Not all fraud is identity theft, but all identity theft is fraud. 

Fraud may include the manufacture of counterfeit documents, the use of a false identity or fraudulently obtaining a Colorado document in any other person's name for unlawful purposes.  Identity theft as identified in Colorado Revised Statute [C.R.S.] 18-5-902, defines the unlawful use or possession of personal identifying information, financial identifying information, or the financial device of another.