2024 IL 127464

IN THE

SUPREME COURT

OF

THE STATE OF ILLINOIS

(Docket Nos. 127464, 127487) 

MARTIN KOPF, Appellee and Cross-Appellant, v. BRENDAN KELLY, in his Official 

Capacity as Director of the Illinois State Police, et al., Appellants and Cross-Appellees.

Opinion filed March 21, 2024.

JUSTICE OVERSTREET delivered the judgment of the court, with opinion. 

Chief Justice Theis and Justices Holder White, Cunningham, Rochford, and 

O’Brien concurred in the judgment and opinion. 

 Justice Neville took no part in the decision. 

OPINION

¶ 1 The instant action involves a direct appeal by defendants, Brendan Kelly, in his 

official capacity as Director of the Illinois State Police (ISP); Kwame Raoul, in his 

official capacity as Illinois Attorney General; and Jamie L. Mosser, in her official 

capacity as Kane County State’s Attorney, from an order of the circuit court of 
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Kane County finding an Illinois statutory provision unconstitutional. See Ill. S. Ct. 

R. 302(a)(1) (eff. Oct. 4, 2011). 

¶ 2 Plaintiff, Martin Kopf, filed a pro se complaint in the circuit court alleging that 

section 11-9.3(b-10) of the Criminal Code of 2012 (Criminal Code) (hereinafter 

Residency Restriction) (720 ILCS 5/11-9.3(b-10) (West 2018)), which prohibits 

“child sex offender[s]” from living within 500 feet of a “day care home,” along 

with other prohibitions and requirements for sex offenders in Illinois, was

unconstitutional. Although the circuit court dismissed most of plaintiff’s claims, it 

held that the Residency Restriction violates “substantive due process and equal 

protection.” Plaintiff cross-appealed to argue that the circuit court erred in 

dismissing his ex post facto, procedural due process, and remaining substantive due 

process claims. For the following reasons, we hereby vacate and remand the portion 

of the circuit court’s order finding the Residency Restriction unconstitutional as 

applied to plaintiff, reverse the portion of the circuit court’s order finding the 

Residency Restriction facially unconstitutional, and affirm the portion of the circuit 

court’s order dismissing the plaintiff’s remaining claims.

¶ 3 I. BACKGROUND

¶ 4 In 2003, plaintiff, who was born in 1969, pleaded guilty to aggravated criminal 

sexual abuse involving a 15-year-old victim and was sentenced to three years’ 

probation, which he completed. According to plaintiff’s complaint allegations, on 

August 24, 2018, he and his family moved into a house on Kathi Drive in 

Hampshire, he had built the house to accommodate his special needs, relying on 

locational approval of local authorities, and he registered the address as required by 

the Sex Offender Registration Act (Registration Act) (730 ILCS 150/1 et seq. (West 

2018)). As alleged, later in 2018, the Hampshire Police Department informed 

plaintiff that a day care home was operating within 500 feet of his residence and, 

pursuant to the Residency Restriction, he was required to move from his residence 

within 22 days. Plaintiff alleged that he and his wife moved from the Kathi Drive 

home, purchased a travel trailer, and moved into a local recreational vehicle resort 

in Marengo, Illinois. 

¶ 5 Plaintiff alleged that, after about a year, the resort owner notified plaintiff he 

could no longer live there based on his status as a sex offender and plaintiff moved 
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to a motel until it was no longer cost-effective to stay. Plaintiff alleged that, after 

more than 100 rejections to his requests to lease apartments, he slept in the back 

seat of his pickup truck at various areas within the Hampshire area. Accordingly, 

in November 2019, plaintiff filed a pro se complaint in the circuit court, and on 

January 29, 2020, the circuit court entered a temporary restraining order enjoining 

defendants from enforcing the Residency Restriction against plaintiff, thereby 

allowing him to reside at his Kathi Drive address.

¶ 6 In his second amended, pro se “Complaint for Civil Rights Violations, 

Declaratory Judgment, and Other Injunctive Relief,” filed on September 8, 2020, 

plaintiff named as defendants the Hampshire Police Department, the Kane County 

State’s Attorney, the Director of the Illinois State Police, and the Illinois Attorney 

General in their official capacities. In the six counts set out in the second amended 

complaint, plaintiff alleged violations of (1) the ex post facto clauses of the United 

States Constitution and the Illinois Constitution (U.S. Const., art. I, §§ 9, 10; Ill. 

Const. 1970, art. I, § 16), (2) the guarantee of procedural due process of the United 

States Constitution and the Illinois Constitution (U.S. Const., amend. XIV, § 1; Ill. 

Const. 1970, art. I, § 2), (3) the guarantee of substantive due process of the United 

States Constitution and the Illinois Constitution (U.S. Const., amend. XIV, § 1; Ill. 

Const. 1970, art. I, § 2), (4) the proportionate penalties clause of the Illinois 

Constitution (Ill. Const. 1970, art. I, § 11), (5) the eighth amendment prohibition 

on cruel and unusual punishment (U.S. Const., amend. VIII), and (6) negligence 

principles in that the ISP Director and the Hampshire Police Department were 

negligent in failing to timely inform him that the location of his residence did not 

comply with the Residency Restriction. 

¶ 7 In his second amended complaint, plaintiff also included allegations that the 

Residency Restriction and various provisions of the Registration Act were void for 

vagueness and that the Residency Restriction was void as a violation of equal 

protection under the United States and Illinois Constitutions (U.S. Const., amend. 

XIV, § 1; Ill. Const. 1970, art. I, § 2). Plaintiff’s second amended complaint 

challenged the Residency Restriction, other “presence restrictions” applying to sex 

offenders (720 ILCS 5/11-9.3 (West 2018)), the Registration Act (730 ILCS 150/1 

et seq. (West 2018)), the Sex Offender Community Notification Law (Notification 

Law) (730 ILCS 152/101 et seq. (West 2018)), and section 5-5-3(o) of the Unified 
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Code of Corrections (730 ILCS 5/5-5-3(o) (West 2018)), which requires 

individuals convicted of sex offenses to annually renew their driver’s licenses. 

¶ 8 In his second amended complaint, plaintiff alleged that “residency restrictions” 

“interfere[d] with [his] fundamental liberty right[s] *** to intrastate travel and *** 

to parent one’s children.” Plaintiff also alleged that the Registration Act, the 

Notification Law, and the driver’s license renewal provisions “create multiple 

irrebuttable presumptions,” “unconstitutionally rely on the irrebuttable 

presumptions that [plaintiff] is dangerous and likely to commit further criminal 

sexual acts,” and are therefore invalid.

¶ 9 As relief, plaintiff sought (1) a preliminary and permanent injunction 

prohibiting defendants from arresting or prosecuting him for violating the 

Residency Restriction, (2) a declaratory judgment that the Residency Restriction is 

unconstitutional as applied to him, (3) a preliminary and permanent injunction 

prohibiting defendants from enforcing the other provisions at issue against him, and 

(4) a declaratory judgment that the provisions at issue are unconstitutional as 

applied to him.

¶ 10 Pursuant to section 2-619.1 of the Code of Civil Procedure (735 ILCS 5/2-619.1 

(West 2020)), defendants filed a motion to dismiss plaintiff’s second amended 

complaint. On June 22, 2021, the circuit court granted in part defendants’ motion 

to dismiss, dismissing plaintiff’s negligence, ex post facto, procedural due process, 

proportionate penalties, eighth amendment, and void for vagueness claims. 

However, the circuit court determined that the Residency Restriction “at issue 

(specifically the definition of ‘[d]ay [c]are [h]ome’ and its impact) violate both the 

equal protection clause as well as substantive due process.” The circuit court agreed 

with defendants that the Residency Restriction was subject to rational basis review 

because it did not implicate a suspect class or a fundamental right. The circuit court 

nevertheless concluded that, although protecting children from sex offenders was 

“a legitimate, if not compelling, state interest,” the Residency Restriction was not 

rationally related to the State’s interest in protecting children from sex offenders. 

¶ 11 The circuit court held that the definition of “day care home” was not rationally 

related to that interest because its application “leads to some absurd results.” See 

225 ILCS 10/2.18 (West 2018) (defining “day care home” as “family homes which 

receive more than 3 *** children for less than 24 hours per day” including “the 
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family’s natural or adopted children and all other persons under the age of 12,” not 

including “facilities which receive only children from a single household”). 

Specifically, the circuit court observed, a sex offender may live next door to 

someone with a child under 12 years old who also cared for another unrelated child 

under 12 years old, or next door to someone who had “five, ten or a dozen children 

without consequence,” thereby allowing him to live in a house within 500 feet of 

dozens of children. Yet, the circuit court observed, when the first neighbor invites 

a third child into the home, plaintiff’s ability to reside in that location is terminated. 

As a result, the court declared, “[s]uch a scheme is not rationally related to the 

legitimate state interest of protecting children, and does nothing to promote it.” 

¶ 12 Accordingly, the circuit court dismissed with prejudice counts I, II, IV, V, and 

VI of plaintiff’s complaint but declined to dismiss count III or the equal protection 

allegations in plaintiff’s complaint. In its order, the circuit court entered a 

permanent injunction in favor of plaintiff and against defendants, enjoining 

defendants from refusing to register plaintiff at his address, taking any action to 

force plaintiff to vacate the property, or prosecuting him based on the Residency 

Restriction. The next day, the circuit court entered an order clarifying that the prior 

day’s order disposed of all of plaintiff’s claims and, therefore, was final and 

appealable.

¶ 13 The ISP Director, Attorney General, and Kane County State’s Attorney filed 

notices of appeal, and this court consolidated the appeals. Defendants appealed 

directly to this court (Ill. S. Ct. R. 302(a)(1) (eff. Oct. 4, 2011) (appeals from final 

judgments of circuit courts shall be taken directly to the supreme court in cases in 

which a statute of this state has been held invalid)), and this court allowed plaintiff’s 

late notice of cross-appeal from the portion of the circuit court’s order dismissing 

his claims.1 

1In this court, plaintiff ostensibly sought reversal of the circuit court’s order dismissing his 

negligence claim against the Hampshire Police Department. Prior to oral arguments, the Hampshire 

Police Department filed a motion to dismiss plaintiff’s appeal of this claim, and this court took the 

Hampshire Police Department’s motion to dismiss with the case. At oral argument, plaintiff 

expressly waived any negligence claim against Hampshire Police Department. Accordingly, we 

hereby grant the Hampshire Police Department’s motion to dismiss the appeal with regard to 

plaintiff’s negligence claim against it. 
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¶ 14 Thereafter, defendants moved this court to vacate the circuit court’s orders and 

remand for further proceedings because those orders failed to comply with Illinois 

Supreme Court Rule 18 (eff. Sept. 1, 2006) (court shall not find unconstitutional a 

statute unless court identifies what portion of the statute is being held 

unconstitutional and sets forth specific grounds for the finding of 

unconstitutionality, including whether statute is being found unconstitutional on its 

face, as applied to the case sub judice, or both). This court denied defendants’ 

request to vacate the circuit court’s orders but granted their request to remand the 

matter for further proceedings for the “limited purpose of making and recording 

findings in compliance with Supreme Court Rule 18.” 

¶ 15 On remand, the circuit court held a status hearing wherein defendants proposed 

submitting stipulated facts or, if the parties could not agree to the facts, proceeding 

to an evidentiary hearing. Plaintiff objected, arguing that this court’s limited 

remand order did not allow for an evidentiary hearing. Defendants sought 

clarification as to whether the circuit court intended to hold the Residency 

Restriction unconstitutional on its face or as applied to plaintiff. The circuit court 

acknowledged that it “had no facts that would have specifically related to [plaintiff] 

and what was happening on his block” and stated that it had held that the challenged 

provision was facially unconstitutional. The circuit court stated that its holding 

“was addressing facially the definition of a home daycare and its interplay with the 

[Residency Restriction].” The circuit court stated that the Residency Restriction 

was facially unconstitutional because it was not rationally related to its purpose. 

¶ 16 On February 16, 2022, the circuit court entered a written order, specifying that 

it found unconstitutional the Residency Restriction (720 ILCS 5/11-9.3(b-10) 

(West 2018)) that made it illegal for a “child sex offender to knowingly reside 

within 500 feet of a *** day care home” as defined in section 2.18 of the Child Care 

Act of 1969 (Child Care Act) (225 ILCS 10/2.18 (West 2018)). The circuit court 

noted that its “findings [we]re based both upon the due process clause as well as 

equal protection grounds.” Because the relevant provisions did not infringe upon a 

fundamental right, nor was plaintiff a member of a suspect or protected class, the 

circuit court applied the rational basis test. The circuit court concluded that, 

although the State had a legitimate interest in protecting children from child sex 

offenders, “the statutory scheme is not rationally related to that interest, given the 

definition of ‘day care homes.’ ” 
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¶ 17 According to the circuit court, the statutory “scheme is actually irrational” 

because the definition of “day care home” includes the natural children of the 

homeowner. As a result, a child sex offender could live next to a family with 10 

children under the age of 12 but could not live next to that family if it accepted 2 

unrelated children into the home for day care. The circuit court also found that the 

Residency Restriction violated plaintiff’s equal protection rights because it treated 

similar groups of individuals differently. Specifically, it held that child sex 

offenders are treated differently depending on whether they live next to a home day 

care “consisting of only 3 qualifying children”; a home with a family “of 5, 7, or 

10 children”; or “next to the family that has 3 to 12 kids for day care that all come 

from a single household.” The circuit court stated that the first situation was illegal, 

while the latter two were not. The circuit court concluded that the statute did not 

survive an equal protection challenge because the child sex offender living next to 

a day care home consisting of only three qualifying children is treated differently 

than the child sex offender living next door to the family of 5, 7, or 10 children.

¶ 18 The circuit court further explained that it was “primarily addressing a facial 

defect in the statutory scheme,” although “[t]o some extent *** the decision was 

also as applied to” plaintiff. The circuit court noted that plaintiff had objected to 

defendants’ proposal to supplement the record with stipulated facts and decided 

that “no additional facts are necessary.” The circuit court found that the facial defect 

was apparent given the court’s analysis, i.e., that it is the definition of a day care 

home, and its inclusion of natural children in the home, that leads to absurd results.

¶ 19 II. ANALYSIS

¶ 20 A. Defendants’ Appeal

¶ 21 Initially, we note that, absent evidence in the record with regard to plaintiff’s 

specific circumstances, the circuit court erred to the extent it found that the 

Residency Restriction was unconstitutional as applied to plaintiff. 

¶ 22 “Although facial and as-applied constitutional challenges are both intended to 

address constitutional infirmities, they are not interchangeable.” People v. 

Thompson, 2015 IL 118151, ¶ 37. “The distinction between facial and as-applied 

constitutional challenges is critical.” People v. Harris, 2018 IL 121932, ¶ 38. “A 
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party raising a facial challenge must establish that the statute is unconstitutional 

under any possible set of facts, while an as-applied challenge requires a showing 

that the statute is unconstitutional as it applies to the specific facts and 

circumstances of the challenging party.” Id. “[I]n an ‘as applied’ challenge a 

plaintiff protests against how an enactment was applied in the particular context in 

which the plaintiff acted or proposed to act.” Napleton v. Village of Hinsdale, 229 

Ill. 2d 296, 306 (2008). “[I]f a plaintiff prevails in an as-applied claim, he may 

enjoin the objectionable enforcement of a statute only against himself, while a 

successful facial challenge voids enactment in its entirety and in all applications.” 

Morr-Fitz, Inc. v. Blagojevich, 231 Ill. 2d 474, 498 (2008). 

¶ 23 “By definition, an as-applied constitutional challenge is dependent on the 

particular circumstances and facts of the individual defendant or petitioner.” 

Thompson, 2015 IL 118151, ¶ 37. “Therefore, it is paramount that the record be 

sufficiently developed in terms of those facts and circumstances for purposes of 

appellate review.” Id. This court has explained: “A court is not capable of making 

an ‘as applied’ determination of unconstitutionality when there has been no 

evidentiary hearing and no findings of fact. [Citation.] Without an evidentiary 

record, any finding that a statute is unconstitutional ‘as applied’ is premature.” 

(Internal quotation marks omitted.) Harris, 2018 IL 121932, ¶ 39. 

¶ 24 In this case, the circuit court did not hear evidence regarding plaintiff’s specific 

circumstances before ruling that the Residency Restriction was unconstitutional as 

applied to plaintiff and entering a permanent injunction in plaintiff’s favor. Instead, 

the record contains only unverified allegations. 

¶ 25 After this court entered a limited remand to the circuit court to clarify its 

findings, the circuit court stated that it was finding the Residency Restriction 

facially unconstitutional; however, a few words later, the circuit court found it 

unconstitutional “as applied.” Nevertheless, the record remained entirely devoid of 

any evidence of plaintiff’s specific circumstances to support an as-applied 

constitutional challenge to the Residency Restriction, and thus, the circuit court 

erred to the extent it found the Residency Restriction unconstitutional as applied to 

plaintiff. 

¶ 26 Defendants argue that plaintiff abandoned his as-applied constitutional 

challenges with regard to the circuit court’s order finding the Residency Restriction 
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unconstitutional pursuant to substantive due process and equal protection principles 

because he objected to an evidentiary hearing during the limited remand from this 

court. However, this court’s remand order was limited, merely requested 

clarification by the circuit court, and did not direct that an evidentiary hearing be 

held. We therefore conclude that, although plaintiff objected to an evidentiary 

hearing during the limited remand from this court, he did not waive his opportunity 

to present evidence to support his as-applied challenge and request for a permanent 

injunction on this basis. See also In re Marriage of Seffren, 366 Ill. App. 3d 628, 

637 (2006) (permanent injunction is final judgment generally entered after hearing 

on merits demonstrating requisite elements). 

¶ 27 Accordingly, to the extent the circuit court found that the Residency Restriction 

was unconstitutional as applied to plaintiff, its order must be vacated because there 

is no evidence in the record upon which the circuit court could so decide. We 

therefore vacate that portion of the circuit court’s order finding the Residency 

Restriction unconstitutional as applied to plaintiff, and we remand the cause for a 

hearing to consider the plaintiff’s particular facts and circumstances in lodging this 

as-applied challenge.

¶ 28 Nevertheless, because the circuit court’s order granting a permanent injunction 

on the basis that the Residency Restriction is facially unconstitutional involves a 

matter of law, i.e., whether plaintiff alleged a clear and ascertainable right in need 

of protection (Vaughn v. City of Carbondale, 2016 IL 119181, ¶ 44), we proceed to

review the circuit court’s judgment on this basis (see Davis v. Brown, 221 Ill. 2d 

435, 443 (2006) (lower court’s judgment that statute was constitutional on its face 

involved only questions of law)). 

¶ 29 1. Substantive Due Process—Residency Restriction

¶ 30 Plaintiff asserts, and the circuit court held, that the Residency Restriction, 

making it unlawful for a child sex offender to knowingly reside within 500 feet of 

a “day care home” (720 ILCS 5/11-9.3(b-10) (West 2018)), as that term is defined 

in the Child Care Act (225 ILCS 10/2.18 (West 2018)), is facially unconstitutional 

as violative of plaintiff’s substantive due process guarantees. We disagree.
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¶ 31 “All statutes carry a strong presumption of constitutionality,” and they must be 

upheld as constitutional “whenever reasonably possible, resolving all doubts in 

favor of their validity.” People v. Pepitone, 2018 IL 122034, ¶ 12. “This 

presumption derives from the fact that when a circuit court declares a statute 

unconstitutional, such a holding destabilizes the area of law within which the statute 

is invalidated until that ruling is reviewed by this court.” People v. Cornelius, 213 

Ill. 2d 178, 189 (2004). “To rebut the presumption, a party challenging a statute 

must establish clearly that it violates the constitution.” Pepitone, 2018 IL 122034, 

¶ 12. On the constitutional issue before us, our review is de novo. People v. 

Eubanks, 2019 IL 123525, ¶ 34 (court reviews de novo a lower court’s decision 

regarding the constitutionality of a statute). Likewise, when a circuit court’s order 

granting a permanent injunction involves a question of law, this court’s review is 

de novo. Vaughn, 2016 IL 119181, ¶ 22. 

¶ 32 The due process clause of our state constitution is found in article I, section 2, 

and the language of our due process clause is nearly identical to its federal 

counterpart. See U.S. Const., amend. XIV, § 1 (“nor shall any State deprive any 

person of life, liberty, or property, without due process of law; nor deny to any 

person within its jurisdiction the equal protection of the laws”); Ill. Const. 1970, 

art. I, § 2 (“No person shall be deprived of life, liberty or property without due 

process of law nor be denied the equal protection of the laws.”). “[T]his court has 

adopted the ‘limited lockstep’ approach for interpreting cognate provisions of our 

state and federal constitutions.” Hope Clinic for Women, Ltd. v. Flores, 2013 IL 

112673, ¶ 47; see also People v. Caballes, 221 Ill. 2d 282, 297 (2006). 

“Under this approach, when the language of the provisions within our state and 

federal constitutions is nearly identical, departure from the United States 

Supreme Court’s construction of the provision will generally be warranted only 

if we find ‘ “in the language of our constitution, or in the debates and the 

committee reports of the constitutional convention, something which will 

indicate that the provisions of our constitution are intended to be construed 

differently than are similar provisions in the Federal Constitution, after which 

they are patterned.” ’ ” Hope Clinic for Women, 2013 IL 112673, ¶ 47 (quoting 

Caballes, 221 Ill. 2d at 297, quoting People v. Tisler, 103 Ill. 2d 226, 245 

(1984)). 
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¶ 33 In this case, plaintiff states that the “constitutions’ text[s] are in lockstep,” 

agrees with defendants that the analysis is the same under either constitution, and 

does not assert any basis suggesting it unsound to follow United States Supreme 

Court precedent in lockstep here. See id. In addition, we find no compelling reason 

to read the due process clause in the Illinois Constitution as providing more 

protection than its federal counterpart in plaintiff’s substantive due process 

challenge before us. See In re M.A., 2015 IL 118049, ¶ 53 (“no compelling reason 

to interpret the Illinois due process clause to provide greater protection than its 

federal counterpart” in substantive due process challenge to the Violent Offender 

Against Youth Registration Act (Violent Offender Act) (730 ILCS 154/1 et seq.

(West 2012))).

¶ 34 “Substantive due process bars governmental action that infringes upon a 

protected interest when such action is itself arbitrary.” Pepitone, 2018 IL 122034, 

¶ 13; see also People v. Cardona, 2013 IL 114076, ¶ 17 (“a substantive due process 

claim asserts that the deprivation at issue is constitutionality invalid in and of itself, 

irrespective of the process leading up to it”). “When confronted with a claim that a 

statute violates the due process guarantees of the United States and Illinois 

Constitutions, courts first must determine the nature of the right purportedly 

infringed upon by the statute.” In re J.W., 204 Ill. 2d 50, 66 (2003). “Classification 

of the right affected is critical because the nature of the right dictates the level of 

scrutiny courts employ in determining whether the statute in question passes 

constitutional muster.” In re D.W., 214 Ill. 2d 289, 310 (2005). 

¶ 35 “When a statute is challenged based upon substantive due process grounds, the 

threshold question is whether the statute restricts or regulates a fundamental right.” 

Hayashi v. Illinois Department of Financial & Professional Regulation, 2014 IL 

116023, ¶ 28. “A statute which restricts a fundamental right must be examined 

under strict scrutiny.” Id. “Under strict scrutiny analysis, legislation which 

significantly interferes with the exercise of a fundamental right will be upheld only 

if it is necessary to promote a compelling state interest and is narrowly tailored to 

effectuate only that interest.” Id.

¶ 36 “Where the statute does not affect a fundamental constitutional right, the test 

for determining whether the statute complies with substantive due process is the 

rational basis test.” In re J.W., 204 Ill. 2d at 67. “To satisfy this test, a statute need 
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only bear a rational relationship to the purpose the legislature sought to accomplish 

in enacting the statute.” Id. “Pursuant to this test, a statute will be upheld if it ‘bears 

a reasonable relationship to a public interest to be served, and the means adopted 

are a reasonable method of accomplishing the desired objective.’ ” Id. (quoting 

People v. Adams, 144 Ill. 2d 381, 390 (1991)).

¶ 37 Fundamental rights are those that are “objectively, deeply rooted in this 

Nation’s history and tradition” and “implicit in the concept of ordered liberty,” so 

that “neither liberty nor justice would exist if they were sacrificed.” (Internal 

quotation marks omitted.) Washington v. Glucksberg, 521 U.S. 702, 720-21 (1997). 

The United States Supreme Court has deemed fundamental the right to marry 

(Loving v. Virginia, 388 U.S. 1, 12 (1967)), the right to marital privacy involving 

contraceptives (Griswold v. Connecticut, 381 U.S. 479, 485-86 (1965)), the right to 

procreation (Skinner v. Oklahoma ex rel. Williamson, 316 U.S. 535, 541 (1942)), 

and the right to direct the education and upbringing of one’s children (Meyer v. 

Nebraska, 262 U.S. 390, 400 (1923)). “This court has held that fundamental rights 

include the expression of ideas (i.e., freedom of speech), participation in the 

political process, travel among the states[,] and privacy with regard to the most 

intimate and personal aspects of one’s life.” Napleton, 229 Ill. 2d at 307-08. 

¶ 38 In contrast, this court has held that a child sex offender has no fundamental 

constitutional right to be free from damage to his reputation or from shame, stigma, 

and embarrassment resulting from a conviction for sexually abusing a child 

(Cornelius, 213 Ill. 2d at 204; see also Paul v. Davis, 424 U.S. 693, 701 (1976)); a 

juvenile sex offender has no fundamental constitutional right that is implicated 

through lifetime sex offender registration (In re J.W., 204 Ill. 2d at 67); a child sex 

offender has no fundamental right to be present in a public park (Pepitone, 2018 IL 

122034, ¶ 14); and a child sex offender has no fundamental right to take his child 

to a park (People v. Legoo, 2020 IL 124965, ¶ 32). 

¶ 39 The Residency Restriction, found in section 11-9.3(b-10) of the Criminal Code, 

provides that “[i]t is unlawful for a child sex offender to knowingly reside within 

500 feet of a *** day care home” (720 ILCS 5/11-9.3(b-10) (West 2018)), which 

“has the meaning ascribed to it in [s]ection 2.18 of the Child Care Act of 1969” (id.

§ 11-9.3(d)(7)). Section 11-9.3(b-10) further provides: “Nothing in this subsection 

(b-10) prohibits a child sex offender from residing within 500 feet of a day care 
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home *** if the property is owned by the child sex offender and was purchased 

before August 14, 2008 (the effective date of Public Act 95-821).” Id. § 11-9.3(b10). “Child sex offender” is defined as, inter alia, any person who is convicted of 

a sex offense, including aggravated criminal sexual abuse, and the victim is a person 

under 18 years of age at the time of the offense. Id. § 11-9.3(d)(1). “Day care home” 

is defined in section 2.18 of the Child Care Act as follows: 

“family homes which receive more than 3 up to a maximum of 12 children for 

less than 24 hours per day. The number counted includes the family’s natural 

or adopted children and all other persons under the age of 12. The term does 

not include facilities which receive only children from a single household.” 225 

ILCS 10/2.18 (West 2018). 

¶ 40 In conducting a substantive due process analysis, a court “must begin with a 

careful description of the asserted right, for ‘[t]he doctrine of judicial self-restraint 

requires us to exercise the utmost care whenever we are asked to break new ground 

in this field.’ ” Reno v. Flores, 507 U.S. 292, 302 (1993) (quoting Collins v. City of 

Harker Heights, 503 U.S. 115, 125 (1992)). Here, the Residency Restriction affects 

a child sex offender’s freedom to live in a particular location in relation to a day 

care home. 

¶ 41 However, the right to live where one pleases is not “deeply rooted in this 

Nation’s history and tradition” or “implicit in the concept of ordered liberty” such 

that “neither liberty nor justice would exist if [it] were sacrificed.” (Internal 

quotation marks omitted.) See Glucksberg, 521 U.S. at 720-21. Plaintiff asserts a 

fundamental right to live near a day care home where children congregate, which 

is an uncomfortable fit with the liberty interests that have been deemed 

fundamental. See Doe v. City of Lafayette, 377 F.3d 757, 770-71 (7th Cir. 2004); 

see also Loving, 388 U.S. at 12; Griswold, 381 U.S. at 485-86; Skinner, 316 U.S. at 

541; Meyer, 262 U.S. at 400; Napleton, 229 Ill. 2d at 307-08. 

¶ 42 Moreover, although plaintiff asserts that the Residency Restriction infringes 

upon a child sex offender’s fundamental liberty interest “in raising and caring for 

[his] children” (Legoo, 2020 IL 124965, ¶ 31), the Residency Restriction does not 

affect the right of a child sex offender to direct the upbringing and education of his 

children or make decisions involving the care, custody, and control of his children. 

The Residency Restriction merely limits where a child sex offender may reside 
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geographically, restricting the location where he lives in relation to where children 

congregate. See People v. Leroy, 357 Ill. App. 3d 530, 534 (2005) (plain language 

of provision prohibiting sex offender from living near playground or facility 

providing programs exclusively directed toward children merely restricts where, 

geographically, the offender may live in relation to such a playground or facility, 

and there is no fundamental right to live with mother within 500 feet of such 

playground or facility); see also Doe I v. Miller, 405 F.3d 700, 711 (8th Cir. 2005) 

(Iowa sex offender residency restriction “does not directly regulate the family 

relationship or prevent any family member from residing with a sex offender in a 

residence that is consistent with the statute”). The Residency Restriction does not 

prohibit a child sex offender from establishing a home or from living with his 

family in a residence consistent with the statute. 

¶ 43 In his complaint, plaintiff alleged that the Residency Restriction implicates a 

child sex offender’s ability to enjoy his current or future properties. However, 

where a child sex offender, like plaintiff, purchases land or a home after the 

Residency Restriction was in effect (Pub. Act 95-821 (eff. Aug. 14, 2008)), his 

property interest in the land and the house is already limited by the Residency 

Restriction. See also Vasquez v. Foxx, 895 F.3d 515, 524 (7th Cir. 2018) (affirming 

dismissal of plaintiffs’ takings claims because residency restriction was “on the 

books” when home was purchased and it was “necessarily part of any propertyrights expectations [that he] could have held”), overruled on other grounds by Koch 

v. Village of Hartland, 43 F.4th 747 (7th Cir. 2022); see also Caulkins v. Pritzker, 

2023 IL 129453, ¶ 71 (“grandfathered individuals have a reliance interest based on 

their acquisition before the restrictions took effect”). 

¶ 44 In his complaint, plaintiff also alleged that the Residency Restriction infringes 

upon a child sex offender’s right to intrastate travel. However, although a child sex 

offender is prohibited from residing at a residence located within 500 feet of a day 

care home, he is not prohibited from traveling to and from it. See Weems v. Little 

Rock Police Department, 453 F.3d 1010, 1016 (8th Cir. 2006) (Arkansas residency 

restriction did not prevent sex offender from traveling to and from any part of the 

state or erect an actual barrier to intrastate movement); Doe I, 405 F.3d at 713 

(“Iowa residency restriction does not prevent a sex offender from entering or 

leaving any part of the [s]tate *** and *** does not erect any actual barrier to 
- 15 - 

intrastate movement”). Accordingly, the Residency Restriction does not infringe 

upon plaintiff’s right to intrastate travel. 

¶ 45 In sum, the Residency Restriction does not infringe upon a child sex offender’s 

fundamental rights, and rational basis review is appropriate. See also Vasquez, 895 

F.3d at 525 (Alaska’s residency restriction prohibiting sex offenders from living 

within 500 feet of child day care homes and group day care homes does not infringe 

on fundamental right to establish a home because the law constrains only where 

they can do so, and thus, rational basis review is appropriate). Under this test, our 

inquiry is twofold: “[W]e must determine whether there is a legitimate state interest 

behind the legislation, and if so, whether there is a reasonable relationship between 

that interest and the means the legislature has chosen to pursue it.” People v. 

Johnson, 225 Ill. 2d 573, 584 (2007). 

¶ 46 Although the rational basis test is not “ ‘toothless’ ” (People v. Jones, 223 Ill. 

2d 569, 596 (2006), quoting Mathews v. De Castro, 429 U.S. 181, 185 (1976)), it 

is nevertheless highly deferential to the findings of the legislature (People v. Rizzo, 

2016 IL 118599, ¶ 45). Pepitone, 2018 IL 122034, ¶ 17. The legislature’s 

judgments in drafting a statute “ ‘may be based on rational speculation unsupported 

by evidence or empirical data’ ” and are not subject to judicial factfinding. People 

v. Boeckmann, 238 Ill. 2d 1, 7 (2010) (quoting Arangold v. Zehnder, 204 Ill. 2d 

142, 147 (2003)). “If there is any conceivable set of facts to justify the statute, it 

must be upheld.” Pepitone, 2018 IL 122034, ¶ 17. “This court will not second-guess 

the wisdom of legislative enactments or dictate alternative means to achieve the 

desired result.” Id.; see also id. ¶ 24 (legislature is in a better position than the 

judiciary to gather and evaluate data involving complex problems). 

¶ 47 The legislature has a legitimate interest in protecting children from neighboring 

child sex offenders and sexual predators. See People v. Minnis, 2016 IL 119563, 

¶ 37 (“ ‘The prevention of sexual exploitation and abuse of children constitutes a 

government objective of surpassing importance.’ ” (quoting New York v. Ferber, 

458 U.S. 747, 757 (1982))). The Residency Restriction bears a reasonable 

relationship to furthering the State’s public interest in protecting children by 

creating a buffer between a child day care home and the home of a child sex 

offender to protect children from the harm for which child sex offenders have been 

convicted. The Residency Restriction reduces the amount of incidental contact 
- 16 - 

child sex offenders have with nearby children and reduces the opportunity for them 

to commit offenses against children. See Leroy, 357 Ill. App. 3d at 534 (provision 

prohibiting child sex offenders from living within 500 feet of a playground 

reviewed under rational basis standard bears a reasonable relationship to the goal 

of protecting children from known child sex offenders and sets forth a reasonable 

method of furthering that goal). 

¶ 48 The circuit court departed from this reasoning, holding that the Residency 

Restriction was “irrational” because it would be lawful for a child sex offender to 

live next door to a family with 10 children under the age of 12, but unlawful for 

him to live next to that family if it took in two children under the age of 12 from 

separate households for day care. However, a statute will be upheld if there is “any 

conceivable set of facts to show a rational basis for the statute.” Johnson, 225 Ill. 

2d at 585. Because it is conceivable that children in the hypothetical family 

envisioned by the circuit court, with 10 children of their own before taking in 2 

children from separate households under the age of 12, could be protected by the 

Residency Restriction, it satisfies the rational basis test.

¶ 49 The circuit court held that the “only way the children are protected in the first 

instance is if their parents take in enough day care kids from separate households 

to place them within the 3 to 12 range of protected children.” However, as noted by 

defendants, “[t]he legislature need not choose between legislating against all evils 

of the same kind or not legislating at all.” Chicago National League Ball Club, Inc. 

v. Thompson, 108 Ill. 2d 357, 367 (1985). “An entire remedial scheme will not be 

invalidated simply because it failed, through inadvertence or otherwise, to cover 

every evil that might conceivably have been attacked.” (Internal quotation marks 

omitted.) Id. The statute will be upheld if there is “any conceivable set of facts to 

show a rational basis for the statute.” Johnson, 225 Ill. 2d at 585. 

¶ 50 Plaintiff cites studies regarding low recidivism rates for sex offenders to argue 

that sex offender residency restrictions endanger communities. Plaintiff also argues 

that the Residency Restriction is not effective, may increase sex offender risk by 

undermining stability, and should be implemented in a targeted rather than onesize-fits-all fashion. However, under the rational basis test, courts “will not question 

the wisdom” of the General Assembly’s choice in enacting legislation because “a 

statute need not be the best method of accomplishing a legislative goal; it must 
- 17 - 

simply be reasonable.” Id. at 592. “[T]he rational basis test does not require narrow 

tailoring; it only requires rationality.” Pepitone, 2018 IL 122034, ¶ 30; see also 

Moline School District No. 40 Board of Education v. Quinn, 2016 IL 119704, ¶ 28 

(“the fact that a law might be ill-conceived does not, in itself, create a constitutional 

problem for us to fix, for whether a statute is wise and whether it is the best means 

to achieve the desired result are matters for the legislature, not the courts”); In re 

J.W., 204 Ill. 2d at 72 (“Whether there are better means to achieve this result *** 

is a matter better left to the legislature.”).

¶ 51 Under rational basis review, the Residency Restriction is reasonably related to 

the legitimate state interest of protecting children. It is reasonably conceivable that 

preventing child sex offenders from residing within 500 feet of a home day care 

where children gather will protect children. By distancing child sex offenders from 

areas where children are present, the legislature rationally sought to avoid giving 

child sex offenders the opportunity to reoffend. Pepitone, 2018 IL 122034, ¶ 31. 

Because the Residency Restriction is rationally related to a legitimate government 

interest, the circuit court erred in holding it facially unconstitutional in violation of 

substantive due process and entering a permanent injunction on this basis. 

Accordingly, we reverse the portion of the circuit court’s judgment finding the 

Residency Restriction facially unconstitutional. 

¶ 52 2. Equal Protection 

¶ 53 In the case sub judice, the circuit court also held that the Residency Restriction 

violates the equal protection clauses of the United States and Illinois Constitutions. 

U.S. Const., amend. XIV, § 1 (no state shall “deny to any person *** the equal 

protection of the laws”); Ill. Const. 1970, art. I, § 2 (“No person shall be deprived 

of life, liberty or property without due process of law nor be denied the equal 

protection of the laws.”). Although not separately pleaded in a numbered count in 

his complaint (735 ILCS 5/2-603(b) (West 2018) (“[e]ach separate cause of action 

*** shall be stated in a separate count[,] *** and each count *** shall be separately 

pleaded, designated[,] and numbered”)), plaintiff included allegations in his second 

amended complaint that the Residency Restriction violates the equal protection 

clauses of the federal and state constitutions. When conducting an equal protection 
- 18 - 

analysis, this court applies the same standard under both the Illinois Constitution 

and the United States Constitution. In re M.A., 2015 IL 118049, ¶ 23. 

¶ 54 “The equal protection clause guarantees that similarly situated individuals will 

be treated in a similar manner, unless the government can demonstrate an 

appropriate reason to treat those individuals differently.” Id. ¶ 24. “The equal 

protection clause does not forbid the legislature from drawing proper distinctions 

in legislation among different categories of people, but the equal protection clause 

does prohibit the legislature from doing so based on criteria wholly unrelated to the 

legislation’s purpose.” Id.

¶ 55 “Constitutional challenges to statutes under due process and equal protection 

require the same essential analysis.” People v. Alcozer, 241 Ill. 2d 248, 262 (2011). 

“It is the nature of the right affected that dictates the level of scrutiny we employ in 

determining whether the statute meets constitutional requirements.” Id. “If the 

challenged statute implicates a fundamental right or discriminates based on a 

suspect classification of race or national origin, the court subjects the statute to 

‘strict scrutiny’ analysis and will uphold the statute only if it is narrowly tailored to 

serve a compelling State interest.” Id. If a statute does not implicate a fundamental 

right or discriminate based on a suspect class (such as race or national origin), then 

the rational basis test applies. Id.

¶ 56 Plaintiff argues that, because the Illinois Human Rights Act (775 ILCS 5/2-

103.1 (West 2020)) prohibits discrimination by an employer against an individual 

based on his conviction record, a child sex offender is a member of a “protected 

class” and thus strict scrutiny, rather than rational basis, review of the Residency 

Restriction is warranted for an equal protection claim. However, whether an 

individual is a member of a protected class for the purpose of an equal protection 

challenge is a distinct question. “Under an equal protection analysis, suspect 

classifications are based on race or national origin.” Alcozer, 241 Ill. 2d at 262; see 

also Students for Fair Admissions, Inc. v. President & Fellows of Harvard College, 

600 U.S. 181, 206 (2023) (courts apply strict scrutiny for classifications based on 

race, color, and national origin). Convicted sex offenders are not a suspect class. 

See People v. Donoho, 204 Ill. 2d 159, 177 (2003) (“Sexual offense defendants are 

not a suspect class.”); Alcozer, 241 Ill. 2d at 263 (“Prisoners are not a suspect 

class.”). Because we have herein determined that the Residency Restriction does 
- 19 - 

not implicate a fundamental right and does not discriminate based on a suspect 

class, the rational basis test applies, requiring the statute to bear a rational 

relationship to the purpose the legislature intended to achieve by enacting it. See 

Alcozer, 241 Ill. 2d at 262. “If any set of facts can reasonably be conceived to justify 

the classification, it must be upheld.” People v. Botruff, 212 Ill. 2d 166, 177 (2004).

¶ 57 Again, the Residency Restriction satisfies the rational basis test because the 

State has an indisputable legitimate interest in protecting children from sex abuse, 

and it is reasonably conceivable that prohibiting child sex offenders from residing 

within 500 feet of a day care home where children congregate would protect some 

children from such abuse. Nevertheless, the circuit court held that the Residency 

Restriction violated the equal protection clause because “[t]he child sex offender 

living next to a day care home consisting of only 3 qualifying children is treated 

differently than the child sex offender living next door to the family of 5, 7, or 10 

children.” However, contrary to the circuit court’s holding, the statute treats all 

child sex offenders purchasing homes after August 14, 2008, similarly in that all 

are prohibited from living within 500 feet of a day care home. Moreover, as 

previously noted herein, the legislature, in creating a statute, is not required to solve 

all the evils of a particular wrong in one fell swoop. Adams, 144 Ill. 2d at 391. 

Accordingly, the circuit court erred in finding that the Residency Restriction 

violated equal protection principles on this basis. 

¶ 58 In his complaint, plaintiff alleged that the Residency Restriction does not 

survive rational basis review because it allows some child sex offenders to remain 

in their homes depending on when they purchased them and is therefore irrational. 

See 720 ILCS 5/11-9.3(b-10) (West 2018) (“Nothing in this subsection (b-10) 

prohibits a child sex offender from residing within 500 feet of a day care home *** 

if the property is owned by the child sex offender and was purchased before August 

14, 2008 (the effective date of Public Act 95-821).”). 

¶ 59 “A threshold matter in addressing an equal protection claim is determining 

whether the individual claiming an equal protection violation is similarly situated 

to the comparison group.” In re M.A., 2015 IL 118049, ¶ 25. Equal protection does 

not forbid all classifications. Id. Equal protection prevents governmental 

decisionmakers from treating differently persons who are in all relevant respects 

alike. Id. Accordingly, “[w]hen a party bringing an equal protection claim fails to 
- 20 - 

show that he is similarly situated to the comparison group, his equal protection 

challenge fails.” Id. ¶ 26. 

¶ 60 The Residency Restriction passes the rational basis test even though it applies 

to some, but not all, individuals who are convicted of sex crimes. See Adams, 144 

Ill. 2d at 391-92 (Registration Act does not violate equal protection where it applies 

to some, but not all, individuals who are convicted of sex crimes). The Residency 

Restriction does not violate equal protection as applied to the group of sex offenders 

buying their homes prior to 2008 and the group buying their homes subsequent to 

2008 because they are not similarly situated. See also Caulkins, 2023 IL 129453, 

¶¶ 70-71 (rejecting equal protection claim brought by plaintiffs who did not own 

prohibited firearms before challenged law went into effect because they were not 

similarly situated to individuals who did own such firearms and thus had a “reliance 

interest” in previously purchased firearms). 

¶ 61 A child sex offender who purchased a house before the Residency Restriction 

was enacted and one who purchased a house after that are not similarly situated 

because the former purchased his home in reliance on the previously existing law 

but the latter did not. See id. The Residency Restriction is not deemed irrational 

because the General Assembly chose to respect the reliance and property interests 

of child sex offenders who purchased their homes before the Residency Restriction 

went into effect. Accordingly, the circuit court erred in finding that the Residency 

Restriction violated the plaintiff’s equal protection rights. Therefore, we reverse the 

circuit court’s order finding the Residency Restriction facially unconstitutional 

pursuant to plaintiff’s substantive due process and equal protection claims. We 

nevertheless remand the cause to the circuit court for an evidentiary hearing on 

plaintiff’s as-applied constitutional challenges to the Residency Restriction 

pursuant to substantive due process and equal protection. 

¶ 62 B. Plaintiff’s Cross-Appeal

¶ 63 Before the circuit court, defendants moved to dismiss the plaintiff’s operative 

complaint under section 2-619.1 of the Code of Civil Procedure (735 ILCS 5/2-

619.1 (West 2020)), arguing that plaintiff’s negligence claim was subject to 

dismissal as affirmatively barred by sovereign immunity and that plaintiff’s 

remaining claims were legally insufficient. A motion to dismiss under section 2-
- 21 - 

619.1 of the Code of Civil Procedure (id.) “allows a party to combine into one 

pleading motions to dismiss under section 2-615 [citation] and section 2-619 

[citation].” Cahokia Unit School District No. 187 v. Pritzker, 2021 IL 126212, ¶ 23. 

“A motion to dismiss under section 2-615 challenges the legal sufficiency of the 

plaintiff’s claim, while a motion to dismiss under section 2-619 admits the legal 

sufficiency of the claim but asserts defenses or defects outside the pleading to defeat 

the claim.” Id. Under either section, the motion “admits as true all well-pleaded 

facts and all reasonable inferences from those facts,” and the court “must construe 

the pleadings and supporting documents in the light most favorable to the 

nonmoving party.” Id. ¶ 24. This court reviews dismissal under either section 

de novo. Id.

¶ 64 On cross-appeal, plaintiff does not challenge the circuit court’s dismissal of his 

negligence, void for vagueness, proportionate penalties clause, and eighth 

amendment claims. In failing to argue these points on appeal, plaintiff has forfeited 

them. See Ill. S. Ct. R. 341(h)(7) (eff. Oct. 1, 2020) (“Points not argued are forfeited 

***.”). Plaintiff cross-appealed, challenging the dismissal of his remaining 

substantive due process, procedural due process, and ex post facto claims. 

Accordingly, we address those challenges below, accepting as true all well-pleaded 

facts and all reasonable inferences from those facts, including plaintiff’s as-applied

and facial constitutional challenges to the Residency Restriction and other sex 

offender provisions. 

¶ 65 In his complaint, plaintiff alleged that, since his 2003 conviction, he had not 

reoffended and had no other criminal charges or convictions. Plaintiff alleged that 

he had been rehabilitated with no violations and did not possess any recidivist 

characteristics. Plaintiff thus argues that he has lived a lawful life for the last two 

decades and has long passed what is known as the “desistance threshold,” where a 

convicted person’s risk is at the same level as the general population. Plaintiff 

argues that recidivism rates drop steeply for individuals in their fifties and sixties 

so that longer periods of registration and community control are inefficient and 

make it difficult for the public to determine the true risk an individual offender may 

pose. In addition to his remaining substantive due process claims, plaintiff argues 

that, because he is no longer a risk to the public, the sex offender registration, 

notification, presence, and residency provisions violate his right to procedural due 

process and that any postoffense amendments to these provisions violate the 
- 22 - 

prohibition against ex post facto laws. We reject plaintiff’s arguments and affirm 

the circuit court’s dismissal of these claims.

¶ 66 1. Substantive Due Process—Additional 

 Sex Offender Restrictions

¶ 67 Plaintiff’s second amended complaint challenged as a violation of substantive 

due process other “presence restrictions” applying to sex offenders (720 ILCS 5/11-

9.3 (West 2018)), the Registration Act (730 ILCS 150/1 et seq. (West 2018)), the 

Notification Law (730 ILCS 152/101 et seq. (West 2018)), and section 5-5-3(o) of 

the Criminal Code (id. § 5-5-3(o)), which requires individuals convicted of sex 

offenses to annually renew their driver’s licenses. Nevertheless, when considering 

the remainder of the provisions plaintiff asserts violate his fundamental rights, we 

maintain our conclusion that they do not implicate fundamental rights, are 

rationally related to the State’s legitimate goal to protect children, and pass 

constitutional muster, both as applied and facially. See Legoo, 2020 IL 124965, 

¶ 32; Pepitone, 2018 IL 122034, ¶ 14; Cornelius, 213 Ill. 2d at 204; In re J.W., 204 

Ill. 2d at 67. 

¶ 68 “The Registration Act was passed by the General Assembly ‘in response to 

concern over the proliferation of sex offenses against children.’ ” Cornelius, 213 

Ill. 2d at 194 (quoting Adams, 144 Ill. 2d at 386). “By requiring sex offenders to 

register with local law enforcement agencies, ‘the legislature sought to create an 

additional method of protection for children from the increasing incidence of sexual 

assault and sexual abuse.’ ” Id. (quoting Adams, 144 Ill. 2d at 387). “The 

Registration Act was designed to aid law enforcement agencies in allowing them 

to ‘monitor the movements of the perpetrators by allowing ready access to crucial 

information.’ ” Id. (quoting Adams, 144 Ill. 2d at 388). “Similarly, the Notification 

Law, by disseminating the information gathered through the Registration Act, is 

intended to protect the public.” Id.

¶ 69 The Registration Act requires all sex offenders, defined in section 2 of that act 

(730 ILCS 150/2 (West 2018)), to register in person with municipal or county law 

enforcement officials within three days of beginning school or establishing a 

residence, place of employment, or temporary domicile in that municipality or 

county. Id. § 3(a)(1), (a)(2), (b). Pursuant to the Registration Act, the sex offender 
- 23 - 

must provide accurate information that includes a current photograph, current 

address, current place of employment, telephone number, the employer’s telephone 

number, school attended, all e-mail addresses, instant messaging identities, chat 

room identities, all uniform resource locators (URLs) registered or used by the sex 

offender, and all blogs and other Internet sites maintained by the sex offender or to 

which the sex offender has uploaded any content. Id. § 3(a). The sex offender must 

provide information regarding the terms and conditions of parole or release, the 

county of conviction, license plate numbers, age at time of offense, age of victim, 

and any distinguishing marks on the body. Id. 

¶ 70 Pursuant to the Registration Act, a sex offender absent from his current address 

for three or more days shall notify the law enforcement agency of the itinerary for 

travel. Id. A sex offender who lacks a fixed residence must report weekly, in person. 

Id. 

¶ 71 The Registration Act requires a sex offender to pay a $100 initial registration 

fee and a $100 annual renewal fee to the registering law enforcement agency, 

although the fee may be waived if the offender is indigent. Id. § 3(c)(6). The 

registering law enforcement agency enters the information into the Law 

Enforcement Agencies Data System (LEADS). Id. § 8. 

¶ 72 A sex offender subject to the Registration Act is also subject to the provisions 

of the Notification Law. The Notification Law requires the ISP to establish and 

maintain a statewide sex offender database “for the purpose of identifying sex 

offenders and making that information available to the persons” identified in the 

Notification Law. 730 ILCS 152/115(a) (West 2018). 

¶ 73 The ISP must make the information contained in the database accessible on the 

Internet, searchable via a mapping system that identifies registered sex offenders 

living within five miles of an identified address. Id. § 115(b). The information 

contained in the database must be disclosed to entities such as school boards, 

principals, child care facilities, libraries, public housing agencies, the Illinois 

Department of Children and Family Services, social service agencies, volunteer 

organizations providing services to minors, and a victim of a sex offense residing 

in the county where the sex offender is required to register or is employed. Id.

§ 120(a). The ISP, in its discretion, may also disclose the information to any person 

“likely to encounter a sex offender.” Id. § 120(b). Local law enforcement 
- 24 - 

authorities must make the registry information available and “open to inspection by 

the public” in accordance with procedures set forth in the Notification Law. Id.

§ 120(c). 

¶ 74 The Criminal Code includes additional prohibitions for child sex offenders. For 

example, the Criminal Code prohibits a child sex offender’s presence within a 

school zone and prohibits a child sex offender from approaching, contacting, 

residing with, or communicating with a child within certain places. 720 ILCS 5/11-

9.3 (West 2018). The Criminal Code prohibits a child sex offender from knowingly 

being present in “any school building, on real property comprising any school, or 

in any conveyance owned, leased, or contracted by a school to transport students to 

or from school or a school related activity” when children are present, unless he is 

attending a conference at a school concerning his own child. Id. § 11-9.3(a). The 

Criminal Code prohibits a child sex offender from knowingly being present “within 

100 feet of a site posted as a pick-up or discharge stop for a conveyance owned, 

leased, or contracted by a school to transport students to or from school or a school 

or school related activity” when children are present. Id. § 11-9.3(a-5). In addition 

to the Residency Restriction here, the Criminal Code further prohibits a child sex 

offender from knowingly residing “within 500 feet of a school building or the real 

property comprising any school” that children attend (id. § 11-9.3(b-5)) or “within 

500 feet of a playground, child care institution, day care center, part day child care 

facility, *** group day care home, or a facility providing programs or services 

exclusively directed toward” children (id. § 11-9.3(b-10)). 

¶ 75 This court has held that a sex offender does not have a cognizable privacy 

interest in his sex offender registry information and, thus, the provisions of the 

Registration Act and Notification Law, allowing extensive transmission of this 

information, including a sex offender’s photograph and physical attributes via the 

Internet, do not implicate the expanded privacy protections afforded by the Illinois 

Constitution. Cornelius, 213 Ill. 2d at 197. This court in Cornelius concluded that, 

because no fundamental right was implicated by the Internet provisions of the 

Notification Act, strict scrutiny analysis did not apply and the Internet 

dissemination of the sex offender’s data was rationally related to the legislature’s 

purpose to assist law enforcement and protect the public. Id. at 204-05; see also 

In re J.W., 204 Ill. 2d at 67 (rejecting substantive due process challenge to the 

Registration Act by holding that the Registration Act’s provisions do not affect 
- 25 - 

fundamental rights and instead pass constitutional muster under rational basis 

review); Adams, 144 Ill. 2d at 390 (holding that the Registration Act’s registration 

requirements are reasonable and rationally related to the interest of protecting 

children). 

¶ 76 Moreover, this court has held that the presence restriction found in section 11-

9.4-1(b) (720 ILCS 5/11-9.4-1(b) (West 2018)), making it unlawful for a child sex 

offender to knowingly be present in any public park building or on real property 

comprising a public park, does not affect a fundamental right and is rationally 

related to the legislative goal of protecting children from sex offenders. Pepitone, 

2018 IL 122034, ¶ 31 (by keeping child sex offenders away from children, 

legislature rationally sought to avoid giving offenders opportunity to reoffend). 

Likewise, continued use and possession of a driver’s license “is not fundamental in 

the constitutional sense” (People v. Lindner, 127 Ill. 2d 174, 179 (1989)), and 

requiring plaintiff to renew his driver’s license annually (730 ILCS 5/5-5-3(o) 

(West 2018)) is rationally related to the legitimate state interest to assist law 

enforcement in protecting the public. See People v. Pollard, 2016 IL App (5th) 

130514, ¶ 37. 

¶ 77 In briefing before this court, plaintiff argues that, although the statutory text 

prohibiting his presence near schools (720 ILCS 5/11-9.3(a) (West 2018)) is 

neutral, applying to all sex offenders regardless of their religion, it denies him his 

first amendment right to free exercise of religion because he is Catholic, some 

Catholic churches have elementary schools on their grounds, and, therefore, he is 

prohibited from attending church. See Church of Lukumi Babalu Aye, Inc. v. City 

of Hialeah, 508 U.S. 520, 531 (1993) (“In addressing the constitutional protection 

for free exercise of religion, our cases establish the general proposition that a law 

that is neutral and of general applicability need not be justified by a compelling 

governmental interest even if the law has the incidental effect of burdening a 

particular religious practice.”). However, plaintiff did not include this allegation in 

his second amended complaint, and he cannot raise it for the first time on appeal. 

See Haudrich v. Howmedica, Inc., 169 Ill. 2d 525, 536 (1996) (“It is well settled 

that issues not raised in the trial court *** may not be raised for the first time on 

appeal.”). Likewise, although plaintiff argues on appeal that requiring him to notify 

law enforcement if he is temporarily absent from his current address for three or 

more days violates his fundamental right to travel, plaintiff asserted in his second 
- 26 - 

amended complaint only that the “residency restrictions” interfered with his right 

to intrastate travel. See 730 ILCS 150/3(a) (West 2018). He has therefore forfeited 

this argument as well.

¶ 78 Plaintiff also argues that his fundamental liberty interest in raising and caring 

for his children is being infringed through the additional provisions preventing him 

from, inter alia, attending his children’s school activities or taking his children to 

tutoring services or any pediatric medical or dental professional. See 720 ILCS 

5/11-9.3(a), (b-2), (c) (West 2018). Plaintiff asks that we overrule our previous 

decision in Legoo, 2020 IL 124965, wherein we rejected a similar challenge. We 

decline plaintiff’s request.

¶ 79 In Legoo, 2020 IL 124965, ¶ 1, the defendant was convicted of a misdemeanor 

of being a child sex offender in a public park. The defendant testified that his 

fiancée was out of town, no one else was available to retrieve his son from the park 

that night, and he spent less than five minutes in the park. Id. ¶ 6. Accordingly, the 

defendant argued that the provision of the Criminal Code prohibiting his presence 

in a public park (720 ILCS 5/11-9.4(b) (West 2016)) deprived parents who have 

been convicted of child sex offenses of their constitutional right to the society of 

their children and, as applied, violated his fundamental right to be present with his 

child. Legoo, 2020 IL 124965, ¶ 28. This court rejected the defendant’s argument, 

holding that, because defendant did not have a fundamental liberty interest to be 

present in a park, it follows that he did not have a fundamental right to take his child 

to a park either. Id. ¶ 32. This court held that, even if the defendant had no one 

available to help retrieve his son from the park, he could have called the police 

department for assistance rather than entering the park himself in violation of 

Illinois law. Id. ¶ 34. Thus, this court concluded that the prohibition as written did 

not interfere with defendant’s fundamental liberty interest in raising and caring for 

his child. Id. ¶ 35. 

¶ 80 Plaintiff asserts no compelling reason to depart from our holdings that the 

provisions at issue pass constitutional muster. Accordingly, we affirm the circuit 

court’s dismissal of plaintiff’s alternative as-applied and facial constitutional 

claims that asserted these additional restrictions violated his substantive due 

process rights.
- 27 - 

¶ 81 2. Procedural Due Process

¶ 82 Plaintiff included procedural due process claims in count II of his second 

amended complaint. “Procedural due process claims challenge the constitutionality 

of the specific procedures used to deny a person’s life, liberty, or property.” 

Cardona, 2013 IL 114076, ¶ 15. “The fundamental requirements of due process are 

notice of the proceeding and an opportunity to present any objections.” Id. “Due 

process is a flexible concept, and ‘ “not all situations calling for procedural 

safeguards call for the same kind of procedure.” ’ ” People ex rel. Birkett v. 

Konetski, 233 Ill. 2d 185, 201 (2009) (quoting Lyon v. Department of Children & 

Family Services, 209 Ill. 2d 264, 272 (2004), quoting Morrissey v. Brewer, 408 

U.S. 471, 481 (1972)). 

¶ 83 “When a fundamental right or suspect classification based upon race or national 

origin is involved, strict scrutiny analysis applies” to a procedural due process 

claim. In re M.A., 2015 IL 118049, ¶ 36. “When a fundamental right or suspect 

classification is not involved, the rational basis standard applies.” Id. This court has 

found “no compelling reason to interpret the Illinois due process clause to provide 

greater protection than its federal counterpart.” Id. ¶ 38. 

¶ 84 Plaintiff argues that the Residency Restriction and the other specified 

provisions applicable to sex offenders amount to a violation of his procedural due 

process rights because they are based on an “irrebuttable presumption” that he 

remains a grave danger to society. See People v. Pomykala, 203 Ill. 2d 198 (2003) 

(jury instruction on reckless homicide statute that created an unconstitutional 

mandatory presumption of recklessness violated defendant’s due process rights). 

As noted by defendants, plaintiff conflates the policy reason behind the sex offender 

provisions with a legally binding presumption applicable in a judicial proceeding. 

See People v. Woodrum, 223 Ill. 2d 286, 308 (2006) (mandatory presumption 

requiring factfinder in judicial proceeding to presume existence of an element of an 

offense is unconstitutional because it conflicts with the presumption of innocence). 

Nevertheless, plaintiff devotes much of his argument on appeal disputing this 

“irrebuttable presumption,” arguing that, because there is no process for judicial 

review to measure individual risk of recidivism for the continued imposition of the 
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statutory scheme, the sex offender registration, notification, presence, and 

residency provisions violate his right to procedural due process. Plaintiff argues 

that he is denied procedural due process of law absent the opportunity to rebut the 

presumption that he will reoffend.

¶ 85 In response to plaintiff’s argument, we find persuasive the analysis of the 

Appellate Court, First District, in People v. Avila-Briones, 2015 IL App (1st) 

132221. In Avila-Briones, the appellate court was asked to revisit the 

constitutionality of the Registration Act (730 ILCS 150/1 et seq. (West 2012)), the 

Notification Law (730 ILCS 152/101 et seq. (West 2012)), and other statutes 

applicable to sex offenders, including residency, employment, and presence 

restrictions. Avila-Briones, 2015 IL App (1st) 132221, ¶ 1. The Avila-Briones court 

rejected the sex offender defendant’s contention that these provisions violated 

substantive due process, finding they did not affect fundamental rights enshrined in 

the substantive due process clause and were rationally related to the goal of 

protecting the public from the possibility that sex offenders will commit new 

crimes. Id. ¶ 2. The Avila-Briones court also held that the defendant was not entitled 

to additional procedures to evaluate his risk of reoffending where his risk of 

reoffending was irrelevant to his status as a sex offender under Illinois law. Id.

¶ 86 The court in Avila-Briones cited the United States Supreme Court’s decision in 

Connecticut Department of Public Safety v. Doe, 538 U.S. 1 (2003), wherein the 

United States Supreme Court addressed a similar due process challenge to the 

provisions of Connecticut’s sex offender registry law requiring the posting of sex 

offender registry information on the Internet, thereby making the registry available 

to the public. The convicted sex offender in that case argued that Connecticut’s 

registration law violated his right to due process because he was not a dangerous 

sexual offender and, thus, the law deprived him of a liberty interest—his reputation 

combined with alteration of his status under state law—without notice or a 

meaningful opportunity to be heard. Id. at 6. The Supreme Court held that a party 

asserting a right to a hearing under the due process clause must show that the facts 

the party seeks to establish in that hearing are relevant under the statutory scheme. 

Id. at 8. 

¶ 87 The Supreme Court held that because Connecticut’s sex-offender registration 

system turned on an offender’s conviction alone—“a fact that a convicted offender 
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has already had a procedurally safeguarded opportunity to contest”—Connecticut 

was not required to hold a hearing regarding current dangerousness before requiring 

registration. Id. at 7. Because only the conviction was relevant to the disclosure of 

the registrants’ information, the Supreme Court held that a hearing on current 

dangerousness would be a “bootless exercise” because current dangerousness was 

“of no consequence.” Id. at 7-8. Accordingly, the Supreme Court held due process 

did not entitle the registrants to a hearing to prove an element that had no relevance 

to their registration or a fact that was not material under the Connecticut statute. Id.

at 7.

¶ 88 Noting that Illinois’s system, like Connecticut’s, is based entirely on the offense 

for which a sex offender has been convicted, the First District likewise held in 

Avila-Briones that a sex offender’s likelihood to reoffend was not relevant to the 

assessment. Accordingly, the court held that the defendant had no right to a 

procedure to prove a fact that had no relevance to his registration. Avila-Briones, 

2015 IL App (1st) 132221, ¶ 92. 

¶ 89 We agree with this analysis. Plaintiff is prohibited from residing within 500 feet 

of a day care home by virtue of his conviction. See 720 ILCS 5/11-9.3(b-10) (West 

2018) (prohibiting child sex offender from residing within 500 feet of day care 

home); id. § 11-9.3(d)(1)(A) (defining “child sex offender” as any person who has 

been “charged under Illinois law *** with a sex offense” and is “convicted of such 

offense”). Likewise, he is subject to registration, notification, presence, and other 

residency restrictions by virtue of his conviction alone. See id. § 11-9.3; 730 ILCS 

150/1 et seq. (West 2018); 730 ILCS 152/101 et seq. (West 2018); see also 730 

ILCS 5/5-5-3(o) (West 2018)). Plaintiff’s dangerousness or likelihood to reoffend 

is irrelevant to his subjection to these provisions, which are triggered based on his 

conviction. Accordingly, plaintiff does not have a due process right to a hearing to 

establish a fact that is not relevant or material under Illinois law. See In re M.A., 

2015 IL 118049, ¶¶ 47-48 (like the Connecticut statute, Violent Offender Act 

requires violent offenders against youth to register based on fact of adjudication or 

conviction; current dangerousness is not relevant or material to the duty to register 

under the Violent Offender Act, and thus, registrant does not have a due process 

right to a hearing to establish a fact that is not relevant or material under Illinois 

law). 
- 30 - 

¶ 90 Plaintiff suggests that the provisions at issue may be overinclusive, imposing 

burdens on sex offenders like himself who pose no threat to the public because they 

will not reoffend. However, as noted herein, the provisions have a rational 

relationship to protecting the public. The Registration Act, the Notification Law, 

and the annual driver’s license requirements help law enforcement track sex 

offenders for purposes of public safety (Cornelius, 213 Ill. 2d at 205; In re J.W., 

204 Ill. 2d at 67-68), and the presence and residency restrictions keep sex offenders 

away from areas where children congregate (e.g., school property, day care homes, 

and playgrounds) to avoid giving offenders the opportunity to reoffend. Whether or 

not these provisions are “finely tuned response[s] to the threat of sex offender 

recidivism is not a question for rational basis review; that is a question for the 

legislature.” See Avila-Briones, 2015 IL App (1st) 132221, ¶ 84. 

¶ 91 Accordingly, plaintiff has failed to sufficiently allege a violation of procedural 

due process as applied to him, and it follows that he has failed to allege facial 

unconstitutionality on this basis. See In re M.A., 2015 IL 118049, ¶ 49. Thus, the 

circuit court properly dismissed this claim as well.

¶ 92 3. Ex Post Facto Claims

¶ 93 Plaintiff also argues that the registration, notification, presence, and residency 

restrictions violate the ex post facto clauses of the Illinois and United States

Constitutions. Ill. Const. 1970, art. I, § 16; U.S. Const., art. I, §§ 9, 10. Plaintiff 

argues that since he pleaded guilty to his crime, the statutory scheme has been 

amended to include more burdensome requirements and constraints and that these 

provisions are retroactive in nature and constitute punishment in violation of the 

ex post facto constitutional provisions. Defendants counter that the circuit court 

properly dismissed plaintiff’s ex post facto claim because the amendments to the 

registration, notification, presence, and residency provisions do not impose 

punishment on plaintiff. We agree with defendants.

¶ 94 Retroactive application of a law that inflicts greater punishment than did the 

law that was in effect when the crime was committed is forbidden by the 

ex post facto clauses of the United States Constitution and Illinois Constitution. See 

U.S. Const., art. I, §§ 9, 10; Ill. Const. 1970, art. I, § 16. “The ex post facto

provisions restrain a legislative body from enacting arbitrary or vindictive 
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legislation, and assure[ ] that statutes provide fair warning of their effect.” 

Cornelius, 213 Ill. 2d at 207. “A law is considered ex post facto if it is both 

retroactive and disadvantageous to the defendant.” Id. A law is retroactive if it 

applies to events that occurred before the law was enacted. Lynce v. Mathis, 519 

U.S. 433, 441 (1997). “A defendant is disadvantaged by a law if that law 

criminalizes an act that was innocent when performed, increases the punishment 

for a previously committed offense, or alters the rules of evidence by making a 

conviction easier.” Cornelius, 213 Ill. 2d at 207. 

¶ 95 “Our court ‘has long interpreted our own [ex post facto] provision in step with 

Supreme Court pronouncements.’ ” Id. (quoting Barger v. Peters, 163 Ill. 2d 357, 

360 (1994)). “Accordingly, the Illinois ex post facto clause does not provide any 

greater protection than that offered by the United States Constitution.” Id. “This 

court, in interpreting the ex post facto prohibition in the Illinois Constitution, looks 

to the United States Supreme Court’s interpretation of the federal prohibition.” 

Fletcher v. Williams, 179 Ill. 2d 225, 229 (1997). 

¶ 96 In his second amended complaint, plaintiff asserted that the Registration Act 

and the Notification Law violate the prohibition against ex post facto laws. 

However, the Registration Act and the Notification Law were in effect when 

plaintiff committed aggravated sexual abuse against a minor in 2002 (see 730 ILCS 

150/1 et seq. (West 2002); 730 ILCS 152/101 et seq. (2002)), and thus, many of 

their provisions are not being applied retroactively in violation of the prohibition 

against ex post facto laws. At the time of plaintiff’s offense, the Criminal Code 

included presence and residency restrictions. See 720 ILCS 5/11-9.3(a) (West 

2002) (prohibiting presence in school building); id. § 11-9.3(b-5) (prohibiting 

residing within 500 feet of a school building); see also id. § 11-9.4(a) (prohibiting 

presence in public park building or on real property comprising public park when 

children are present and approaching child unless offender is a parent); id. § 11-

9.4(b-5) (prohibiting residing within 500 feet of “a playground or a facility 

providing programs or services exclusively directed” toward children); (id. § 11-

9.4(c) (prohibiting knowing association or presence “at any facility providing 

programs or services exclusively directed towards” children). 

¶ 97 At the time of plaintiff’s offense, the Registration Act provided that a sex 

offender, within 10 days of beginning school or reestablishing a residence, 
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placement of employment, or temporary domicile, register in person with a 

municipality or county sheriff, providing his current address, current place of 

employment, school attended (730 ILCS 150/3 (West 2002)), and photograph (id.

§ 8). The sex offender was required to pay a $10 initial registration fee and a $5 

annual renewal fee. Id. § 3(c)(6). 

¶ 98 At that time, like the current law, the Notification Law provided that the ISP

establish and maintain a statewide database created from LEADS, making the 

information contained accessible on the Internet. 730 ILCS 152/115 (West 2002). 

Law enforcement was required to disclose the sex offender information to the 

boards of institutions of higher education, school boards, principals, and childcare 

facilities. Id. § 120. 

¶ 99 On appeal, plaintiff references “ever increasing requirements” that amount to 

retroactive punishment in violation of the ex post facto clauses but fails to specify 

how the subsequently added or amended provisions amount to retroactive 

punishment against him in light of established law. See Ill. S. Ct. R. 341(h)(7) (eff. 

Oct. 1, 2020) (“Points not argued are forfeited ***.”); see also People ex rel. Illinois 

Department of Labor v. E.R.H. Enterprises, 2013 IL 115106, ¶ 56 (“a reviewing 

court is not simply a depository into which a party may dump the burden of 

argument and research”). Nonetheless, in his complaint, plaintiff alleged as 

punishment the Residency Restriction (720 ILCS 5/11-9.3(b-10) (West 2018)) and 

the amendments barring him from all parks, forest preserves, and conservation 

areas at all times even if he has a child there (id. § 11-9.4-1); increasing his yearly 

sex offender registration fee from $10 to $100, although the fee may be waived if 

the offender is indigent (730 ILCS 150/3(c)(6) (West 2018)); increasing the amount 

of information he must provide to law enforcement to include all e-mail addresses, 

Internet messaging identities, chat room identities, all URLS, and all blogs and 

Internet sites (id. § 3(a)); reducing the amount of time to register with law 

enforcement officials from 10 days to 3 days (id. § 3(a)(1), (a)(2), (b)); and 

requiring him to renew his driver’s license annually (730 ILCS 5/5-5-3(o) (West 

2018)). 

¶ 100 To consider whether these amended sex offender registration, notification, 

presence, and residency provisions constitute retroactive punishment forbidden by 

the prohibition against ex post facto laws, the Supreme Court directed that we must 
- 33 - 

“ ‘ascertain whether the legislature meant the statute to establish “civil” 

proceedings.’ ” Smith v. Doe, 538 U.S. 84, 92 (2003) (quoting Kansas v. Hendricks, 

521 U.S. 346, 361 (1997)). If the legislature intended to impose punishment, that 

ends the inquiry. Id. However, if the legislature intended to enact a regulatory 

scheme that is civil and nonpunitive, we must examine whether the scheme is so 

punitive in purpose or effect that the State’s intention to deem it civil is negated. Id. 

¶ 101 In Smith, the United States Supreme Court addressed whether Alaska’s Internet 

sex offender registration statute was an impermissible ex post facto statute. Guided 

by relevant factors noted in Kennedy v. Mendoza-Martinez, 372 U.S. 144, 168-69 

(1963) (whether regulatory scheme has been regarded in history as punishment, 

imposes affirmative disability or restraint, promotes traditional aims of punishment, 

has rational connection to nonpunitive purpose, or is excessive with respect to its 

purpose), the Supreme Court rejected arguments that Alaska’s sex offender 

registration and notification provisions, most particularly the Internet notification 

provisions, resembled shaming punishments of the colonial period. Smith, 538 U.S. 

at 98 (even punishments that lacked corporal component, such as public shaming, 

involved more than the dissemination of information because they either involved 

face-to-face shaming or expulsion from the community). The Supreme Court 

explained that in contrast to traditional “shaming” punishments that subjected 

individuals to public ridicule, a sex offender’s stigma results from dissemination of 

truthful information about his criminal record, most of which is already available 

to the public. Id. The Supreme Court held that Alaska’s statutory scheme also did 

not subject sex offenders to an affirmative disability or restraint because they 

remained free to change jobs or residences. Id. at 100. 

¶ 102 In Smith, the Supreme Court further held that Alaska’s statutory scheme did not 

promote traditional aims of punishment but instead maintained a rational 

connection to a legitimate nonpunitive purpose of public safety, which was 

advanced by notifying the public of the presence of sex offenders in their 

community. Id. at 102-03 (“A statute is not deemed punitive simply because it lacks 

a close or perfect fit with the nonpunitive aims it seeks to advance.”). The Supreme 

Court held that a statute’s rational connection to a nonpunitive purpose is a 

“ ‘[m]ost significant’ ” factor in the determination of whether the statute’s effects 

are punitive. Id. at 102 (quoting United States v. Ursery, 518 U.S. 267, 290 (1996)). 

The Supreme Court also held that Alaska’s regulatory scheme was not excessive 
- 34 - 

with respect to its purpose, noting that “[t]he Ex Post Facto Clause does not 

preclude a State from making reasonable categorical judgments that conviction of 

specified crimes should entail particular regulatory consequences.” Id. at 103-04 

(state’s determination to legislate with respect to convicted sex offenders as a class, 

rather than require individual determination of their dangerousness, does not make 

the statute a punishment under the ex post facto clause).

¶ 103 In rejecting the argument that posting sex offender registry information on the 

Internet constituted punishment, the United States Supreme Court stated: 

“Our system does not treat dissemination of truthful information in furtherance 

of a legitimate governmental objective as punishment. On the contrary, our 

criminal law tradition insists on public indictment, public trial, and public 

imposition of sentence. Transparency is essential to maintaining public respect 

for the criminal justice system, ensuring its integrity, and protecting the rights 

of the accused. The publicity may cause adverse consequences for the convicted 

defendant, running from mild personal embarrassment to social ostracism. *** 

[H]owever, the State does not make the publicity and the resulting stigma an 

integral part of the object of the regulatory scheme. 

The fact that Alaska posts the information on the Internet does not alter our 

conclusion. It must be acknowledged that notice of a criminal conviction 

subjects the offender to public shame, the humiliation increasing in proportion 

to the extent of the publicity. And the geographic reach of the Internet is greater 

than anything that could have been designed in colonial times. These facts do 

not render Internet notification punitive. The purpose and the principal effect of 

notification are to inform the public for its own safety, not to humiliate the 

offender. Widespread public access is necessary for the efficacy of the scheme, 

and the attendant humiliation is but a collateral consequence of a valid 

regulation.” Id. at 98-99. 

¶ 104 When faced with a challenge by a sex offender first subject to registration under 

an initial version of the Registration Act applied retroactively to him, this court held 

that, because the Registration Act and Notification Law do not amount to 

punishment, their provisions do not violate the constitutional prohibitions against 

ex post facto laws. People v. Malchow, 193 Ill. 2d 413, 418-24 (2000). Thereafter, 

informed by the analysis of the Supreme Court in Smith, this court also concluded 
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that allowing information gathered pursuant to the Registration Act and 

Notification Law to be disclosed to a wider public via the Internet does not violate 

the constitutional prohibitions against ex post facto laws. Cornelius, 213 Ill. 2d at 

208-09 (Illinois registration provisions are similar to those of the Alaska act). 

Subsequently, this court reiterated that the Registration Act’s requirements do not 

constitute punishment and, thus, an increase in the length of a minor’s registration 

term to lifetime does not convert a nonpunitive regulatory measure into punishment 

in violation of the constitutional prohibitions against ex post facto laws. Konetski, 

233 Ill. 2d at 210; see also In re J.W., 204 Ill. 2d at 73-76 (the Registration Act and 

the Notification Law deemed not punishment as applied to juvenile classified as 

sexual predator); Adams, 144 Ill. 2d at 386-90 (requiring sex offenders to register 

is not punishment). 

¶ 105 Guided by this precedent, we reject plaintiff’s arguments that the Registration 

Act and Notification Law are punitive in nature or that the in-person reporting 

requirements amount to direct restraint. See Malchow, 193 Ill. 2d at 421 

(notification law places no affirmative disability or restraint on sex offenders where 

their movements and activities are not restricted in any way); Adams, 144 Ill. 2d at 

387 (duty to register imposes no restraints on liberty or property and is not 

punishment). Moreover, with regard to plaintiff’s ex post facto claims involving the 

Residency Restriction, we find persuasive the federal court’s analysis in Vasquez

finding the Illinois provisions prohibiting child sex offenders from living within 

500 feet of child day care homes and group day care homes (720 ILCS 5/11-9.3(b5), (b-10) (West 2016)) nonpunitive. Vasquez, 895 F.3d 515, overturned on other 

grounds by Koch, 43 F.4th at 756 (overturning Vasquez’s ruling governing 

retroactivity inquiry of ex post facto analysis). 

¶ 106 Similar to the plaintiff here, when the sex offenders in Vasquez updated their 

registrations, the Illinois statute had been amended to add child day care homes and 

group day care homes to the list of places included in the 500-foot residential buffer 

zone (see 720 ILCS 5/11-9.3(b-10) (West 2016)). Vasquez, 895 F.3d at 517. In 

Vasquez, the child sex offenders were told they had to move within 30 days. Id.

They alleged that they were unable to find suitable and affordable housing, that 

their children’s school would be disrupted if they were required to move outside 

the school district, and that they could not afford to move into compliant housing. 

Id. at 518-19. 
- 36 - 

¶ 107 The Seventh Circuit Court of Appeals rejected their ex post facto challenge, 

concluding that the Illinois residency statute was similar to the sex-offender 

registration statute in Smith and was likewise a nonpunitive civil regulatory scheme. 

Id. at 521. The Vasquez court concluded that the Residency Restriction did not 

shame child sex offenders to inflict public disgrace or to chase them out of the 

community and that it did not resemble banishment. Id. The Vasquez court held that 

the Residency Restriction “merely keeps child sex offenders from living in very 

close proximity to places where children are likely to congregate; it does not force 

them to leave their communities.” Id. The Vasquez court, following Smith, further 

concluded that the Residency Restriction could not be compared to probation or 

supervised release, noting that offenders remain free to move where they wish and 

to live and work as other citizens with no supervision. Id.; see also Smith, 538 U.S. 

at 101. 

¶ 108 Noting that a child sex offender may have difficulty finding suitable compliant 

housing in his neighborhood and that including child day care homes within a 500-

foot buffer zone creates some unpredictability because a private residential property 

can become a day care home without anyone in the neighborhood noticing, the 

Vasquez court nevertheless held that the Residency Restriction imposes no physical 

restraint and does not resemble the punishment of imprisonment, which is the 

“ ‘paradigmatic affirmative disability or restraint.’ ” Vasquez, 895 F.3d at 522 

(quoting Smith, 538 U.S. at 100). The Vasquez court further concluded that the 

Residency Restriction is clearly not retributive and that the aim of the statute is to 

protect children from the danger of recidivism by convicted child sex offenders. Id.

(citing Smith, 538 U.S. at 102). 

¶ 109 The Vasquez court explained that, even if it accepted as true the assertion that 

sex offenders do not reoffend more than other criminals, “similar recidivism rates 

across different categories of crime would not establish that the nonpunitive aim of 

this statute—protecting children—is a sham.” Id. The Vasquez court concluded that 

the Residency Restriction raised no ex post facto concerns. Id.

¶ 110 We agree with this analysis. The Residency Restriction does not resemble the 

historical punishment of banishment, does not resemble imprisonment, is not 

intended as retribution, bears a reasonable relationship to the rational nonpunitive 

purpose of keeping children safe from child predators, promotes a reasonable 
- 37 - 

method of accomplishing that goal, and is not excessive to its purpose. See also 

People v. Morgan, 377 Ill. App. 3d 821 (2007) (residency restricting prohibiting 

child sex offender from residing within 500 feet of a school building that children 

attended did not constitute an impermissible ex post facto law, even though statute 

punished defendant for the original sex offense that occurred before the enactment 

of the statute); Leroy, 357 Ill. App. 3d at 539-40 (residency restriction restricting 

child sex offenders from residing within 500 feet of a playground or a facility 

providing programs or services exclusively directed toward children was not so 

punitive that it negated the state’s attempt to craft civil restrictions and, thus, did 

not constitute an unconstitutional ex post facto law). 

¶ 111 Plaintiff requests this court to reapply the Mendoza-Martinez framework to the 

amended statutory scheme applying to sex offenders. However, this court and the 

United States Supreme Court have considered similar provisions and concluded 

that they do not inflict punishment. Smith, 538 U.S. at 97-103; Cornelius, 213 Ill. 

2d at 208-09. Sex offender registration is a regulatory scheme designed to foster 

public safety (see Cardona, 2013 IL 114076, ¶ 24 (“sex offender registration is not 

punishment”)), and the presence and residency restrictions are designed to do the 

same by keeping congregating children safe from reoffending sex offenders. 

Plaintiff asserts no compelling reason why the amendments at issue change the 

analysis or warrant application of these factors anew.

¶ 112 Plaintiff argues that the more restrictive provisions promote the traditional aims 

of punishment because they promote general deterrence through the threat of 

negative consequences, i.e., living restrictions, presence restrictions, travel 

restrictions, loss of privacy, and humiliation. However, “[a]ny number of 

governmental programs might deter crime without imposing punishment.” Smith, 

538 U.S. at 102. To hold that the presence of a deterrent purpose renders a 

restriction punishment “ ‘would severely undermine the [g]overnment’s ability to 

engage in effective regulation.’ ” Id. (quoting Hudson v. United States, 522 U.S. 

93, 105 (1997)). Instead, the statutory scheme involving sex offenders and child 

sex offenders has a nonpunitive purpose of public safety, which is advanced by 

alerting the public to the risk of sex offenders in their community and creating a 

buffer between sex offenders and congregations of children. Accordingly, plaintiff 

has failed to sufficiently allege an as-applied or facial violation of the ex post facto

provisions of the federal and state constitutions. See In re M.A., 2015 IL 118049, 
- 38 - 

¶ 49. 

 

¶ 113 III. CONCLUSION

¶ 114 In sum, we vacate the portion of the circuit court’s orders entering a permanent 

injunction on the basis that the Residency Restriction was unconstitutional as 

applied to plaintiff. We find that the circuit court prematurely held the Residency 

Restriction unconstitutional as applied to plaintiff, considering it had no evidence 

before it to do so. We therefore remand the cause to the circuit court to hear 

evidence on plaintiff’s as-applied constitutional allegations and to conduct further 

proceedings consistent with this opinion. 

¶ 115 We hereby reverse the portion of the circuit court’s orders finding the 

Residency Restriction facially unconstitutional and granting plaintiff permanent 

injunctive relief on this basis. 

¶ 116 We affirm the portion of the circuit court’s orders dismissing plaintiff’s 

remaining claims. 

¶ 117 Circuit court judgment affirmed in part, reversed in part, and vacated in part. 

¶ 118 Cause remanded.

¶ 119 JUSTICE NEVILLE took no part in the consideration or decision of this case.