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z n � � � � � � j z � � � k k n k � � � � � � | n � � � k n � � � n � � � í � � � � n � � k �
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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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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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� � � 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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� 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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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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� � } � � � � 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
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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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ï k � � � � k � � � � n � � � k � � n � � � � � | � � k � � � � n � k n
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� � � � k � � � � � � k � � � � � � � n n � � n k � � � � � � � k � z � � � n � k �
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� � � î ² � � � � � � � z � � | � � � � ³
B � k � � � � � k � k � � k � � k � � n � � � � � | � � k � � � � n
� k � j � � � � � � � � � � � j � k � | � � � k � n | n n � k n � | � � � j � k � � k � � � k
n k � � n | n | � � k j � � � � � ¬ � � � k � n k � � k � k � n � k � � k k � � � � � � z � � � � �
k � � � � � � � n j k k n � � � k � | � � � � � k � � � � � n � � � � � k n z � � � � � � �
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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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� � �
ª � �S � � � � � G ò ú ó ö F ò ý ù þ k � � k � k � � z � � � � � � � j � k � � � � � |
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n | n n | � � � � k � k � � � � � k � k � z j � n | n n |
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� | � � � 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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� j � � � k n | k � � � � � � j � k � j z¢ � � n k � � � j � �
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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 � � � �
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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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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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� 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 $% ¨
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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 � � �
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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 � � �
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8/6/2019 Wisconsin et al v. Fitzgerald et al
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