In the

United States Court of Appeals

For the Seventh Circuit ____________________

No. 14-2262

UNITED STATES OF AMERICA,

Plaintiff-Appellee,

v.

ROBERT LEWHIM LEO, JR.,

Defendant-Appellant.

____________________

Appeal from the United States District Court for the

Eastern District of Wisconsin.

No. 13-CR-123 — Charles N. Clevert, Jr., Judge.

____________________

ARGUED DECEMBER 17, 2014 — DECIDED JULY 2, 2015

____________________

Before WILLIAMS, SYKES, and HAMILTON, Circuit Judges.

WILLIAMS, Circuit Judge. After a 911 caller reported that 

Robert Leo had attempted to commit a burglary and was in 

possession of a gun, police officers stopped Leo, cuffed his 

hands behind his back, emptied his backpack, and found a 

gun. The officers soon learned that the 911 caller had been mistaken about the attempted burglary, but Leo was charged with 

possession of a firearm by a felon. See 18 U.S.C. § 922(g)(1). He

moved to suppress the gun because the police officers who had 
2 No. 14-2262

detained him were conducting an investigatory stop under 

Terry v. Ohio, 392 U.S. 1 (1968), and were not authorized by that 

decision to rifle his backpack. The district court rejected this 

contention, explaining that searching Leo’s backpack without a 

warrant was necessary for the protection of the officers and the 

public. Leo pleaded guilty and was sentenced to 37 months’ 

imprisonment, but reserved the right to appeal the denial of his 

motion to suppress. Because we conclude that there was no 

probable cause or basis in Terry for the warrantless search, we 

vacate Leo’s conviction and remand for further proceedings.

I. BACKGROUND

One morning in May 2013, Robert Ortiz, a police officer for 

the City of Racine, Wisconsin, was driving an unmarked car 

when he spotted two young men in black hoodies standing on 

the sidewalk. He recognized one of them as Enrique Aranda, a 

cousin of his wife with prior convictions for drug possession, 

burglaries, and disorderly conduct. Ortiz did not know Leo, 

the defendant, who was with Aranda. As Ortiz drove past, he 

saw Aranda and Leo running into the yard of a nearby duplex. 

Ortiz quickly lost sight of Leo, but he caught a glimpse of 

Aranda standing by an open screen door on the side of the 

building.

As Officer Ortiz reached the end of the block and turned 

around, the police dispatcher announced that a 911 caller was 

reporting a possible burglary in progress in the lower unit of 

the duplex where Ortiz had last seen Aranda. The dispatcher 

radioed that the caller lived in the upper unit of the duplex and 

had described the suspected burglars as two Hispanic men 

wearing black hoodies, one of them with a gun, possibly a revolver. The caller also had reported that he just saw an un-
No. 14-2262 3

marked police car pass by. Ortiz told the dispatcher what he 

had seen and where he was, and other officers radioed that 

they were on their way. Because he was outnumbered, Ortiz 

moved where he could watch the duplex and waited for backup.

As Ortiz waited, Leo reappeared and began walking with 

Aranda away from the duplex toward the Head Start preschool 

next door. Ortiz observed that Aranda still was wearing a black 

hoodie but that Leo now was wearing a red jacket or sweatshirt, and had a backpack. Around this time, the dispatcher reported that the 911 caller had given an update saying that one 

of the suspects had changed into a red jacket or sweatshirt, and 

that the gun was in a backpack. 

When Officer Ortiz saw Leo and Aranda reach the Head 

Start parking lot and continue toward the entrance, he ran up 

to them, announced that he was a police officer, and ordered 

them to stop. The two young men glanced back but kept walking. Ortiz drew his gun, held it at his side, and again commanded the pair—this time in a louder voice—to stop. Leo and 

Aranda then paused 15 to 20 feet from Ortiz, who told Aranda 

to come to him. Aranda complied, so Ortiz put away his gun 

and handcuffed him. Meanwhile, Officer Michael Seeger had 

arrived in time to see Ortiz order Leo and Aranda to stop. 

When they did not, Seeger ran after Leo, who was nearing the 

preschool’s front entrance. Seeger cuffed Leo’s hands behind 

his back.

By this time, another officer had gone to the duplex and interviewed the upstairs resident who called 911. The caller had 

seen the officers stop Leo and Aranda, and confirmed that the 

two men were the ones who had tried breaking into the down-
4 No. 14-2262

stairs unit. The dispatcher relayed this information to Officers 

Ortiz and Seeger.

The officers separated Leo and Aranda by 20 to 30 feet. 

Ortiz frisked Aranda but found nothing. Aranda explained that 

he had just stopped at a friend’s house and was on his way to 

get $5 from his mother, who worked at the preschool. As Leo 

conversed with Aranda, Seeger patted down Leo. The officer 

did not find a gun. Without asking any questions, he then immediately opened and emptied Leo’s backpack, which he had 

taken from Leo and placed on the ground. Inside were a black 

hoodie, a digital scale with marijuana residue, plastic baggies, 

three bullets in a box, and a loaded revolver wrapped in cloth.

After finding the gun, the officers learned that the 911 caller 

had been mistaken about the attempted burglary. The residents of the duplex’s lower unit had been interviewed and said 

they knew Leo and Aranda, and that the men had not tried to 

break in. By this time, however, the officers had learned that 

Leo is a felon (at the time of the search, he was on probation for 

attempted burglary and possession of marijuana). He was arrested and charged with violating § 922(g)(1). 

A magistrate judge conducted an evidentiary hearing on 

Leo’s motion to suppress. The government’s attorney maintained that the search of the backpack was lawful because the 

officers had “reasonable suspicion” that justified stopping Leo 

and also searching his backpack. Officer Ortiz testified that he 

had “made contact” with Leo and Aranda because he was concerned about the safety of teachers, parents, and children at the 

preschool. The officer insisted, however, that the two suspects 

were not under arrest when he handcuffed Aranda. Rather, 

Ortiz explained, he had restrained Aranda for safety reasons 

because, in his opinion, potential burglars and armed suspects 
No. 14-2262 5

always present “a possibility of violent action.” And, he added, 

unholstered guns also present a danger of accidental discharge. 

Ortiz conceded knowing that Aranda’s mother worked at the 

preschool, as did Ortiz’s wife, a niece of Aranda’s mother. 

However, as Ortiz soon learned from the dispatcher, Aranda 

was violating his probation by being away from his residence. 

At that point, the officer continued, he had arrested Aranda for 

this violation and found that he was carrying $40. That discovery, Ortiz said, made him suspect that Aranda had lied about 

going to the preschool to get money from his mother. This suspicion about Aranda’s story, though, arose only after Leo’s 

backpack already had been searched. 

Officer Seeger testified that he detained and handcuffed 

Leo to stop him “from reaching or grabbing the firearm.” He 

said he was concerned about the safety of the officers and occupants of the preschool. Leo might have reached for his gun, 

Seeger explained, or the gun could have discharged accidentally. Like Officer Ortiz, Seeger acknowledged that he did not arrest Leo before finding his gun. Leo had only been “detained,” 

Seeger insisted, when he was handcuffed. The officer testified 

that Leo had said several times, “I consent to a search.” But 

even if Leo had not consented, Seeger added, he would have 

searched the backpack because Leo “matched exactly” the caller’s description of the burglary suspect. Seeger acknowledged 

knowing that Ortiz’s wife worked at the preschool. He did not 

say that he knew Leo to be a felon before rummaging through 

his backpack. 

Aranda testified that he and Leo were walking to the preschool to get gas money from his mother when members of the 

Latin Kings pulled up in a car and threatened them. He said 

that he and Leo ran to the duplex next to the preschool, 
6 No. 14-2262

knocked on the door, and hid behind the house. Aranda stated 

that, once the coast was clear, they continued walking to the 

preschool. He insisted that he did not know Leo had a gun and 

that he heard Leo tell Seeger that he did not consent to a search.

After the evidentiary hearing, the government submitted a 

brief arguing that the search of Leo’s backpack was lawful because the officers had a “reasonable suspicion that he was 

armed and dangerous.” The search of the backpack was reasonable, the government contended, because Leo—who, according to the 911 caller, had tried to commit a burglary and 

was armed—was about to enter a preschool and was initially 

unresponsive to the officers’ commands. So, the government 

argued, the search of the backpack was necessary to protect not 

only the officers but also teachers, children, and parents from 

either an “active shooter situation” or an “accidental discharge 

of the firearm.” In the alternative the government asserted that 

Leo had consented to the search of his backpack. The government did not argue, however, that the officers had probable 

cause to arrest the men and could search the backpack incident 

to arrest. 

Leo countered that no urgency justified the warrantless 

search. He was handcuffed, Leo reminded the court, and the 

backpack was on the ground out of his reach. Leo maintained

that he and the gun no longer posed a threat, leaving the officers without a reason for not getting a search warrant. Anyway, he insisted, the police could not reasonably have thought 

he was about to commit a shooting at the preschool because he 

and Aranda were suspected only of burglary and Ortiz knew 

that Aranda’s mother worked at the preschool. Leo also insisted that he had not consented to the search of his backpack.
No. 14-2262 7

The magistrate judge recommended denying Leo’s motion 

to suppress. See 28 U.S.C. § 636(b)(1)(B); FED. R. CRIM. P.

59(b)(1). The magistrate judge accepted Aranda’s testimony 

that Leo had not consented to the search. Officer Seeger’s contrary testimony was not credible, the magistrate judge reasoned, because for Leo to “spontaneously and repeatedly consent to a search” would have been odd. Nonetheless, the 

magistrate judge reasoned that the officers had been justified in 

believing that Leo’s gun presented a safety issue even after he 

was handcuffed and so the gun should not be suppressed. The 

magistrate judge relied principally on Michigan v. Long, 

463 U.S. 1032 (1983), which upheld the protective sweep of a 

car after a traffic stop, and Cady v. Sheahan, 467 F.3d 1057 

(7th Cir. 2006), a civil case under 42 U.S.C. § 1983 involving a 

warrantless search of the plaintiff’s briefcase during an investigatory detention. 

Neither party objected to the magistrate judge’s proposed 

findings of fact, but Leo did oppose the court’s legal conclusions. He conceded the existence of reasonable suspicion to believe that he had tried to commit a burglary and that he was 

carrying a gun in his backpack. But he distinguished Long and 

Cady because, unlike his situation, the suspects in those cases 

were not handcuffed at the time of the search and could have 

gained control of a weapon. He also maintained that the search 

of his backpack could not be justified as a search incident to 

arrest because, he said, he was not arrested until after the 

search had occurred. Leo contended that the police had plenty 

of time to phone a judge and obtain a search warrant and thus 

the search was not justified by exigent circumstances.

The district judge directed the parties to brief whether Leo’s 

presence in a preschool parking lot affected the lawfulness of 
8 No. 14-2262

the search. The government said yes, contending that possessing a gun on “school” grounds is a felony under both state 

and federal law, even for someone with a concealed-carry 

permit. (The government cited only 18 U.S.C. § 922(q)(2)(A) 

and Wisconsin Statute § 948.605 in support of this contention. 

But the Wisconsin statute expressly allows a person with a 

concealed-carry permit to possess a gun on school grounds. 

See WIS. STAT. §§ 948.605(2)(b)1r, 175.60(1)(d), 175.60(1)(g). The 

federal statute similarly states that it does not apply “if the 

individual possessing the firearm is licensed to do so by the 

State in which the school zone is located.” 18 U.S.C. 

§ 922(q)(2)(B)(ii).) And anyway, the government added, Leo 

could not have had a Wisconsin concealed-carry permit because he was under 21 and a convicted felon. See WIS.

STAT. §§ 175.60(3)(a), (c), 941.29(1)(a). 

However, the government could not point to evidence that 

at the time of the search Officers Ortiz or Seeger knew Leo’s 

age or that he was a felon. And without that information, Leo 

countered, they could not have assumed he was committing a 

gun crime. Moreover, he explained, a preschool is not a “school” 

under state or federal law. Wisconsin defines a “school” as “an 

educational program for one or more grades between grades 1 

and 12 and which is commonly known as an elementary 

school, middle school, junior high school, senior high school, 

or high school.” Id. § 948.61(1)(b). The Head Start facility, in 

contrast, serves only children who are 5 years old or younger. 

And the federal statute making it a crime to possess a gun in a 

“school” zone adopts each state’s definition of “school.” 

See 18 U.S.C. §§ 921(a)(26), 922(q).

The district judge adopted the unopposed finding that Leo 

had not consented to the search of his backpack but also agreed 
No. 14-2262 9

with the magistrate judge that the search had been authorized 

as part of an investigatory detention under Terry. Relying on 

Long and Cady, the district judge reasoned that the search had 

ensured “the safety of the officers and the children and adults 

at the Head Start facility.” The dispatcher had reported that 

Leo possessed a gun during an attempted burglary, the judge 

explained, so Officers Ortiz and Seeger had reason to think him 

dangerous. And Leo’s handcuffs did not eliminate the danger, 

the judge continued, because he was not under arrest and 

would regain control of the backpack and gun once the officers 

released him. 

The judge emphasized that the government had never contended that the officers acquired probable cause to arrest Leo 

or search his backpack before they found his gun. And so it follows, the district judge thought, the relevant issue was not “the 

scope of a post-arrest search while an arrestee is fully secured” 

but instead “the scope of a protective search or exigent circumstances search for officers’ and others’ safety during a Terry 

stop.” This means, the judge added, that deciding whether the 

Head Start preschool is a “school” is unnecessary because the 

search was lawful no matter the answer.

II. ANALYSIS

Before we address Leo’s contentions on appeal, we emphasize that our task has been narrowed by the government’s 

choice to bypass all but one limited defense of the backpack 

search. 

A. No Probable Cause for Warrantless Search

Warrantless searches are per se unreasonable under the 

Fourth Amendment unless one of few recognized exceptions 

applies. Riley v. California, 134 S. Ct. 2473, 2482 (2014); Arizona 
10 No. 14-2262

v. Gant, 556 U.S. 332, 338 (2009). The single exception advanced 

by the government here comes from Terry v. Ohio, 392 U.S. 1 

(1968). That exception allows police officers—during an investigatory stop founded on reasonable suspicion that a crime is 

being, has been, or is about to be committed—to frisk a detained person for weapons if the officers have an articulable 

suspicion that the person is both armed and a danger to the 

safety of officers or others. Terry, 392 U.S. at 30; see Minnesota v. 

Dickerson, 508 U.S. 366, 373 (1993); Maryland v. Buie, 494 U.S. 

325, 334 n.2 (1990); Ybarra v. Illinois, 444 U.S. 85, 92–94 (1979); 

United States v. Howard, 729 F.3d 655, 662 (7th Cir. 2013).

The government does not argue any other exception. The 

government has never suggested, for example, that the police 

officers searched Leo’s backpack incident to arrest.1 See Riley, 

134 S. Ct. at 2483–85 (stating “categorical rule” that physical 

containers “immediately associated with the person of the arrestee” may be searched incident to arrest but declining to extend rule to data on cellphones); United States v. Flores-Lopez, 

670 F.3d 803, 805 (7th Cir. 2012) (“[A] container found on the 

person of someone who is arrested may be searched as an incident to the arrest even if the arresting officers don’t suspect 

that the container holds a weapon or contraband, and thus 

without any justification specific to that container.” (citing 

United States v. Robinson, 414 U.S. 218, 236 (1973)). In fact, with 

 1 We note that even a search that occurs before an arrest may be 

deemed lawful as incident to that arrest, so long as probable cause for an 

arrest existed independently of the evidence discovered during the search. 

See Rawlings v. Kentucky, 448 U.S. 98, 111 & n.6 (1980); United States v.

Jackson, 377 F.3d 715, 716–17 (7th Cir. 2004); United States v. Chartier, 

772 F.3d 539, 546 (8th Cir. 2014); United States v. McCraney, 674 F.3d 614, 

618–19 (6th Cir. 2012); United States v. Torres-Castro, 470 F.3d 992, 997–98 

(10th Cir. 2006).
No. 14-2262 11

the exception of a throwaway line in a footnote in its brief on 

appeal, the government has taken every opportunity—

beginning with its attorney’s failure to even mention probable 

cause at the suppression hearing—to convey that probable 

cause to arrest Leo was lacking despite an eyewitness reporting 

that Leo had openly brandished a gun while trying to burglarize a residence. See Abbott v. Sangamon County, Ill., 705 F.3d 706, 

716 (7th Cir. 2013); Matthews v. City of East St. Louis, 675 F.3d 

703, 706–07 (7th Cir. 2012). Indeed, not one of the government’s 

submissions in the district court even includes the words 

“probable cause.” 

And the government’s belated reference to probable cause 

in a footnote in its appellate brief—that “the officers had probable cause to search the backpack and would have discovered 

the gun had they obtained a warrant”—is not a contention that 

the search was lawful. Rather, the government’s footnote invokes the inevitable-discovery doctrine, which allows the government to avoid suppression of evidence seized in violation of 

the Fourth Amendment upon showing that lawful conduct inevitably would have led to discovery of that evidence. Howard, 

729 F.3d at 663. That exception to the exclusionary rule, like the 

underlying question of probable cause, was at least forfeited, 

and arguably waived, by the government’s litigation strategy 

in the district court. See United States v. Jones, 713 F.3d 336, 350–

51 (7th Cir. 2013); United States v. Melgar, 227 F.3d 1038, 1040

(7th Cir. 2000); United States v. Marvin, 135 F.3d 1129, 1135 

(7th Cir. 1998); United States v. Tracey, 597 F.3d 140, 149 (3d Cir. 

2010); United States v. Archibald, 589 F.3d 289, 295–96 (6th Cir. 

2009). 

We are given no reason to excuse that strategy, not that it 

matters. In this court the government has only compounded its 
12 No. 14-2262

problems by tossing out a fresh assertion about probable cause 

and inevitable discovery but then failing to cite any legal authority or otherwise develop an argument. See United States v. 

Lewis, 608 F.3d 996, 1000 (7th Cir. 2010); United States v. 

Wantuch, 525 F.3d 505, 516 n.5 (7th Cir. 2008). Not even at oral 

argument, when a judge’s question prompted Leo’s lawyer to 

adamantly deny that the 911 caller’s report had established 

probable cause, did the government have anything to say on 

the subject. As we often warn litigants, it is not our responsibility to make the parties’ arguments for them. See Wantuch, 525 

F.3d at 516 n.5.2

B. Warrantless Search Not Justified Under Terry

With that in mind, we turn to the single question presented 

by this appeal: whether the police lawfully searched Leo’s 

backpack based only on reasonable suspicion during what the 

parties agree was a Terry stop. Leo concedes that, under Terry, 

the officers lawfully could have patted down the backpack to 

search for weapons. But he maintains that safety concerns did 

not justify opening and emptying the backpack because he was 

handcuffed and out of reach of the backpack. 

We agree with Leo that the warrantless search of his backpack exceeded the bounds of Terry. That decision provides that 

an officer who during a lawful investigatory stop reasonably 

suspects that the persons being investigated are armed and 

 2 The government’s brief also includes the odd suggestion that “exigent 

circumstances” justified searching Leo’s backpack. Exigent circumstances 

might excuse getting a search warrant but not the absence of probable cause. 

See Groh v. Ramirez, 540 U.S. 551, 559 (2004); Kirk v. Louisiana, 536 U.S. 635, 

638 (2002). For the government to bandy about “exigent circumstances” after failing to argue probable cause is frivolous.
No. 14-2262 13

dangerous may “conduct a carefully limited search of the outer 

clothing of such persons in an attempt to discover weapons 

which might be used to assault him.” Terry, 392 U.S. at 30. This 

limited protective search may include a pat-down of the suspect’s effects, including a bag. See United States v. Adamson, 

441 F.3d 513, 521–22 (7th Cir. 2006); United States v. HernandezMendez, 626 F.3d 203, 213 (4th Cir. 2010); United States v. 

Muhammad, 463 F.3d 115, 123–24 (2d Cir. 2006).

The government maintains that the full search of Leo’s 

backpack is authorized by Michigan v. Long, 463 U.S. 1032 

(1983). But Long—which upheld a police officer’s protective 

search of a car during a Terry stop—is readily distinguishable. 

First, the Supreme Court has recognized a diminished expectation of privacy in a car, partly because cars that travel on public 

roads are subject to “pervasive regulation.” See Pennsylvania v. 

Labron, 518 U.S. 938, 940 (1996); California v. Carney, 471 U.S. 

386, 391–92 (1985). Second, Long involved a roadside encounter 

with a motorist—a type of encounter which, the Supreme 

Court emphasized, is “especially fraught with danger to police 

officers.” Long, 463 U.S. at 1047. Third, the Court in Long was 

careful to emphasize that the search of the car was lawful because the officers had a reasonable belief that the suspect was 

dangerous and may have been able to “gain immediate control 

of weapons.” Id. at 1049–50.

In contrast, the search here did not involve a car or a roadside encounter, nor did the officers have a reasonable belief 

that Leo could get “immediate control” of the gun in his backpack. The reasonableness of a search is evaluated “on the basis 

of the facts as they existed at the time” of the search. 

United States v. Jacobsen, 466 U.S. 109, 115 (1984); see Terry, 392 

U.S. at 21–22; United States v. Brown, 64 F.3d 1083, 1086 (7th Cir. 
14 No. 14-2262

1995). And at the time of the search in this case, Leo’s hands 

were cuffed behind his back (as were Aranda’s), the officers 

already had frisked both men and found no weapons, and the 

backpack was in Officer Seeger’s hands and no longer in Leo’s 

possession. So when Seeger unzipped and emptied the backpack, it was inconceivable that either Leo or Aranda would 

have been able to lunge for the bag, unzip it, and grab the gun 

inside. See Gant, 556 U.S. at 343 (holding that officer safety justifies search of arrestee’s car incident to arrest “only when the 

arrestee is unsecured and within reaching distance of the passenger compartment at the time of the search”); United States v. 

Tejada, 524 F.3d 809, 811–12 (7th Cir. 2008) (explaining in the 

context of search incident to arrest that it is “inconceivable” 

that defendant who was handcuffed, face down on the floor, 

and surrounded by police officers could have opened entertainment center and unzipped travel bag inside it to reach for 

weapon).

The government cites Cady v. Sheahan, 467 F.3d 1057 

(7th Cir. 2006), for the proposition that, “even in the context of 

Terry stops, this Court has recognized that the need to protect 

officers and the public can sometimes justify going beyond a 

traditional pat-down search.” But the operative word in the 

government’s proposition is sometimes. Our decision in Cady is 

limited to the facts of that case: Cady did not announce a new 

rule that officers always are justified in rummaging through a 

person’s bag during a Terry stop. The officers in Cady spotted a 

disheveled man lurking in the bushes outside of a courthouse 

while the building was closed. See Cady, 467 F.3d at 1059. When 

they questioned him about his reason for being there, the man 

was evasive and kept reaching into his briefcase. See id. at 1059, 

1062. It was only then that the officers took his briefcase and 

checked it for weapons. See id. In contrast to Cady, Leo was not 
No. 14-2262 15

rummaging through his bag during the confrontation, nor did 

the officers question him before searching his backpack. Instead, Officer Seeger handcuffed him and, without saying a 

word, grabbed and emptied the bag. Any suggestion that the 

officers here acted out of a concern for their own safety is undermined by the government’s concession at oral argument 

that, because both Leo and Aranda were handcuffed, there was 

no immediate threat to officer safety at the time of the search. 

The government counters that the police officers acted on 

legitimate safety concerns because they “did not have authority to detain Leo indefinitely” and thus he might “be released in 

the parking lot of the preschool with a weapon in his backpack.” Leo emphatically agrees that the officers could not hold 

him indefinitely based on reasonable suspicion, but he insists 

that, if the officers could not develop their reasonable suspicion 

into probable cause during the investigatory stop, “the Fourth 

Amendment demands that he was free to leave and to take his 

belongings with him.”

Leo has the better argument. As the government concedes, 

a Terry stop cannot continue indefinitely, see United States v. 

Sharpe, 470 U.S. 675, 685 (1985), yet the government is wrong in 

thinking that this legal principle could justify searching Leo’s 

backpack. “A Terry investigative stop is ‘a brief detention which 

gives officers a chance to verify (or dispel) well-founded suspicions that a person has been, is, or is about to be engaged in 

criminal activity.’” United States v. Bullock, 632 F.3d 1004, 1014–

15 (7th Cir. 2011) (quoting United States v. Vega, 72 F.3d 507, 515 

(7th Cir. 1995)). A stop that is too prolonged becomes “a 

de facto arrest that must be based on probable cause.” Id.

at 1015. Thus, one of three things must happen during a Terry

stop: (1) the police gather enough information to develop 
16 No. 14-2262

probable cause and allow for continued detention, 

see United States v. Beltran, 752 F.3d 671, 677–78 (7th Cir. 2014);

(2) the suspicions of the police are dispelled and they release 

the suspect, see United States v. Childs, 277 F.3d 947, 952 (7th Cir. 

2002) (en banc); or (3) the suspicions of the police are not dispelled, yet the officers have not developed probable cause but 

must release the suspect because the length of the stop is about 

to become unreasonable, see Illinois v. Wardlow, 528 U.S. 119, 

126 (2000); United States v. Place, 462 U.S. 696, 709–10 (1983); 

Liberal v. Estrada, 632 F.3d 1064, 1081–82 (9th Cir. 2011);

United States v. Peters, 10 F.3d 1517, 1522 (10th Cir. 1993).

By forgoing any reliance on probable cause, the government has conceded that the first scenario does not apply here.

Nor is the second scenario relevant because, plainly, the police 

officers’ suspicions had not been dispelled before Leo’s backpack was searched. That leaves the third scenario, which the 

government finds unsatisfying and apparently would prefer to 

revise by allowing an officer conducting a Terry stop to do a 

full search of a suspect if the detention is in danger of becoming too long. But this step, no matter how convenient for the 

police, is not one that is authorized by Terry or any other precedent. 

We are not free to ignore Terry or to rewrite that decision to 

suit the government. And, anyway, the government’s argument is disingenuous: The search of Leo’s backpack was not a 

last-ditch attempt by the officers to find evidence of a crime before the duration of the stop exceeded constitutionally permissible bounds. Officer Seeger searched the backpack immediately, 

without even asking Leo to identify himself. See Hiibel v. Sixth 

Judicial Dist. Court of Nev., Humboldt Cnty., 542 U.S. 177, 186–87 

(2004) (explaining that “it is well established that an officer 
No. 14-2262 17

may ask a suspect to identify himself in the course of a Terry

stop” and holding that Fourth Amendment permits a state to 

require “a suspect to disclose his name in the course of a valid 

Terry stop”). If the officers had instead identified Leo before

searching his backpack, they could have contacted dispatch 

and quickly learned that he was a felon who was violating his 

probation.

We recognize that Officers Ortiz and Seeger may have 

balked at the thought of letting Leo enter the preschool with 

his backpack. But if the officers were concerned about the safety of the preschool’s occupants, nothing prevented them from 

following Leo into the building after the investigatory stop to 

keep an eye on him in case he attempted any wrongdoing. 

See United States v. Jones, 132 S. Ct. 945, 953 (2012) (“This Court 

has to date not deviated from the understanding that mere visual observation does not constitute a search.”); Kyllo v. 

United States, 533 U.S. 27, 32 (2001); United States v. Knotts, 

460 U.S. 276, 282 (1983).

There are other flaws with the government’s argument that 

the search of Leo’s backpack was justified solely by the possibility that Leo would enter the preschool with a gun. Leo maintained in the district court that the Head Start preschool is not 

a “school” under either Wisconsin or federal gun laws, 

see 18 U.S.C. § 921(a)(26); WIS. STAT. § 948.61(1)(b), and that the 

police officers therefore had no reason to think that he unlawfully possessed a gun in a school zone, see 18 U.S.C. 

§ 922(q)(2)(A); WIS. STAT. § 948.605(2). 

The government has never responded to Leo’s contention 

that the Head Start facility is not a “school” under these statutes, nor did the government ever charge Leo with possessing 

a gun in a school zone in violation of state or federal law. And 
18 No. 14-2262

there is no evidence in the record to show that Leo’s possession 

of a handgun in the preschool parking lot violated any other 

Wisconsin gun law, such as the trespass statute. See WIS. STAT.

§ 943.13(1m)(c). Moreover, Wisconsin law generally permits a 

person who is 21 or older and has not been convicted of a felony to obtain a concealed-carry license. See id. § 175.60(3). At the 

time of the search, the officers knew neither Leo’s age nor criminal history, nor did they inquire whether he had a license to 

carry a concealed firearm. See id. § 175.60(2g)(c). 

In closing, we note that the Supreme Court has made clear 

that the Second Amendment protects the individual right to 

keep and bear arms, see District of Columbia v. Heller, 554 U.S. 

570, 635–36 (2008), and applies equally to the states through the 

Fourteenth Amendment, see McDonald v. City of Chicago, 561 

U.S. 742, 791 (2010). And we have held that, subject to reasonable restrictions, the Second Amendment protects the right to 

carry a gun in public. See Moore v. Madigan, 702 F.3d 933, 942 

(7th Cir. 2012). Considering these important developments in 

Second Amendment law together with Wisconsin’s gun laws, 

we cannot accept the government’s contention that the possibility of a gun in Leo’s backpack posed a unique threat that justified a full search of the bag on less than probable cause. 

See United States v. Williams, 731 F.3d 678, 694 (7th Cir. 2013) 

(Hamilton, J., concurring in part and concurring in judgment) 

(“After Heller and McDonald, all of us involved in law enforcement, including judges, prosecutors, defense attorneys, and 

police officers, will need to reevaluate our thinking about these 

Fourth Amendment issues and how private possession of firearms figures into our thinking.”).
No. 14-2262 19

III. CONCLUSION

Accordingly, the judgment of conviction is VACATED, and 

the case is REMANDED for further proceedings consistent 

with this opinion.