Administrators with unrestricted access to the Terms of Use feature in System Roles (Manage Features > Manage Features) can publish terms of use agreements.
When you publish a terms of use agreement, the users in its target audience are presented with it the next time they log in. They must agree to the terms of use before they can log in.
To publish a terms of use agreement
Additional Information
About the Terms of Use Manager
Create a Terms of Use Agreement
Clone a Terms of Use Agreement
Define a Terms of Use Agreement's Target Audience