Wisconsin et al v. Fitzgerald et al

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Transcript of Wisconsin et al v. Fitzgerald et al

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ñ ú F X ò õ r � ü õ ó ý ò F � 0 ý 2  ú ý F ÷ ø ' ú û ) ü ý û ú ý G 2  ø ü R ù 7 ú ý ú û 2  ó ò 2  ú ü ý þ � � � } ï �

� } � � � � 0 2  ò 2  U ó F ø h ö ý ) © ÷ ø � ü ý 2  ò þ � } � � � 9 9 � � � ! } �

� ² � 9 ³ } � � � n � � � � � � � � � j � � � � � � n � k � k � � k � � k � � � � k � �

z n � � � � � � j z � � � k k n k � � � � � � | n � � � k n � � � n � � � í � � � � n � � k �

z n � � � î

� � � j � � n j k � 0 2  ò3 2 ¢ U ó F ø h ö ý ) © ÷ ø � ü ý 2  ò � � k � � | n j � k � n | n

k � � j � k � � k k � � � � � k � � ~ � � ¢ � � � k n � � � � k � � � � k � n h ö ý ) ©

 1

These four defendants assert a privilege from service of civil process pursuant to Wis. Const. Art. IV, §15

and therefore have not yet “appeared” in this action. Their interests, however, have been represented by the

Attorney General throughout this proceeding. The impact of the non-appearing defendants’ legislative

privilege is discussed in Part III of this Decision.

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� k � � � � � n | � � � � n k � �   � � � � � n n | k � � � � � � � � � �

� } � � � � k 9 ÿ 9 9

� � � n j k k � � � n � � � � � � k � � � � j � � � � � � � � k � n � � k n k � � � �S � k �

n | k � � � � � � k � � � n � k k � � � � � k � � n � k � k � � n � k � � n | � � � � k � n n | n � �

� � � n j k � � � � } � � � � k 9 � k � � k � k � n k ë

� � k � n 9 9 � k � k � � # � � � � � � n k n � j � k � 9 %

� k � � | � j k � n � A � � � � k � n � k n z � z n j � k � � � � k � z � � n | � �

n � � k � z n � � n � n � � � n � k � k � � k � � � k � n �

� � � � k � k � � � � � � � � n | k � � � � � � k j � � k � � � � � � � k � � � �

� n j k � � z � � � � � � k n � n � k j � � � k � k j k � � n k k n � k � | � � � k � k � �

| j � k � n � n k � � � � � � k � n � n | k � � � � � � k � � z � � � n |

n � � k ï � n � k j � k � � � k � k j k � � � � � n � � � k � � � � � � � � �

k n � n k � � k k � � � � � � k j � � k � � � � � 9 9 k n � ¢ � k n

� � � � k n � � � � � � k � � � n � k k � � � � � j z � � � k k n � � � � �

� k � k j k n � � � � k � n �

 2

At that time, the pertinent notice provision was contained in §66.77(1)(e), Stats.

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13

� � � n j k � h ö ý ) © � � n k � j � � k � � k � � � | n � � n k � � � � k � �

n � � z¢ � � k � n | k � � � � � � k � � � � k � n � � � n j k n z � � � � � n � � � k � � k í k � �

k � � � n n � � � � k � � � k � z¢ � � � � ñ ò ó ô õ ó ö ÷ ø ñ ò ù ú û ü ý þ # n � � � k � � k % k � �

� j � � � � � � � � � � k � � � � k � n | k � � � � � � k j � | n � � � n |& � � k � k � k � �

� n � k � k j k � n î ù ø � k 9 ÿ h ö ý ) © þ k � � � � k � � | n k � � � nR � n n � � k � n k � � k k � �

� � � � k j � � � n k � � k | n � | n � � � k j � k � � � � � k � � ~ �

� � � j � � n j k � � � � � � � � � n � ñ ú F X ò õ r � ü õ ó ý ò F � 0 ý 2  ú ý F ÷ ø G 2  ø

ü R ù 7 ú ý ú û 2  ó ò 2  ú ü ý þ � � � } ï � � � � � k � � � � � � � j � � k � n � � � � � k � � � � � � � �

� � k � � � j � � � k � � � j � k � � � � � � n j k � � n � � � � � � k � � � � k | n

| �S � j � k n � z � � z � � � k � k j k n � � � � k � � � � � n j k � ñ ú F X ò õ r � ü õ ó ý ò F � 0 ý 2  ú ý F

� �S � � k � � � � � k � n � k � | � � � � nR � � k � � z � � � � � � � � k z � � � j � � k � �

~ � � � � k j � | �S � � k n � n � � k � k � � � k � k j k n � n � � j � | n � k � | � � � k � n n |

� nR � � k � � z � � � � � � � � k � � � � � � ² � ³ ² � ³ � � � k � k � k j k � � j � � � k � � k � �

� � � k � k n � � � k � � z � � k n j � � z � z¢ � � � � � k � | n k � � � nR � � k � �

z � � � � � � � � k � � � � nR � � k � � z � � � � � � � � k � k � � � j � � k k � k �

k n � � k � � j j z¢ � � k � � n � ~ � z � � � � k � � n � � z � k � n n � � � n � j � n | k � �

� � � n | } � � � n � � k � k � ì n � � � � n ² } ì ³ � n � � � �

} ì � j � k � � k k � � n j k � � n � j � � � � k � n k n � � � k � � ~ � � � � k j � �

� n ¢ � � � � � k � k � � � k � k j k n � � k � | � � � k � n n � � j � � � n k � � k � � k

� � � ² � ³ ² � ³ � � � � � � � � k � � í j � n | n � � � � î � � j � � � � � k � � k � � n � � � n |

k � � ~ � � � � k j � � � � n j k � � � � k � k � � � � j � k � � k � k � ë

l � � � � � � n k � � � � � � k � � } � � k � k � � � � ² � ³ ² � ³

� � � j � n | � � � � k � � n � � � � z � � � j � � � � k � k j k � � k � � j � k z �

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14

� k � � k � k n � n � � k � � n � k � k j k � n � � � � k � � � � � n � � �

� � � | k � � � k � k j k � � � k n k � � � � � z � � � � � � k � � A � � � � � � � � k � �

j � n | n � � � � � � � � � k � � k k � � � k � k j k � � � � � k k n k � �

� � � � k � � � � k � n k n � k � � � � � k � � k � � k � � k � n � n ¢ � � � � k �

k � � � � � k � n � k � k j k � n � � � k � � ñ ò ó ô õ ó ö ÷ ø ñ ò ù ú û ü ý þ ÿ

² � � � � ³ � ² � � ³ ð 0 2  ú 2¢ 2  þ � � } � � � � k 9 ð ñ ) G ü ý ò F ù ÷ ø

0 2  ò3 2 ¢ þ � } � � � � � � � � � ÿ � ! } � ÿ ² � � ³

� � � } ï � n � o � � � n j k � k n k n � �S � � k � � � � } � � � n � � � k � � k � �

� � � � k � n � n k � k � � � nR � � k � � z � � � � � � � � k � � � � k � � j j z¢ � �

k � � n � ~ �

ñ ú F X ò õ r � ü õ ó ý ò F � 0 ý 2  ú ý F n � � � k � � � n k nR � � j k � n � k � | n n j � � � �

j � k � � k � � � nR � � k � � z � � � � � k � | � � � k � n � k � k j k � � � � n � k � k j k � n �S � z � � � �

k � � � � � k � � ~ � � � | n j � n k ï £ � � � n | k � � } � � � n � � n � k � k j k � n

� � � ~ � � � � k j � � � � � � � � k n � � k � � � � � k � � ~ � k n � k � � | n j k �

� � � � j � � � � k � n k n � � � � � k � � k � � ~ � � � � k j � � � � � n � k � � � n � k � k j k � n

z � � � n � � j � � k � k j k � � � � | � n � k � � � j k � n � k � k n � � � � k � � � � � � k � � � � k � n

n � � � k � � n j k � � ñ ú F X ò õ r � ü õ ó ý ò F � 0 ý 2  ú ý F

� � � k k n � � � � � � � � � n � � � � � � | � � � � k n ñ ú F X ò õ r � ü õ ó ý ò F �

0 ý 2  ú ý F � h ö ý ) © ² � � � � � � � � � � � � � z � � | � � k � � � � 9 �

� � � � k � � � ³ ï � k � � � k � � k k n � � � � � � � � � k � k � � k k � � n � � z¢ � � k �

n � � � n n | � ² ³ � � � n � � n k � � k n � � � � k � � � � k � n l � �¤ � � �

j n k n � � � � � k � � k n n k � n � � k � � � � � k � � ~ � ë § ü ü ù F ò ý ù ÷ ø

 3

Justice Roggensack authored the majority opinion for the Court. Justice Bradley’s concurrence disagreed

with the dissent’s view that § 111.92(1)(a) is a rule of legislative proceeding and thus not amenable to

 judicial review. Justice Bradley wrote, 2009 WI 79, ¶ 75:

I see the balance differently. In a close case, I conclude that the weighty public policies

of notice and transparency in government tip the scale. I would therefore determine that Wis. Stat.

§ 111.92(1)(a) is not a rule of legislative proceeding, and the court may intervene to examine

whether its conditions were met.

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15

ú 7 7 ó 7 ò ý þ � } � � ÿ � � � ! } � � � ² � ³ � 0 2  ò3 2 ¢ U ó F ø h ò D ü F F 2 ¢ 2  

÷ ø 0 2  ú 2¢ 2  þ � � } � � � ÿ � ! } � 9 ² � ³

ï § ü ü ù F ò ý ù ÷ ø ú 7 7 ó 7 ò ý þ k � � � � k � n � n � � �S � � k � �

� n � k � k j k � n �S � k � n | � � � � k � n z � | n � � k z � � � � � l n � k � � k k � � � � � n

� j � � k � � � � � j � n � k � k j k � n � z¢ � � k � � n j k � � k � � k � n j k � � � j � k

� � � k k � � � n � k � n n � � � k � n n | � n � n � � � � k � z � n � � k � n n | k � � �

� � � � í � � n � � � � � � � n j k � � � � � � � � k � � k � � � � � � k j � � � �

� � � � � � k � � n � k � k j k � n � n � � � k � � � � � k � k n | k � � � � n � � � n | î

� } � � � k 9 9 ï k � � � � � k � � ~ � � � n � � � k � � ~ � � � � k j � � � �

� � � � � � � k � � � � ¢ � � � z � k n � k � n � � k � � k � � � � � � � � � n � � k � �

� � k � � k � k k n � � k n � � � � � n j k �¤ � � | | n � n � k � n � § ü ü ù F ò ý ù � � k � � � � � j � � � �

n � n k � � k � � k � � � � � � � k � � k � n � ! n k � � � § ü ü ù F ò ý ù � j n k � � � ¢ � �

� � � � k � � � � k � n | n k � � n � � z¢ � � k � n � � � n n | � ² ³

ï 0 2  ò 2  U ó F ø h ò D ü F F 2  2  ÷ ø 0 2  ú 2  2  þ k � � n j k � n � � � � � � k � �

� � � � k � n � � n j zl � � �S � � k � � � � z � � � j � � n | � n � k � n n | � � � � � k � �

� k � � n � � k � j � ï k � � k � � � � � � � k � � � n j � � n | k � � ~ � � � � k j � � �

� | � � � z¢ � k n k � � � n � k � j � � � n � k k � � n � z k � � � � k | n � � � �

� n k n � k � � � � k � k � � � n j k � k � k � ë

# } % � � n � j � � � n k � k � � � � � � k � � � � �

k � � � z � � � � n | � n � k � k j k � n � � � � k � � � k n k � � � n k � � � k n z �

j � � � � � � k � � � n � � � � � � � k � n � � � � k � � k k � �

| �S � j � k n | nR n � j � � n � � j � j � � � n j k � k n � � ¢ � �

ò ù © ü ) � � � n | � j � � j � �

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16

� � } � � � � k 9 9 ÿ � � � n j k � � k � � k � � � � � � n � � n � � � k n n � � j �

j � � k � � k n n k í � n � | � � � � n � k � k j k � n � n � � � n � � � � � � � � k � �

n � � j � � î ù ø � k 9 B � � n k � � k � k � � � � � k � � ~ �� � � � ¢ � � � k �

| n j � j n k � � } � � n � k k ï £ � � � � n � k � � k í k � � n n � n | � � � �

� n j � � � � � � � � n � � � � � k � � k � � j z¢ � � � | � � � j � � � � � � � � � î

� � k � n � � ² ³ � } � � k � k �

� � � ~ � � � � k j � � � k � � n � k k � � � � � z n j k n � n � � k � k � � �

� � k � � ~ � z � k � � � n � � n � � � l � � � � k � � k � � n � � � � k � � � � � n k n

� � � � k � � � � � � | n k � � n � � � n � k � � k � � k � � � | n � � � � | | � � k

G   Q ¦ w   Q £ ¡

g

¦

X

"

g

Q ¦ w ¦ 1 ¨ ¦R � ¨ ¡

4

£ " ¡ 5 ¦ ¡ I ¦ Q )

" ¦   ¨ Q $ ¡ ¨ ¨ ¡ 5 ¦ ¨ Ù ¨ " ¦ ¡ $ " ¦ Q £ I   G

} � � k � � k � n � � n � j � n � � � � � � � � k � � n � � � � � | � � k

� � � � k n � � � � k � � � � j � � k k � � k k � � � � � � � z � � � n � � n k � � k k � � � � n j

� � � k � � � í � � � � n j k î | nR n � � � � k � n n | k � � � � k � n | n � � � n � � � �

j � } � � n � k k � ÿ � � � � � n j k � | � � � | � � jc � � k k � � k k � � � � �

� k � � � � � � � � � k n n � � � � � j k � n � k � n � � k � � k � � � n j k � n j n � � �

k n � j � k n k � � n | n | � � k j � � � � � � � � � k � � k � � � n � � k � � � | � �

z � � | � � |& � � n � � � � � � � �

 4The parties (and this court) have used the term “immunity” to describe the protection afforded by Art. IV,

§15. The Constitution itself and the cases interpreting it refer instead to “privilege.” See: State v. Beno,

116 Wis. 2d 122, 341 N.W. 2d 668 (1984); State v. Burke, 2002 WI App 291, 258 Wis. 2d 832.

5The District Attorney’s May 23, 2011 brief at pages 1-2 points out that neither the Attorney General nor

the Department of Justice represents any active party, and questions on whose behalf the May 18, 2011

brief was filed. Since the Attorney General has not requested to be made a party, the District Attorney

suggests that the court strike the brief. The court declines to do so. This case raises issues of statewide

significance. The court will treat the Attorney General’s brief as filed amicus curiae.

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17

ï k � � � � k � � � � n � � � k � � n � � � � � | � � k � � � � n � k n

� � � � � k � � � n � � k | n � � � n | � � n � � j � � � � k � n z � � � j � � n | k � � � � � � � k � �

� v � � � � � � � � � � � k k � � k � � � k � n j � k � � � k � k j k n � k � � | n � � � � � � � � n k

� � � � k � � � � � � k � � � � � � � n n � � n k � � � � � � � k � z � � � n � k   �

n k � � n � � k � � � � v � � � | n � � � � � n | n � � � � � n j � n k � j � � � | � � k � �

� � � � | j k � � � k � k � k � � k í k � � � � � n n � � � z¢ � � k � k � � k � � � � k � � � j � k � � z �

� � � î ² � � � � � � � z � � | � � � � ³

B � k � � � � � k � k � � k � � k � � n � � � � � | � � k � � � � n

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� � � � � � � � � � � k � � k � � � ² ³ � � G ò ú ó ö F ò ý ù § ó ö © ü õ ý ù ò ó r þ

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21

� � �   k � � k í k � # � % k � � � � � � � � | � n n | � � k k � k � � � � k � n k n � n k � j � î

ù ø � k n � � � � n j k � n � j � � � � � � } ï � ÿ � n ÿ ë

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k � � � � k � � � k �

� � � n j k � � � � n � � G ò ú ó ö F ò ý ù � ¢ � � � � k � � � � � k � | n � � � k � � � � � k

� � � �

ª � � k � � � í � � j � � � î k n k � � n � � � � � k � � � � | k � � � � � � k n �

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� � � � k � � � j � k � � � | � � k � � � k � � � � n � � � n � k � � � � � � � n j n � �

� � � z � � n � k � � � � n n � | n | j k � � k � � k � n � � z � � | � k � � k � �

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n � � � � � � � k k � n | � � k ! n � n | k � � � k � � � � � � � k n � z � � k � � � � � �

z � k � � k � � j k

� � n � � � n k � k � � � � j � � � k n k � � n � � � � � | � � k �

� k � � � k � � � � n � � � | k � � | n | � � k j � � � � � � � � � k k � � � � � � � � � � � �

 6

The Attorney General’s brief mentions Dairyland but does not address the test for determining whether a

party is indispensable established in that case. (May 18, 2011 brief at pages 25-30).

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n n | k � � � � k � n � z n j � k j � k � � � ² � ³ � ² ³ � | n � � � k n � � � n � ë

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� � �

ª � �S � � � � � G ò ú ó ö F ò ý ù þ k � � k � k � � z � � � � � � � j � k � � � � � |

k � � � � � k � n � � � � � � � � z � � � j � � n | k � � � � � � k n � � � � � k � n n | � v � � � � � � � � �

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� � k � � � � n � � z¢ � � k � � � n | � } � � � n � � � � k � A � � í ì j � k � � n n

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n | n n | � � � � k � k � � � � � k � k � z j � n | n n |

� � � ª � � � n | ª � � k � � � j � � k � k � � � ¬ � � � � � n � � k | n k � k � � � � � � �

� � k � z¢ � � � � k � � k k � � � � � � � � � � n � k n � k k � � n | n | � � � � � � k � � �

� n j � k � � � n � k � n n | � � � � } � � k � k � � � k � n � � j � � �

k � � k í # � % � � � � k � n | � n � � k � z n � � � � z � � � � � z � j z¢ � � n k � � �

� � n � � � � � � � � � � z � � � � n � � � � � � n î � � k � n � � ² ³

� | � � � í n � � � � � � n î � � í � � � k � � � � � � � � � � � � � � � � � n � z �

� � � � � � � z � k n � z � � n | k � � j z¢ � � � n � k n � � � k � A � � � k � k � � � î � � �

� � � � � � n � k � k � k � � k k � � � � � � � � � � � n � k k � � � � k � � � � � n

� � � k � � k n � n j � n k � � � � � n � � k � n k � � k � � n k n � � � � � � � � � z � k n

� � k � A � � � � ë ª � � � n | ª � � k � � � ÿ � � 9 � � � � � � � � � � � ÿ � ÿ 9

 7

In Nommensen v. American Continental Ins., 2001 WI 112, ¶ 16, 246 Wis. 2d 132, the Court described

the ordinary civil case burden of proof as “’the greater weight of the credible evidence.’ This expression

of the required quantum of evidence ‘is an exact synonym for ‘fair preponderance’ and much more

understandable by the average juror.” (citations omitted).

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n j � j n k � | � � k � � k � � n |& � � k � � � � � k � � j � � � � � | | � � k � k k � �

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j � � � | | � � k j ky � � � � � � � � n k � � n � k � � � k � � k � | � � k � � k n � � � � � k � �

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n � � k � � k � � n | j z¢ � � n k � � � ë

ï n k � n k � � k � k � � k � � k � � k � n n | k � � � � � � k j � k n � � j �

k � � j z¢ � � | n � k � n � � � � � � z j k � k � � � k n k � � � � k j � n k � � �

n | k � � � � k � � ï k � � � � k � n k � j � k k � � k � n � z j k � k � � � � � � k � �

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� � � � k � � � k � � � | | � � k n | j � � � � k � � k � k � � � � k � � � �

n � � k � � � � j � � k � �

² � � � � � � � � � � � � � ³

| � n j � � � �¤ � � � � n j � k k � í � j � k n � j � � � � � � � � k î k n | � � � � n �

� � k � n n j n � k � � n n k n � � � � n n | k � � � � � � � k � n | k � � �

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n � n |& � � k � � � � � k � � jc � � � k � k � � � � � � � k � | n k � �

� j � � � k n | k � � � � � � j � k � j z¢ � � n k � � � j � �

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� k � � � k � � � k � � � n � � k � � � � � � k � n � ² � ³ � j k � n � A � � k � � � n j k

k n � k � j � k � z¢ � �¤ � � | í � � � � z � � n � � k � j � k � � � � � j � k � � � � î

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� | n � � � k n | k � � � � j z � � � k � n j k � � � � � � j z¢ � � � k � � � k � � � � k � � � � �

z � � � j � k � � � k � � �S � � k � n | k � � � � k � n k � � � î � � � � � j � � � k � � � n j k k n

� � � � � í z � � � � k � � k î 0 2  ò 2  U ó F ø v ó ó ü ÷ ø f ú F F ò t ü ñ ) D ò ó F ò ý ù þ � � �

} ï � � � n � ÿ � � } � � �

! n } � � � n � � � � � � � � � k � � � � � � � k � � | � � k n � � � n j k � � n j � n � � �

k n � k � � � � � k � n � k � k j k � � í k � � j z¢ � � � k � � � k î � k � � � � n k � k � � �

} � � � n � � j � � n j k � � n � � � � � � � � n � | � � k n � | n � k � � �

� � k � � � j z¢ � � � � k � n k � � � � � � j | | � � � � k � � � � � | � � � � k n k � � � j z � � � k � k k � n |

k � � � � k � 0 2  ò 2  U ó F ø q õ û X F F ÷ ø 4 ü 7 ò © R ó ò 0 ) © ü ü F G ú û 2  ø þ � � � } ï � � � �

} � � � � ï q õ û X F F þ k � � n j k � n � � � � k � � � j | | � � � � � � n | k � � j z¢ � � n k � � �

| n � n � � B n � n | ì j � � k � n � � k � � � n � � � � � � k � � n k � � k | n � k � � k � �

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� n � � � � n � � k � n � � � � n j k � n k � � í � � � n � z � � � � î � k � � k n

� k � � � k � � � j | | � � � � � � n | n k � � � � n � � � k � � � � � � � � � � n j k � k � k � k � �

� ¢ � � � z � | � � k n � � � | n n � � � � � } ï � � n � ë

� � � � � � n � z � � � � � k � � � j � � � k � � � � k n � � � n j k

k � � � � � j � k � � � � n | k � � � � � � � � k � � � � � k � � n k � � � � �

� j | | � � � � k � � � � � � j � � � � � A � � j � � | � � k n � � � k � � z j � n |

n � � n � � k �S � � n k � � � � � � k � � k � � � j z � � � k � � n | � k � � j �

j z¢ � � � k � � � k � � � � k � � � k � n � � n n j k � � � � k � n k � � k k � �

j z¢ � � n j z � j c � � � � k n � k � � � � k �

� n z � � j � � k � � � � | � � k n � � � n k � � k � z¢ � � � � k n j � � k � � � n j k � � � � � � � n |

� � � � k � n n k � � j � � k � n n | n � � z¢ � � k � n | n � � k � � � k � n ! n � k � � � � � �

k � � k � � � | � � k n � k � � n j k � � k | n k � � q õ û X F F � � z � � � n k � � � � �

j � � � n � � � k � � � � � � � ë í k � � n � � k j � k z � � � � n j k � z � k n

k � � � n � � n j � � k � n � � k | � � � � � � n � ¢ � � k � � � k � � � �

l � � � � � � � � k n � | n � k � n � z n j k k � � n � � � n | n � � k j � � j k �

� j � k � n | � j z k � | j � � j k � � k � � n n k � � j z¢ � � k j � k � � n | � � � � î

� � � } ï � � n � 9

� � k � � | � � k q õ û X F F | � � k n � j � � � k � � � n j k k n � n � � � k � � z j �

n | n � � � � j � k �   � k � � � � � � � � k � � �   n k � � � � n k n k � � � � � � � � � �

n � k n � k k � � n | n | � � � � � � k � | k � � � � � � � n | n � � k �

z n � � � k � n j � n j k } � � � n � � � k � � ~ � � � � k j � � � n z � z � z � � k � j � � k n

n � � k � � � n k � � � z � � � j � � � k n � � � n � � � n j k � � � k k � } � k � � � � � k � � k � | � �

� k k � � � � � � � � � � � � � � � � � � � � � k n k � � � � � n � � z¢ � � k � � � k n n � �

� n � k j z¢ � � n k � � � � j � k � � � � � k � � ~ � � � � z j � n | n � �

k � � � n k � � � � � � � �

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� k � � j � j z¢ � � � k � � � k � � � � | � � k n � � � n � � � j � � � n z � � � j � � � k � �

j � � j k � k � � k k � � � j z � � � k n | k � � � � � n � k k � � � � k � � � n | � � k

� k � k � � � � k � � � k

� � � k � � | � � k n � � � � � � k � � k � � � � k � � n � n n j k � � � � k � n

k � � k k � � j z¢ � � n j z � j c � � � � k n � k � � � � k � � � � � � � � � � k � � � �

k � � k k � � � n j z � n � � k � n n k � � B j � k k � � � BF � z � � � j � � k � � � � � n k

k � � � j � � j n j k � � | k � k � � � � � � k � n � � � k k � k k n �¤ � � � k � k � �

n | � � � � n k � n � � � k � j � � k � k � � j n j � j � � � k � � � n k � n � k � �

k � � j z¢ � � n j z �9 � � � � k n � k � � � � k � � � � jc � � � � � � � � k � n k � n

k � � � � | k � � � � � k � n � � n k í n j k � � î � � k � n j � � � � | � � k � n

ï | k � � � n j k � � k n � � k � � q õ û X F F k � � k k n k � � j � � k � n n | n � � z¢ � � k � � � k

n j � � k n k � � � � � � � � z � � n � j � � n k � � k k � � � � k � n n | k � � n � k n � k k � �

n | n | � � � � j � k z � n � � ì � � | k � � � n j k � � � � � k � � q õ û X F F k � � k �

� n � � � z � � � � k � � j z¢ � � � k � � � k � � � � � n � � � � k � k � � � k � � � � k | n k �

� � ² ³ � � � k n k � � � � � � � j k ë k � � k k � � j z¢ � � � k � � � k � � n ¢ � � � � � k �

k � � � � � k � � ~ � n j k � � � � � � j z¢ � � � k � � � k k � � � � � z � � � j � k � � �

k � � �S � � k � n | k � � � � k � n k � � �

� � � � � � j � � � z � � j z¢ � � � k � � � k � k � � | � �S � k � n | ~ � � � � k � � � � k � n

k � � k n j � � � � | � n n | � j � k � � � k � � �S � � k � n | k � � n � k k � � � � � k � n

� � � j z¢ � � � � n k � � � z � � � � � k � � � � � � � k � n � 9 � z n ð k � � k � � � � k � � �

¬ � � � � � n � � k � � � � n � � � ª � � � n | ª � � k � n � j � � n � n | ~ � �

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28

j � k � � z � � � � � j � � k � � � | � � � � n | k � � |& � � n | k � � � n � j � z � � |

� � � j � k � � � k � � k n z � | � � � � k � n � k k � � � � � j � k � n j k � �

� � k � n � ² ³ � j � � � k � � k k � � j z¢ � � � k � � � k � � j � k � � � k � � �S � � k �

n | k � � � � � � k � � � � k � n j � k z � z � � � � � � � � k k � � j z¢ � � � k � � � k �

� | n � � � k n | k � � � � � k � � ~ � � � j � � � � � k � k � � j zU � � � k � � � k �

| � �S � k � n | � � � � k � � � � k � n � � k n � n � � � � k � n � � n � k � � � n � j � � n k � � k k � �

j z¢ � � � k � � � k � � � � � k � � ~ � � | n � � � k n j k � � � k � � j z¢ � � � k � � � k

� � j � k � � � k � � � � � � k � � � � k � n

ª � � k � k � � � � � � � � j n k � k � � | � � n | � n � k � n � � � � � �

� n � � � � � � � � � n k � � � � � � � � � � n � n k � � � � � � � � � z � � | �

� j k � � n � � n j ! n k � � k � � k n � n j n k � � � � j � k � | � � z � í n n � � j � � � î

� ² ³ � � � n � � � � � � � � � k n � � � j � � k � � z � | j � k � k � z � k � �

� k � � � k � � � � k � n � � � � z j k k � � k n � � n k � j � k � | � � � k k � � n � � n ¢ � � � �

� k � k � � � � � k � � ~ � � � � k k � k k n n � k � � B j � k k � � � BF � k n | � �

� � k � n n � n � � � | k � � � � � � � n j z k � � k n k � � n � k k � � � � � � � � � n | � k �

� n � k � n � n � � � n � � � k � � � � n k k � � � � k n | k � � n � k k � � � � � �

n � � � � � � ì � � z � k � �

� � n � k � � ~ � � � � k j � � � k � � n n k j � k � k n n k � � n � � k k � �

� n � k � n � k � j � �¤ � � � k � k � � � � � � � � k � � � ï k � n j � � � n � � k � � �

n k � � � n | � � n � k k � � � � k � � � n � � k � � � � k � � � n � �

j z¢ � � n � � k � n ï k � � � n k � � k n � � n ì � � | k � � � � � � k n � z �¤ � � � k � � k k � � �

 8

Exhibit 10 is appended to this Decision, along with the relevant statutes and a chronology of this case, in

the Appendix.

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29

� n k � n � k � k � � � � � k � � ~ � � � n � � � � � � k � n j n k

� j � � � � � � � � n n | � n � k � n � n j � � � � � k � k � � � � � � �

� � � k j � n | k � � � � n � � k n � n k � j � k � � � � � j � k

� � � � k � � � � k � � n � k � z � � � � k � � ~ � � n � k � n � � � j zc � � � n k

� � k � � � k � � � n � � � � k � z � n k n � } � � � n � � � � k � A � � � n k � j � k k � n � � � n

� n j n k � � � k � k n k � � � � � n � � � � � � j � k � � � k n � � � � � j � � �

� � � � n � j � n � � n � q õ û X F F þ í n � � � � z � n | k � � j z¢ � � � n � � � �

� k � � � k � k � � � j z � � � k � k k � n | k � � � � k � z j k � n � � � � � � � � � � k � � k

� k � � � k k n n k � � � � � � � � � � � n � k � n k � � � î � � � � � � � � n �

ª � �S � � � � � � � n � k � � � | � � � k � � k � � � n j k j � k � n � � � k � �

n k � k � � � � � k n j z¢ � � k j � k � � n | � � � � � n � � k � | k � � ~ � � � � k j �

� � n k � � k n k � � � � � j � � n | k � � � � � � k � � k � k � � � � � � k � | n n k � �

n � � k � z n � � � j | n n | n � � k � � � n � � k � A � � k j � k �

� n | � � � � � k � � n � � � � z � � � � � n j � � � k � n | | � � � � � � � � � � � � k � � � � n |

n � � k � �

ª n � n | k � � � � � � � n � � � j � k � � � j k � n � k � � � k � � k � � � � � j � k � n j k

z � � ² ³ � � k � � � � � � � � � k n n � k � � � � � � k � � � � k � n n � � � � � � �

� � � �

 9

The Attorney General’s May 18, 2011 brief at pages 28-29 flatly rejects this suggestion, stating: “This is

akin to telling a battery victim that they can just walk down the other side of the street and they won’t get

mugged again.”10

2007 WI 71, ¶ 75 (J. Roggensack, concurring).11

“The government of the United States has been emphatically termed a government of laws, and not of 

men. It will certainly cease to deserve this high appellation, if the laws furnish no remedy for the violation

of a verified legal right.”  Marbury v. Madison, 5 U.S. at 163.

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¨ Q $% ¨

~ � � � k � � n � � � � � n n j j � � n j k � k � k � ë í � � � n � �

n � � � k � � � � k � � k � � � � j � � � � ~ � � � � � � | � � k � | n � n � k � n � | j

k n n | n � � � � � � n � k n � � � k � � � n | � � k k � � � n � � k � � j k n � � �

� � k n | k � � � n � k n n � k n k � � � n � � z j � � � � � � � n � n | k � � � n � � � � � �

n | � n � � � � î 0 ) © ú F F ÷ ø ' ú û ) ü ý û ú ý � ò ú ù û 0 ) © ü ü F G ú û 2  ø þ � � � � } ï 9 � n � � �

} � � � ÿ � � ² j n k � � � � � � � � � � � } � � � n � � k � k � n j � � � k n � � ³

� � � � � � � � � � k � � � � � n | � j � � n k � � k � z � k � � � � � k � � ~ � ë

k � � � � �� � � n � � k � k � � � � k n | � � k � A � � k n � k � � � � k � � k � � �

n � � k � � � � � � k | n k � � j � n | � ï k � � n k k � � � � n j k � z j � � � � � k n

� k � � � � � k � � � � � � } � � � n � � � k � � � � n n j z¢ � � nR � � � n z � j z¢ � �

nR � � � ð k � � k � � k � � z j � � � � � n | k � � ~ � � � � k j � ï k � � k � � � � n j k � � � n � � z¢ � � k � �

� n � � � k n � � k � � j � n | � k n k � � | � � k � z � | n � � k

¬ � k � k � � � � 9 k � � � n | � � � � � � � � � �

B � l ì k �

� � � j � � j �

� � j � k n j k B � � � �

� ë ¬ ï � � � A � �

� � � ~ � A �

k k � k n � � �

k k � k n z � k � z n � �

k k � j � � � | n

 

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r ß G ß É

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n � � n | | � � � � � � � � � k � � n k � � � � � � n � k � � k � � � � j z � � � k � � z � � n � � � k n

n � � � � n � � � � | n | � � k � k � n j k � � z j � � � k n k � � � k � � � � ÿ n n � k � �

� � � | n � � � � � j � � � n � k � n ! n � z � n | � n � � k � z n � � �� � � z � j �

k � � � � j z � � � k � n � � � n j k n | � � � n � � � k k � � � � � k � � � k � � � � � n � k � n

n | k � � � � j z � � � k � � | � � n � � � � � � � n n k � � � | � n n | � n k � n k n � � k k � �

� n � k � n | n n � � j � � n � | � z � | n � k � � � n � k � n n � � j � � � � � n � � n k � � n �

� � � k n k � n � � � � � n � � � k � k � k � � k � n � � � � � j � k � � � � � � � � � � j � � k � �

� n � k � n

r ß G ß ¦ a e q B

Æ

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� � � � � j z � � � k � � � � z � � | n � � � k � � � �

� n z � � � | n | k � � � k � k � z � k � � � k k n � � � � � n � j n k � � � � | � �

� n � � k n | � � � � n � z � k � � � � k � � k � k k n � � n | � � � n j k � � � � � �

� n � k � n � � n � � j ï � � k � n � z n j � k z � k � � � k k n � � � � � � k � � � n j k � � �

� � � � | n | � � k j � � � n � � k n � k � � � k � � � � n � z � � n � k � k n k � � � k � k � � �

� � � k � n � z n j � k z � k � � � � k � � k � k k n � � � k � � � n j k � � � � � � � | n | � � k j �

� � n � � k n � k � � � k � � � � n � z � � n � k � k n k � � � n j k �

é 6 ê

ï � � k � n � � j � � k � � k n k � � � � � n � � � � � 9 �

k � � � k k n � � � � � n k � � � � k � � k � k k n � � � � � n � � � � � � k � n � � � � � k � �

n � � n � j � k � n � k � � � � k � n z n j � k j � � � 9 � k n n z k � � � j � � n k � �

� � n � j � k � z � �¤ � � | � � � j � z j k n k� � � k � k n � � j � � � � j � k � n n

� � � � k n � � j � k � � � � � z � � n � � k � j � k � � � � � j � k � � � �

é á ê

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� n � k � n n | k � � � � j z � � � k � � � n � � z � � j n � � k � n z n j � k z � k � � � k k n � �

� � � n k � � � � k � � k � k k n � � n | k � � � n j k � � � � � k � � � n � k � n n � � j �

l n � � � � � � j � k � � � � � j � � � � k � n n � � � � n k z � � k � � j � � �

k � � � n j k | � � � j � k � � | � � k � n | k � � � k � � j � � � � � � k � � k k � � j z¢ � � � k � � � k �

k � � � | n � � � k n | k � � � � j z � � � k � n j k � � � � � � j z¢ � � � k � � � k � � � � k � � �

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•  � � � � 9 � � � � � ë j n � � n � � k � n k � n | n � � n � �

k � � k � � � � |& � � � 0 2  ò 2  ü ' ú û ) ü ý û ú ý U ó F ø û 7 ò F � ø ò ý ý ÷ ø �

D ú 2  t ó ò F ù þ � k �S � ¬ � � n j k � � � j � k n j k � � � � � £ � �

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j � � n j k

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k � � � k � k � n | n � j � � � n � � k

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