforinanyplan filedwiththeElectionAssistanceCommission.Respondent,asChiefStateElectionOfficial,bears theresponsibilityunderHAVA§254andC.R.S.§1-1.5-103forthedevelopment,submission,and ongoingmanagementoftheStatePlan,andhasfailedtodischargethatresponsibilityfornearly twodecades.
VII.FEDERALJURISDICTIONANDINTEREST
45.Theviolationsallegedhereindirectlyimplicatefederalinterests.Theelectionsaffected,the 2020,2022,and2024GeneralElections,eachincludedracesforfederaloffices,including electionsforPresidentandVicePresidentoftheUnitedStates,UnitedStatesSenators,and MembersoftheUnitedStatesHouseofRepresentatives.Inaddition,asHAVApermitsthis complaintproperlyallegesviolationsthathaveoccurred,areoccurring,andareaboutto occurwithinthemeaningof52U.S.C.§21112(a)(2)(B).
46.Colorado’scomputerizedstatewidevoterregistrationlistservesas“theofficialvoter registrationlistfortheconductofallelectionsforFederalofficeintheState,”asrequiredby HAVA§303(a)(1)(B)(viii)andasacknowledgedinColorado’sStatePlan(Table1.2).Postcertificationalterationofthatlististhereforeinherentlyafederalconcern.
47.Complainantsrespectfullyrequestthatthiscomplaintandanyresultingfindingsbeforwarded totheUnitedStatesElectionAssistanceCommissionandtheUnitedStatesDepartmentof Justiceasappropriate,inadditiontobeingadjudicatedundertheHAVA§402procedures inColorado.
VIII.REQUESTEDRELIEFANDREMEDIES
48.ComplainantsrespectfullyrequestthefollowingreliefpursuanttoHAVA§402(a)(2)(F)and C.R.S.§1-1.5-105.GiventhestructuralconflictofinterestinherentinrequiringtheSecretaryof Statetoadjudicatecomplaintsaboutherownadministrationofelections,Complainantsrequest thatanyinvestigation,hearing,anddeterminationinthismatterbeconductedbyafully independentpartyapartfromtheChiefElectionOfficer,heroffice,anydivisionwithinthe
ColoradoDepartmentofState,oranyhearingofficerappointedbyorreportingtotheSecretaryof State.
A.InvestigationandFindingsofFact
49.Investigateandmakefindingsoffactidentifying:(a)whichoffice(s),unit(s),useraccounts,or automatedprocessesexecutedthepost-certificationmodificationsdocumentedinExhibitA;(b) thedaterangesandbatchsizesofthemodificationsforeachofthethreeGeneralElectionsatissue; (c)theauthorizinglegalbasisforeachcategoryofchange(statute,rule,courtorder,orother);(d) whetherchangeswereprecinct-orcounty-scopedorappliedstatewide;(e)whetherNVRA procedures,includingnoticetothevoter,opportunitytorespond,andthetwo-general-election waitingperiod,werefollowedforeachvoterremoval;and(f)whetheranyinternalreview, approval,orquality-controlprocesswasappliedbeforepost-certificationmodificationswere executed.
B.DeterminationofViolations
50.DeterminewhetherviolationsofthefollowingprovisionsofHAVAhaveoccurred,are occurring,orareabouttooccur,andifso,providetheappropriateremedyasrequiredbyHAVA §402(a)(2)(F):
(a)HAVA§303(a)(4)(A)(52U.S.C.§21083(a)(4)(A))-failuretomaintainaccuratevoter registrationrecords(CountI);
(b)HAVA§303(a)(2)(A)(i)and§303(a)(2)(B)(ii)(52U.S.C.§21083(a)(2))-improperremoval ofvotersfromthecomputerizedlistwithoutcompliancewiththeNationalVoterRegistrationAct of1993(CountII);
(c)HAVA§303(a)(3)(52U.S.C.§21083(a)(3))-failuretoprovideadequatetechnological securitymeasurestopreventunauthorizedaccesstothecomputerizedlist(CountIII);
(d)HAVA§303(a)(4)(B)(52U.S.C.§21083(a)(4)(B))-failuretomaintainsafeguardsagainst erroneousremovalofeligiblevoters(CountIV);
(e)HAVA§301(a)(2)(52U.S.C.§21081(a)(2))-failuretomaintaintheintegrityofthepermanent paperrecordandauditcapacity(CountV);
(f)HAVA§303(a)(1)(A)(i)and§303(a)(1)(B)(viii)(52U.S.C.§21083(a)(1))-failuretomaintain thecomputerizedlistasthesingleofficialsystemfortheconductoffederalelections(CountVI); and
(g)HAVA§254(a)(11)(52U.S.C.§21004(a)(11)),§255(52U.S.C.§21005),§256(52U.S.C. §21006),and§253(b)(1)(52U.S.C.§21003(b)(1))-failuretomaintainavalidStatePlan followingmaterialchangestotheadministrationofColorado'selections,includingtheadoption
ofuniversalmailballotelections(H.B.13-1303,2013)andautomaticvoterregistration(S.B.19235,2019),whilecontinuingtocertifycomplianceandreceivefederalHAVArequirements paymentsunderaStatePlanthatnolongerreflectsactualoperations(CountVII).
C.ImmediateCorrectiveOrders
51.Orderimmediatecessationofallpost-certificationmodificationstovoterparticipationhistory recordsthatarenotspecificallyauthorizedbyColoradostatuteorrequiredbycourtorder,pending thecompletionofthisinvestigation.
52.OrderthatColoradoimmediatelycommencepreparationofanupdatedStatePlanthat accuratelydescribestheState'scurrentelectionadministration,includingallmaterialchanges enactedsincethe2008StatePlan.Theupdatedplanshallbedevelopedandpublishedinthe FederalRegisterinaccordancewith§255,subjectedtopublicnoticeandcommentinaccordance with§256,andshalltakeeffectonlyaftertheexpirationofthe30-dayperiodrequiredby §254(a)(11)(C),andshallbefiledwiththeUnitedStatesElectionAssistanceCommissionas requiredby§253(b)(1).
53.OrderthatnofurtherfederalHAVArequirementspaymentsberequested,certifiedfor,or expendedbytheStateuntiltheupdatedStatePlandescribedinparagraph52hasbeencompleted, published,andfiledwiththeElectionAssistanceCommissioninfullcompliancewith§§253,254, 255,and256.
D.RepaymentofFederalHAVAFunds
54.DeterminethatColorado'scertificationsofcompliancefiledwiththeUnitedStatesElection AssistanceCommissionpursuantto§253(a)weremateriallyfalseormisleadingforeachfiscal yearinwhichtheStatecertifiedcompliancewhile(a)operatingunderaStatePlanthatdidnot reflecttheState'sactualelectionadministrationduetoundisclosedmaterialchanges,and(b) failingtocomplywiththeTitleIIIrequirementsthatarethestatutoryconditionsforreceiptof requirementspaymentsunder§251(b)(1).
55.OrderthatColoradorepaytotheUnitedStatesTreasuryallfederalHAVArequirements paymentsreceivedandexpendedfromfiscalyear2010forward,orsuchportionthereofasis determinedtohavebeenreceivedduringperiodsofmaterialnon-compliancewiththeconditions of§253(b).Section251(b)(1)providesthataStatereceivingarequirementspayment"shalluse thepaymentonlytomeettherequirementsoftitleIII."Section253(a)conditionseligibilityfor requirementspaymentsontheState'scertificationthatitisincompliancewiththerequirements of§253(b),includingthefilingofaStatePlanthatcontainseachoftheelementsdescribedin§254 andwasdevelopedinaccordancewith§255.Coloradohasfailedtomeettheseconditionssinceat leasttheenactmentofH.B.13-1303in2013,andtheongoingTitleIIIviolationsdocumentedin thiscomplaintdemonstratethattherequirementspaymentswerenotusedinamannerconsistent withthestatutorypurpose.Complainantsrequestthattheinvestigatingbodymakespecific findingsastothetotalamountoffederalHAVAfundsreceivedandexpendedbyColoradofrom fiscalyear2010tothepresent,andreferthosefindingstotheUnitedStatesElectionAssistance CommissionandtheUnitedStatesAttorneyGeneralforrecovery.
56.Inthealternative,iffullrepaymentisnotordered,Complainantsrequestthatallunobligated andunexpendedfederalHAVAfundscurrentlyheldbytheStateofColoradobefrozenandplaced inescrowpendingcompletionoftheinvestigationandthefilingofanupdated,compliantState Plan.
E.RemedialControls
57.Ordertheimplementationofthefollowingremedialcontrolstopreventfutureviolations:
(a)Hardeningofrole-basedaccesscontrolstothecomputerizedstatewidevoterregistrationlist, withdifferentiatedpermissionlevelsforpre-certificationandpost-certificationperiods;
(b)Disablingofbulkwriteoperationstovote-historyfieldsafterelectioncertificationabsenta tracked,documentedlegalauthorizationreviewedandapprovedbyadesignatedcompliance officerindependentoftheSecretaryofState'soffice;
(c)Implementationofmandatorydual-controlapprovalforanypost-certificationeditstovoter participationhistoryrecords;
(d)Implementationofimmutable,append-onlyloggingforallchangestothecomputerizedlist, includingtheidentityoftheuserorautomatedprocess,timestamp,fieldsmodified,priorvalues, andnewvalues;
(e)Establishmentofamandatorypost-certificationreconciliationproceduretoensurethatthe electronicvoterparticipationrecordsandthepermanentpaperrecordrequiredby§301(a)(2) remaininagreementaftercertification;and
(f)Establishmentofapubliclyaccessiblepost-certificationchangereport,issuednolaterthan30 daysaftereachelectioncertification,disclosingthenumberandcategoryofanypost-certification modificationstovoterrecords,theauthorizinglegalbasisforeachcategory,andtheapproval chainforeachmodification.
F.PublicTransparencyandAudit
58.Orderapubliclyaccessibleauditlogsummary(withprivacy-protectiveredactionsas necessary)showing:whatfieldsinthevoterregistrationsystemcanbechangedpost-certification, underwhatauthority,howchangesarereviewedandapproved,andhowmanychangeshavebeen madeineachcategorysincethemostrecentelectioncertification.
59.Orderafullindependentauditofthecomputerizedstatewidevoterregistrationlistcomparing currentvoterparticipationhistoryrecordsagainsttheearliestavailablepost-certificationsnapshots forthe2020,2022,and2024GeneralElections,andreconcilinganydiscrepanciesagainstpaper records,pollbooks,andballotprocessinglogs.
G.RecordPreservation
60.Orderpreservationofallrelevantrecords,includingvoterhistoryfilesnapshots,voterrollfile snapshots,systemchangelogs,accesslogs,SIEMlogs,ETLjoblogs,vendorcommunications, andinternalexports,fornotlessthan22monthsfollowingeachelection,consistentwiththe federalrecord-retentionrequirementsof52U.S.C.§20701,andforthedurationofanyproceedings arisingfromthiscomplaint.
H.ReferraltoFederalAuthorities
61.Referthefindingsofthisinvestigation,togetherwithallsupportingdocumentation,tothe following:
(a)TheUnitedStatesAttorneyGeneralpursuanttoHAVA§401(52U.S.C.§15511)forsuch declaratoryandinjunctivereliefasmaybenecessarytocarryouttherequirementsofTitleIII;
(b)TheUnitedStatesElectionAssistanceCommissionforreviewofColorado'scompliance certificationsfiledunder§253(a),forauditofHAVAfundsreceivedandexpendedbyColorado, andforanyenforcementorrecoveryactiondeemedappropriate;
(c)TheInspectorGeneraloftheUnitedStatesElectionAssistanceCommission,totheextentsuch officehasjurisdiction,forinvestigationofwhetherColorado'scompliancecertifications constitutedknowingmaterialmisrepresentations;and
(d)TheUnitedStatesCongress,CommitteeonHouseAdministrationandtheSenateCommittee onRulesandAdministration,asthecommitteesofjurisdictionoverfederalelection administration,forsuchoversightactionasmaybewarranted.
I.Publication
62.Publishthefinaldeterminationandresultsinfull,asrequiredbyHAVA§402(a)(2)(G), regardlessofwhetheraviolationisfound.
J.GeneralRelief
63.GrantsuchotherandfurtherreliefasisjustandproperunderHAVA,Coloradolaw,andany otherapplicablefederalorstateauthority,includingbutnotlimitedtoanyreliefnecessaryto restoretheintegrityofthecomputerizedstatewidevoterregistrationlistandtoensurethatfuture federalelectionsinColoradoareconductedincompliancewiththerequirementsofTitleIII.
IX.REQUESTFORHEARINGONTHERECORD
64.PursuanttoHAVA§402(a)(2)(E)andC.R.S.§1-1.5-105,theComplainantsrequestafull hearingontherecordinthismatter.ThegravityandscaleofthedocumentedchangesaffectingnearlyhalfamillionvoterrecordsacrossthreeconsecutiveGeneralElectionsthat
includedfederalraces-warrantsafullevidentiaryhearingatwhichtheComplainantsmay presentevidenceandtestimony,andatwhichtheRespondentmayberequiredtoproduce relevantrecordsandprovidetestimonyexplainingthelawfulauthority,controls,and safeguardsapplicabletothedocumentedmodifications.
X.PRESERVATIONANDPRODUCTIONREQUESTS
A.Preservation
65.Complainantsrequestimmediatepreservationofthefollowingcategoriesofrecords:
(a)Allvoterhistoryfileexportsandvoterrollfilesnapshotsusedinthecomparisons documentedinExhibitA,aswellasanyadditionalsnapshotsinthepossessionofthe SecretaryofState’soffice.
(b)Allstatewidevoterregistrationdatabasechangelogs,includingrow-levelauditlogs showingadditions,modifications,anddeletionstovoterrecordsandparticipation histories.
(c)AllSecurityInformationandEventManagement(SIEM)logsanddatabaseauditlogs relatingtothecomputerizedstatewidevoterregistrationlist.
(d)Alladministrativeconsolelogs,includinglogsofuserlogins,roleassignments,and permissionchanges.
(e)AllExtract-Transform-Load(ETL)joblogs,ifany,relatingtovoterhistorydata processing,migration,orbatchupdates.
(f)Allvendorsupporttickets,changerequests,andservicecommunicationsrelatedto voterhistoryedits,corrections,orbulkupdatestothecomputerizedlist.
B.Production
66.Complainantsrequestsproduction(subjecttolawfulredactionofpersonallyidentifiablevoter information)ofthefollowing:
(a)Standardoperatingprocedures(SOPs)forpost-certificationcorrectionsor modificationstovoterparticipationhistoryrecords.
(b)Role-basedpermissionmatricesshowingwhichuserroleshavewriteaccesstovoter participationhistoryfieldsinthecomputerizedlist,andwhetherthosepermissions differbeforeversusafterelectioncertification.
(c)Anystatutoryorruleauthoritymemoranda,internallegalopinions,orformalguidance relieduponbytheSecretaryofState’sofficeasthelegalbasisforpost-certification modificationstovoterrecords.
(d)Anyinternaldirectives,trainingmaterials,orwrittenguidancerelatingtovote-history backfills,deletions,corrections,ordata-migrationoperations.
(e)Datadictionaryandschemadocumentationexplaininghowvoterparticipationhistory isstored,edited,andauditedwithinthecomputerizedstatewidevoterregistration system.
XI.EXHIBITLIST
ExhibitA:ColoradoVoteTamperingReport,producedbyUnite4Freedom(dated02/2026), documentingpost-certificationchangestovoterparticipationhistoriesforthe2020,2022,and 2024GeneralElections,withcomparisonfileidentifiersanddates.
ExhibitB:HAVAViolationsAnalysisreport(February2026),providingastatutory-to-evidence mappingoftheviolationsallegedherein.
VERIFICATIONSANDOATHS
We,theundersignedComplainants,swearandaffirmfirstbeingdeposed,underpenaltyof perjurypursuanttothelawsoftheStateofColoradoandtheUnitedStatesofAmerica,thatthe factualstatementscontainedinthiscomplaintaretrueandcorrecttothebestofourknowledge, information,andbelief,andthatwehaveagood-faithbeliefthattheviolationsdescribedherein haveoccurred,areoccurring,andarelikelytocontinuetooccur.
SignatureofComplainant2