Clearinghouse Rule 14-001
The Wisconsin Department of Administration proposes to amend Chapter Adm 2 relating to the Use of State Buildings and Facilities
Analysis Prepared by the Department of Administration
1. Statute interpreted: s. 16.846, Stats.
2. Statutory authority: ss. 16.004 (1), 16.846 (1) (a) and 227.11, Stats.
3. Explanation of agency authority:
The department is the managing authority of numerous state properties and is required to “Have charge of, operate and maintain . . . the state capitol building . . . and such other state properties as are designated by law.” s. 16.84 (1), Stats. “The department shall promulgate under ch. 227, and shall enforce or have enforced, rules of conduct for property leased or managed by the department.” S. 16.846 (1), Stats. Additionally, “the managing authority of any facility owned by the state . . . may permit its use for free discussion of public questions, or for civic, social or recreational activities.” s. 16.845 (1), Stats. Further, “Whoever does or attempts an act for which a permit is required under this section without first obtaining a permit may be fined . . . or imprisoned . . . or both.” S. 16.845 (1), Stats.
4. Related statute or rule: s. 16.84, Stats., and ch. Adm 2
5. Summary of Proposed Rule:
The objective of the rule is to obtain compliance regarding use of State facilities, including the capitol building. This objective will be achieved by codifying historical department practices and more clearly detailing certain provisions of the administrative code as informed by judicial interpretations.
Section 1 codifies the historical practice of the state capitol police in enforcing the law in legislative areas upon invitation by the Legislature. See 1971 Act 183.
Section 2 codifies historical categories of permits granted by the Wisconsin state capitol police, defines the categories, and defines “spontaneous event,” which is a mechanism allowing for expressive activity in response to unforeseen and newsworthy events.
Section 3 makes clear that although the Wisconsin state capitol police may enforce the law in any area of the building, at the invitation of the legislature, the legislature retains management authority over areas reserved for its use in the capitol building. Additionally, section 3 codifies the historical practice of the Wisconsin state capitol police of granting permits to any person, and not only to any “governmental body or official, or any nonprofit, fraternal, religious, or veterans’ organization.”
Section 4 codifies historical practices with respect to the grant and denial of permits, and extends those same protections to the new category of events held under advance notices, as providing such protections naturally arises out of the recent settlement agreement. Further, section 4 creates as categories of use ‘spontaneous events’ and ‘advance notices’ for the reasons set forth above. Moreover, section 4 allows for use of the capitol building’s rotunda by 12 or fewer persons without notice and without constituting a “spontaneous event” within the meaning of this chapter. Finally, section 4 codifies the department’s policy on severance clauses and appeal procedure.
Section 5 codifies the historical practice of the Wisconsin state capitol police of resolving conflicts of use on a first-come first-served basis. This section provides that the department may publish content-neutral guidance limiting or explaining any potential imposition of charges arising out of the use of State facilities. The section codifies the historical practice of the Wisconsin state capitol police of not discriminating on the basis of sexual orientation in the use management of State facilities.
Section 6 provides that permitting requirements for exhibits shall not be applied to persons who simply wear clothing bearing an expressive message, or who simply hold signs bearing an expressive message, provided that the sign is of a certain size.
Section 7 clarifies that a person who creates a hazardous condition is subject to citation under the existing code. Section 7 further clarifies that hazardous conditions can be created by the deployment of not only holiday trees and holiday decorations, but by similar exhibit items that are not related to a holiday.
Section 8 clarifies that there is no conflict between s. Adm 2.08 (1) and s. Adm 2.11, in accordance with standard rules of legal interpretation, and places a reasonable limitation on the retention of items by the Wisconsin state capitol police.
Section 9 clarifies existing prohibitions against conducting or participating in events occurring without permits. Prohibition against participating in events is redefined in accordance with recent settlement. Clarity to the sub-section is sought by separating the violations for conducting such events from violations for participating in such events into separate sub-sections. The potential offense of occupying space is clarified by removing excess language from the paragraph. Additionally, introductory statements, which do not constitute elements leading to a citation, are moved to the appropriate introductory clause for the section.
Section 10 continues the attempt to clarify existing prohibitions against unauthorized events by simplifying the arrangement and using newly defined terms. Section 10 also improves protections for the public by eliminating an alternative rationale for prosecution.
Section 11 also continues the attempt to clarify existing prohibitions by eliminating language that, substantively, is now located in other portions of this sub-section. The result is a sub-section that is less complicated to read and interpret.
6. Summary of and comparison with, existing or proposed federal regulations.
Existing federal regulations vary by agency, state, and facility, and are too numerous to permit meaningful comparative analysis. However, the department notes that no protests or the like are permitted within the United States capitol building, and that persons attempting to do so have been successfully prosecuted under the federal criminal code.
7. Comparison with rules in adjacent states:
All adjacent states have similar administrative code provisions. Illinois requires permits for demonstrations or other events to be submitted at least 48 hours in advance of the use, unless the requestor can prove by a preponderance of the evidence that the cause of the event was unknown or resulted from changed circumstances. Michigan does not permit demonstrations or other activities without written authorization. Michigan also requires written authorization for displays, and requires that such requests “normally” be submitted 30 days in advance. Likewise, Minnesota requires a written permit, with the State and the applicant reaching agreement on topics including, “security, police protection, liability for
damages, and cleanup of areas” prior to issuance of a permit. Iowa also requires a written application and approval by written letter or a memorandum of understanding signed by the event director.
8. Summary of factual data and analytical methodologies:
9. Effect on small business: The proposed rule changes will have no impact upon small businesses.
10. Agency contact person:
Department of Administration
101 E. Wilson Street, 10th Floor
Madison, WI 53702
11. Place Where Comments are to be Submitted:
Comments may be submitted to the agency contact person that is listed above until the date given in the upcoming notice of public hearing. The deadline for submitting comments and the notice of public hearing will be posted on the Wisconsin Administrative Rules website at: http://adminrules.wisconsin.gov after the public hearing is scheduled.
SECTION 1: Adm 2.02 (1) (a) is amended to read:
Adm ADM 2.02 Designation of state office buildings and facilities.
(1) The following buildings and facilities are hereby designated as state office buildings and facilities for the purpose of use management under this chapter:
State capitol building
, except those rooms reserved by the legislature.
SECTION 2: Adm 2.03 (3m), (3r) and (6m) are created to read:
Adm 2.03 Definitions. In this chapter:
(3m) “Event” means any performance, ceremony, , festival, reception, presentation, meeting, picket, rally, parade, demonstration, organized tours not led by department or legislative staff or officials or the like held in public areas of state facilities or buildings. The term “event” does not include activities such as: informal tourist activities or constituents or members of the public visiting elected officials or otherwise conducting routine business with any state agency or state entity.
(3r) “Exhibit” means any display of art work, including but not limited to paintings, sculptures, arts and crafts, photographs or other artistic materials; public service and educational presentations; signs or banners that are not held by an individual, or which are not larger than 28 inches in length or width; and historical displays and other similar items.
(6m) “Spontaneous event” means an event in response to an unforeseen triggering event that has occurred within the previous three (3) calendar days, or is currently occurring. Regularly scheduled events, or events advertised by any means (including, but not limited to, electronic social media) 3 or more calendar days prior to the starting date are presumptively not “spontaneous events” within the meaning of this chapter.
SECTION 3: Adm 2.04 (1) is amended to read:
Adm 2.04 Public meetings and events.
the exception of areas in the state capitol building reserved for use by the
legislature, the use of which shall be as determined by the legislature, the
department, as managing authority of the state office buildings and facilities,
may permit allow buildings and facilities to be used by any person
governmental body or official, or any nonprofit, fraternal, religious, or
veterans' organization for the purpose of governmental business, public
meetings for the free discussion of public questions, or for activities
of a broad public purpose for an event or to display an exhibit if
(a) Does not interfere with the prime use of the building or facility.
(b) Does not unduly burden the managing authority.
(c) Is not a hazard to the safety of the public or state employees nor detrimental to the building or facility.
(d) Does not expose the state to the likelihood of expenses or damages which cannot be recovered.
(e) Is appropriate to the physical context of the building or facility.
SECTION 4: Adm 2.04 (1m), (2m), (2r), (2z), (9) and (10) are created to read:
(1m) Subject to the discretion of the department, permits shall be granted for any event or exhibit, and use by a person giving advance notice shall be granted for any event. The department’s exercise of discretion shall be limited and based upon the following considerations:
(a) Permits or advance notices may not be denied based upon the content of the event or exhibit.
(b) Permits or advance notices may not be denied on the basis of age, race, creed, color, handicap, marital status, sex, sexual orientation, national origin, ancestry, arrest or conviction record, religion, or political affiliation of the person applying for the permit or giving notice.
(c) Permits or advance notices may be denied or limited if the requested use conflicts with a previously granted permit.
(d) Permits or advance notices may be denied if the person, group, or organization requesting the permit or providing the notice has failed to pay any uncontested invoice for expenses or damages arising out past events or exhibits.
(e) Permits may be denied or limited if the permit application form is not fully completed or signed by a person who is legally competent to contract and to sue or be sued.
(f) Permits or advance notices may be denied if the permit or notice request contains a material falsehood or misrepresentation.
(g) Permits or advance notices may be denied or limited if the requested use conflicts with planned programs organized and conducted by the department, any state agency, or any state official or body of state officials, including, but not limited to, tour groups led by department staff.
(h) Permits or advance notices may be denied if the person, group, or organization requesting the permit or providing the notice has, in the course of receiving a permit in the past, made material misrepresentations regarding the nature or scope of an event or exhibit.
(j) Permits or advance notices may be denied or limited if the proposed use involves activity prohibited by law.
(k) Advance notices may be denied, limited, or the use relocated if a permit is subsequently granted for use of the space requested in the advance notice.
(L) Conformance with any provision of this chapter, including, but not limited to, s. 2.04 (1).
(m) Use under advance notice may be denied if material information has not been received by the department at least two business days in advance of the event via any method acceptable to the department.
(2m) The department may grant use of a portion of the interior of the state capitol building to a person providing advance notice to the department of an event at least 48 hours in advance of the anticipated utilization of the building or facility.
(2r) The department may grant use of a portion of the interior of the state capitol building to a person providing contemporaneous notice of a spontaneous event.
(2z) The department may grant use of the ground floor or first floor of the rotunda of the state capitol building to 12 or fewer persons for an event without any person applying for a permit, without providing advance notice, and without the event being a spontaneous event under this section.
(9) If any word, phrase, section, or other portion of this chapter, or any written guidance issued under this chapter’s authority, is held unconstitutional or otherwise invalid by a court of competent jurisdiction, then such holding shall not affect the validity of the remainder of this section or any other section in this chapter, which shall remain in force and not be affected by such holding.
(10) If a person or organization is aggrieved by a decision of the state capitol police staff with respect to the grant or denial of any permit application or notice of event, an appeal may be taken to the chief of state capitol police within 3 business days of that decision. The appeal shall be in writing, stating the basis of the appeal and the relief sought, and attaching any relevant information or documents. The chief of state capitol police may deny an appeal, grant an appeal, or grant an appeal subject to conditions consistent with this chapter. Appeal decisions by the chief of state capitol police shall be in writing and shall be made within 3 business days. Appeals not granted by the chief of state capitol police are deemed denied. Decisions of the chief of state capitol police under this sub-section shall be deemed final agency decisions.
SECTION 5: Adm 2.04 (2), (3), (5), and (7) are amended to read:
applicant for a permit to
the use of buildings and
facilities shall complete a written application to the department at least 72
hours in advance of the anticipated utilization of the building or facility. In
the event of a conflict of requests by 2 or more organizations, the department
shall have full discretion when permitting use of state office buildings and
facilities. In the event of a potential conflict between two or more
permit requests each request will be considered in the order it was received.
(3) An applicant for the use of buildings and facilities shall be liable to the state for injury to the state’s property, for any expense arising out of the use, and for such sums as the department may charge for
the use as provided in s. 16.845 (1), Stats. The department may publish content-neutral guidance further limiting or explaining potential imposition of charges.
(5) The department and the applicant may not discriminate against any individual on the basis of age, race, creed, color, handicap, marital status, sex, sexual orientation, national origin, ancestry, arrest record or conviction record in the utilization of state office buildings and facilities for government business, public meetings for free discussion of public questions, or for civic activities.
The granting of permission to use a state office building or facility does not
obligate the department to furnish the applicant any service or utilities, or
render any support with personnel, equipment, or supplies. The department may
furnish assistance and may charge for any expense arising out of the use of a
building or facility. The department may inspect any equipment or apparatus
brought in for
aany public meeting, event or activityexhibit,
and may limit or prohibit the use of any items which might affect safety or the
normal operation of the building.
SECTION 6: Adm 2.07 (2) is amended to read:
Adm 2.07 Exterior and interior displays and decorations.
and decorations. No
displays, signs, banners, placards, decorations or
graphic or artistic material exhibit may be erected, attached,
mounted or displayed within or on the building or the grounds of any state
office building or facility without the express written authority of the
department. Any graphic or artistic material exhibit advertising,
promoting, or identifying a commercial enterprise or a political activity is
prohibited except as indicated in sub. (4). Any unauthorized material exhibit
shall be removed and disposed of by the department. This provision shall not
be applied to any individual who holds a sign that is not larger than 28 inches
in length or width, or to any item of clothing worn by an individual. The
department may set reasonable time limits on permitted activities.
SECTION 7: Adm 2.08 (1) and (1) (d) are amended to read:
Adm 2.08 Introduction of equipment and hazards.
(1) To provide a place of employment that is safe for employees and frequenters thereof, pursuant to s. 101.11, Stats., the department shall have the right to confiscate and dispose of any hazard to the life, health, safety or welfare of state employees or the public. The department shall have the right to correct or eliminate any hazardous situation arising out of any action by a tenant agency or individual and to charge the tenant agency or individual for costs incurred to correct or eliminate any hazardous situation or practice by a tenant agency. Any person who refuses to remove or correct any hazardous situation at the request of any department employee shall be subject to citation pursuant to s. Adm 2.14 (2) (zd).These hazards include, but are not limited to, the following:
(d) Holiday trees or holiday decorations or other displays, decorations, signs, banners or the like introduced in buildings and facilities managed or leased by the department without the approval of the department or contrary to the manner instructed by the department.
SECTION 8: Adm 2.11 is amended to read:
Adm 2.11 Confiscation of materials. Property confiscated by the department for violation of this chapter shall be stored by the managing authority until the owner provides proof of ownership, unless confiscated pursuant to s. Adm 2.08 (1). Property confiscated pursuant to this chapter may be disposed of 30 days after confiscation if unclaimed.
Section 9: Adm 2.14 (2), (2) (e) and (v), are amended to read, and (2) (fm), (vm), and (2) (vm) 5. are created to read :
Adm 2.14 Rules of conduct.
(2) In order to preserve the
order that is necessary for the enjoyment of freedom by occupants of and
visitors to the buildings and facilities, and in order to prevent activities
that physically obstruct access to department lands and buildings or prevent
the state from carrying on its instructional, research, public service, or
P and pursuant to s. 16.846,
Stats., whoever does any of the following shall be subject to a forfeiture of
not more than $500:
(e) Without the express written approval of the department, uses a public address system or sound amplification system, or any device capable of amplifying sound, including but not limited to musical instruments, in those buildings and facilities managed or leased by the department.
(fm) While in the state capitol building, conducts or participates in an event:
1. producing noise in excess of 85 decibels; or
2. a lower volume of noise if a complaint is received by the department of the disturbance of a another lawful use of the capitol building.
department shall first notify the person(s) to be charged and request that they
reduce the volume of noise to a prescribed level, which shall be 85 decibels
unless otherwise stated by the department. (v) Without approval of the
aan event picket, rally, parade or demonstration
in those buildings and facilities managed or leased by the department or on
properties surrounding those buildings.
In order to
preserve the order which is necessary for the enjoyment of freedom by occupants
of the buildings and facilities, and in order to prevent activities which
physically obstruct access to department lands and buildings or prevent the
state from carrying on its instructional, research, public service, or
a Any participant or spectator within a group constituting an
unlawful event, who intentionally fails or refuses to withdraw from the event
after it has been declared unlawful, shall be subject to the penalties
identified in subsection. Any picketing, rally, parade,
demonstration, other assembly, or congregation of spectators to the activity
event may be declared unlawful if its participants:
Enter or occupy any building or facility managed or leased by the department,
except as authorized by s. Adm 2.04
from the person in immediate
charge of any room in the building, or by a person designated to approve
requests for the use of rooms for meetings.
SECTION 10: Adm 2.14 (2) (v) 9. a. and b. are renumbered to Adm (2) (vr) 1., and 2., and, as renumbered, amended to read:
this section paragraph (vm) "intentionally" means that
the participant or spectator knew , or reasonably should have known, that
the participant's or spectator's conduct by itself or in conjunction with the
conduct of others had or would have the prohibited effect.
b. The department may
designate a state official or officials who shall have primary authority to
implement this paragraph, paragraph (v), and paragraph (vm). The
official shall prescribe limitations for any picketing, rally, parade,
demonstration or other assembly event in order to meet the
requirements of this paragraph chapter. When informed of any event picketing,
rally, parade, demonstration, or other assembly, the department official or
designee may proceed immediately to the site to determine if there is
compliance with this these paragraphs. If the official
prescribes limitations or has previously prescribed limitations, and
those limitations are not observed by the event participants assembly,
the official may then declare the assembly event unlawful. Any
declaration of illegality or prescription of limitations shall be effective immediately
and binding upon the participants in the assembly event
participants, unless and until modified or reversed.
SECTION 11: Adm 2.14 (2) (v) 9. c. is repealed.
c. Any participant or
spectator within the group constituting an unlawful assembly, who intentionally
fails or refuses to withdraw from the assembly after it has been declared
unlawful, shall be subject to the penalties identified in sub. (2) (intro.).
SECTION 12: EFFECTIVE DATE. The rules contained in this proposed order will take effect on the first day of the month commencing after the date of publication, pursuant to authority granted by s. 227.22(2), Stats.
By: ________________________________________ Date: __________________________________
Mike Huebsch, Secretary
Wisconsin Department of Administration