Opinion ID: 1841590
Heading Depth: 2
Heading Rank: 4

Heading: Wisconsin Constitutional Claims

Text: ¶ 18. Wahl also contends that he is excused from complying with the subpoena because Article IV, Section 16 of the Wisconsin Constitution provides that [n]o member of the legislature shall be liable in any civil action, or criminal prosecution whatever, for words spoken in debate. It is Wahl's position that according to State v. Beno, 116 Wis. 2d 122, 341 N.W.2d 668 (1984), he is entitled to raise Section 16 as a defense to the subpoena, even though the communications are not his, because he is the agent of the legislators who could raise that defense. On the other hand, the State asserts that the John Doe proceeding is an investigation of alleged criminal activity that is not closely related to the purpose for which Section 16 was enacted; therefore, Section 16 is no defense. ¶ 19. For the purpose of our discussion, we shall assume that Wahl could argue correctly that he can assert any defense that might be available to a legislator under Article IV, Section 16. However, given the state of the record before us, we cannot determine whether constitutionally permissible criminal charges are under investigation in the John Doe proceeding or whether the allegations are intertwined with duties the legislators were elected to perform. Accordingly, we cannot determine how Section 16 relates to the subpoena duces tecum. Furthermore, we conclude that even when Section 16 does apply, it provides only use immunity, i.e., immunity from prosecution based on use of the communications, and not secrecy, for communications of government officials and employees. ¶ 20. Section 16 is one of several provisions in Wisconsin's constitution that protects the independent functioning of the legislative branch. It ensures that legislators are not distracted from nor hindered by other overly aggressive branches of government or by private litigants, as they perform the tasks for which they were elected. Beno, 116 Wis. 2d at 142. Indeed, we have recognized that calling legislators into court to defend actions they have taken in the course of their official duties could impede their legislative functions. Id. Furthermore, Article IV, Section 16's immunity, where it does exist, is not grounded solely in words spoken on the floor of the Assembly or the Senate. Rather, Section 16 reaches matters that are an integral part of the processes by which members of the legislature participate with respect to the consideration of proposed legislation or with respect to other matters which are within the regular course of the legislative process. Id. at 143-44. ¶ 21. Article IV, Section 16 protects the legislator not only from adverse judgments but also from questioning in a judicial proceeding. Id. at 142. However, as we have explained before: The constitution literally protects the member from liability for words spoken in debate. The clause thus focuses upon matters occurring in legislative deliberations. ... The principle accorded legislators by [S]ection 16 exists only to the extent necessary for the adequate functioning of the state legislative body. Id. Notwithstanding these substantial protections, Section 16 does not endow a legislator with unlimited absolute personal immunity from substantive liability or from any obligation to testify in a judicial proceeding. Id. at 143. For example, Section 16 may not always provide a safe haven for a legislator who has committed a criminal or an unconstitutional act, even if done during the course of his official duties. Id. at 143 n.6. ¶ 22. As set forth above, our past examinations of Section 16 focused on use, or potential use, of constitutionally protected communications. However, Wahl seems to argue that Section 16's protections go beyond prohibiting use and also create a privilege to prevent disclosure. Wahl develops no legal argument to support that contention. The only case he cites in regard to Section 16 is Beno. But as we have explained, Beno concludes that the purpose of Section 16 is to limit the use that may be made of words spoken in debate. It grants immunity for those tasks undertaken in fulfillment of the legislator's constitutional functions so as not to chill the legislator's efforts on behalf of the electorate. Id. at 142. However, Beno does not address attempts to keep legislative communications secret. ¶ 23. Because Wisconsin has a long history of open government that is now provided by statute as well as case law, Wis. Stat. §§ 19.31 to 19.39; Linzmeyer v. Forcey, 2002 WI 84, 254 Wis. 2d 306, 646 N.W.2d 811, and because we choose not to develop this argument for Wahl, Truttschel v. Martin, 208 Wis. 2d 361, 560 N.W.2d 315 (Ct. App. 1997), we conclude that in this case, if it is later determined that Article IV, Section 16 applies to communications within the possession of the LTSB, it provides only use immunity, not a right to keep all legislative communications secret. [8]