This bill provides that a plan submitted by an agency to the federal government
for the purpose of complying with federal law (compliance plan) does not confer
rule-making authority and cannot be used by an agency as authority to promulgate
rules. The bill provides that no agency may agree to promulgate a rule as a

component of a compliance plan unless the agency has explicit statutory authority
to promulgate the rule at the time the compliance plan is submitted to the federal
government.
25.
Under current law, administrative rules that are in effect may be temporarily
suspended by the Joint Committee for Review of Administrative Rules. If JCRAR
suspends a rule, JCRAR must introduce bills in each house of the legislature to make
the suspension permanent. If neither bill to support the suspension is ultimately
enacted, the rule may remain in effect and JCRAR may not suspend the rule again.
This bill provides that JCRAR may suspend a rule multiple times.
26.
Under current law, an agency may, by rule or by an order in a particular case,
specify that the decision of a hearing examiner who conducts a hearing in a contested
case proceeding is the final decision of the agency. This bill prohibits an agency from
delegating the authority to issue a final decision in a contested case to a hearing
examiner. This bill also requires that all final decisions of an agency must be
approved, signed, and dated by the secretary of the agency.
27.
Under current law, an applicant for a driver's license or identification card must
provide to the Department of Transportation 1) an identification document that
includes either the applicant's photograph or both the applicant's full legal name and
date of birth; 2) documentation showing the applicant's date of birth, which may be
the same as item 1; 3) proof of the applicant's social security number or verification
that the applicant is not eligible for a social security number; 4) documentation
showing the applicant's name and address of principal residence; and 5)
documentary proof that the applicant is a U.S. citizen or is otherwise lawfully
present in the United States.
In 2015 and 2017, DOT promulgated rules, the first establishing and the second
modifying, a procedure by which persons requesting free identification cards for the
purpose of voter identification could receive these cards despite being unable to
provide required documentary proof. In general, the procedure requires an applicant
to provide DOT with either 1) the applicant's full legal name, date of birth, place of
birth, and any other birth record information requested by DOT; or 2) the applicant's
alien or U.S. citizenship and immigration service number or U.S. citizenship
certificate number. DOT then shares this information with the Department of
Health Services or the federal government for the purpose of verifying the applicant's
identity. In general, a person may receive a voter identification card under this
procedure if either DHS or the federal government verifies the person's identity or
if DOT receives acceptable alternate documentation. This bill incorporates this
verification procedure into the statutes.
DOT's 2017 rule also provided a procedure by which an applicant for an
identification card could obtain a card with a name other than the name that appears
on the applicant's supporting documentation. The bill also incorporates this
procedure into the statutes.

Under current law, an unexpired identification card issued by an accredited
university or college in this state may be used as identification for voting purposes
if it contains a photograph and the signature of the person to whom it was issued, it
expires no later than two years after the date of issuance, and the person establishes
that he or she is enrolled as a student at the university or college on election day. The
Government Accountability Board (now the Elections Commission) promulgated a
rule to clarify that an identification card issued by a technical college that is governed
by this state's technical college system may be used for voting purposes. The bill
codifies the rule.
28.
The bill a) requires committees appointed by agencies to provide advice with
respect to rule making to submit a list of the members of the committee to JCRAR;
b) makes various changes with respect to the required content and preparation of
statements of scope and EIAs for rules, including mandating minimum comment
periods for EIAs for rules; c) prohibits an agency from submitting a statement of
scope for a proposed rule to the LRB for publication in the register more than 30 days
after the date of the governor's approval of the statement of scope without the
approval of the governor; and d) codifies current practice by allowing an agency that
intends to concurrently promulgate an emergency rule and a permanent rule that
are identical in substance to submit one statement of scope indicating this intent.
29.
This bill 1) prohibits a court from according deference to agency interpretations
of law in certain proceedings and prohibits agencies from seeking deference in any
proceeding to agency interpretations of law; 2) establishes various requirements
with respect to the adoption and use of guidance documents by agencies, including
requirements that agencies must comply with in order to adopt guidance documents;
and 3) provides that settlement agreements do not confer rule-making authority.
Generally under current law, when reviewing an agency decision in a contested
case or other matter subject to judicial review under the law governing
administrative procedure for state agencies, a court must accord due weight to the
experience, technical competence, and specialized knowledge of the agency involved,
as well as discretionary authority conferred upon it. Consistent with the Wisconsin
Supreme Court's decision in Tetra Tech EC, Inc. v. Wis. Dep't of Revenue, 2018 WI 75,
the bill limits this directive such that a court performing judicial review of such a
decision must accord no deference to an agency's interpretation of law.
The bill also provides that no agency may seek deference in any proceeding
based on the agency's interpretation of any law.
Subject to various exceptions, the bill defines “guidance document" as any
formal or official document or communication issued by an agency, including a
manual, handbook, directive, or informational bulletin, that 1) explains the agency's
implementation of a statute or rule enforced or administered by the agency, including
the current or proposed operating procedure of the agency; or 2) provides guidance
or advice with respect to how the agency is likely to apply any statute or rule enforced
or administered by the agency, if that guidance or advice is likely to apply to a class
of persons similarly affected.

The bill requires each agency to submit each proposed guidance document to
the Legislative Reference Bureau for publication in the register and to provide a
period for persons to submit written comments to the agency on the proposed
guidance document. The agency must retain all written comments submitted during
the public comment period and consider those comments in determining whether to
adopt the guidance document as originally proposed, modify the proposed guidance
document, or take any other action. The bill allows for a comment period of less than
21 days with the approval of the governor. The bill also requires each adopted
guidance document, while valid, to remain available on the agency's Internet site and
requires the agency to permit continuing public comment on the guidance document.
Each guidance document must be signed by the head of the agency below a statement
containing certain certifications.
The bill provides that a guidance document does not have the force of law and
does not provide the authority for implementing or enforcing a standard,
requirement, or threshold, including as a term or condition of any license. An agency
that proposes to rely on a guidance document to the detriment of a person in any
proceeding must afford the person an adequate opportunity to contest the legality
or wisdom of a position taken in the guidance document, and an agency may not use
a guidance document to foreclose consideration of any issue raised in the guidance
document. The bill also contains other provisions with respect to agency use of and
reliance upon guidance documents, allows certain persons to petition an agency to
promulgate a rule in place of a guidance document, and makes guidance documents
subject to the same judicial review provisions as apply to rules.
The bill requires the Legislative Council staff to provide agencies with
assistance in determining whether documents and communications are guidance
documents as defined in the bill.
The bill provides that, as of six months after the bill's effective date, any
guidance document that does not comply with the requirements in the bill is
considered to be rescinded.
The bill provides that a settlement agreement, consent decree, or court order
does not confer rule-making authority and cannot be used by an agency as authority
to promulgate rules. The bill provides that no agency may agree to promulgate a rule
as a term in any settlement agreement, consent decree, or stipulated order of a court
unless the agency has explicit statutory authority to promulgate the rule at the time
the settlement agreement, consent decree, or stipulated order of a court is executed.
For further information see the state fiscal estimate, which will be printed as
an appendix to this bill.
The people of the state of Wisconsin, represented in senate and assembly, do
enact as follows:
AB1070,1 1Section 1 . 5.02 (6m) (f) of the statutes is amended to read:
AB1070,12,8
15.02 (6m) (f) An unexpired identification card issued by a university or college
2in this state that is accredited, as defined in s. 39.30 (1) (d), or by a technical college
3in this state that is a member of and governed by the technical college system under
4ch. 38,
that contains the date of issuance and signature of the individual to whom it
5is issued and that contains an expiration date indicating that the card expires no
6later than 2 years after the date of issuance if the individual establishes that he or
7she is enrolled as a student at the university or college on the date that the card is
8presented.
AB1070,2 9Section 2. 13.103 of the statutes is created to read:
AB1070,12,11 1013.103 Joint committee on finance; state operations expenditures
11report.
(1) In this section:
AB1070,12,1412 (a) “State agency” means any office, department, or independent agency in the
13executive branch of state government, other than the Board of Regents of the
14University of Wisconsin System.
AB1070,12,1615 (b) “State operations” means all purposes except aids to individuals and
16organizations and local assistance.
AB1070,12,22 17(2) Quarterly, beginning in April 2019, each state agency shall submit a report
18to the joint committee on finance listing all state agency expenditures for state
19operations in the preceding calendar quarter. The report shall specifically detail all
20expenditures for administrative supplies and services that are made at the
21discretion of or to be used by heads of state agencies, secretaries, deputy secretaries,
22assistant deputy secretaries, and executive assistants.
AB1070,3 23Section 3. 13.124 of the statutes is created to read:
AB1070,13,5 2413.124 Legal representation. (1) (a) The speaker of the assembly, in his or
25her sole discretion, may authorize a representative to the assembly or assembly

1employee who requires legal representation to obtain legal counsel other than from
2the department of justice, with the cost of representation paid from the appropriation
3under s. 20.765 (1) (a), if the acts or allegations underlying the action are arguably
4within the scope of the representative's or employee's duties. The speaker shall
5approve all financial costs and terms of representation.
AB1070,13,116 (b) The speaker of the assembly, in his or her sole discretion, may obtain legal
7counsel other than from the department of justice, with the cost of representation
8paid from the appropriation under s. 20.765 (1) (a), in any action in which the
9assembly is a party or in which the interests of the assembly are affected, as
10determined by the speaker. The speaker shall approve all financial costs and terms
11of representation.
AB1070,13,18 12(2) (a) The senate majority leader, in his or her sole discretion, may authorize
13a senator or senate employee who requires legal representation to obtain legal
14counsel other than from the department of justice, with the cost of representation
15paid from the appropriation under s. 20.765 (1) (b), if the acts or allegations
16underlying the action are arguably within the scope of the senator's or employee's
17duties. The senate majority leader shall approve all financial costs and terms of
18representation.
AB1070,13,2419 (b) The senate majority leader, in his or her sole discretion, may obtain legal
20counsel other than from the department of justice, with the cost of representation
21paid from the appropriation under s. 20.765 (1) (b), in any action in which the senate
22is a party or in which the interests of the senate are affected, as determined by the
23senate majority leader. The senate majority leader shall approve all financial costs
24and terms of representation.
AB1070,14,8
1(3) (a) The cochairpersons of the joint committee on legislative organization,
2in their sole discretion, may authorize an employee of a legislative service agency, as
3defined in s. 13.90 (1m) (a), who requires legal representation to obtain legal counsel
4other than from the department of justice, with the cost of representation paid from
5the appropriation under s. 20.765 (1) (a) or (b), as determined by the cochairpersons,
6if the acts or allegations underlying the action are arguably within the scope of the
7employee's duties. The cochairpersons shall approve all financial costs and terms of
8representation.
AB1070,14,159 (b) The cochairpersons of the joint committee on legislative organization, in
10their sole discretion, may obtain legal counsel other than from the department of
11justice, with the cost of representation paid from the appropriation under s. 20.765
12(1) (a) or (b), as determined by the cochairpersons, in any action in which the
13legislature is a party or in which the interests of the legislature are affected, as
14determined by the cochairpersons. The cochairpersons shall approve all financial
15costs and terms of representation.
AB1070,4 16Section 4. 13.127 of the statutes is created to read:
AB1070,14,22 1713.127 Advice and consent of the senate. Any individual nominated by the
18governor or another state officer or agency, and with the advice and consent of the
19senate appointed, to any office or position may not hold the office or position, be
20nominated again for the office or position, or perform any duties of the office or
21position during the legislative session biennium if the individual's confirmation for
22the office or position is rejected by the senate.
AB1070,5 23Section 5. 13.365 of the statutes is created to read:
AB1070,15,2 2413.365 Intervention. Pursuant to s. 803.09 (2m), when a party to an action
25challenges in state or federal court the constitutionality of a statute, facially or as

1applied, or challenges a statute as violating or preempted by federal law, as part of
2a claim or affirmative defense:
AB1070,15,7 3(1) The committee on assembly organization may intervene at any time in the
4action on behalf of the assembly. The committee on assembly organization may
5obtain legal counsel other than from the department of justice, with the cost of
6representation paid from the appropriation under s. 20.765 (1) (a), to represent the
7assembly in any action in which the assembly intervenes.
AB1070,15,12 8(2) The committee on senate organization may intervene at any time in the
9action on behalf of the senate. The committee on senate organization may obtain
10legal counsel other than from the department of justice, with the cost of
11representation paid from the appropriation under s. 20.765 (1) (b), to represent the
12senate in any action in which the senate intervenes.
AB1070,15,18 13(3) The joint committee on legislative organization may intervene at any time
14in the action on behalf of the state. The joint committee on legislative organization
15may obtain legal counsel other than from the department of justice, with the cost of
16representation paid from the appropriation under s. 20.765 (1) (a) or (b), as
17determined by the cochairpersons, to represent the state in any action in which the
18joint committee on legislative organization intervenes.
AB1070,6 19Section 6 . 13.48 (24m) of the statutes is created to read:
AB1070,15,2320 13.48 (24m) Repayment of principal on short-term commercial paper. (a)
21Definition. In this subsection, “commercial paper program" means a program
22authorized by the building commission for the issuance of short-term, general
23obligation debt in lieu of long-term, general obligation debt.
AB1070,16,424 (b) Amortization schedule required. For each commercial paper program, the
25building commission shall establish an amortization schedule for the repayment of

1principal on debt issued under the program so that a portion of the principal amount
2of each debt is retired annually over the life of the improvement or asset to which the
3debt is related. The commission shall provide each amortization schedule
4established under this paragraph to the joint committee on finance.
AB1070,16,65 (c) Schedule modification. An amortization schedule established under par. (b)
6may not be modified except as follows:
AB1070,16,107 1. Before the building commission modifies the amortization schedule, the
8commission shall notify the joint committee on finance in writing of the commission's
9intention to modify the amortization schedule. The notice shall describe each
10modification and the reasons for making the modification.
AB1070,16,1811 2. If, within 14 working days after the date of the building commission's notice
12under subd. 1., the cochairpersons of the joint committee on finance do not notify the
13commission that the committee has scheduled a meeting to review the commission's
14proposal, the commission may make each modification as proposed in the notice. If,
15within 14 working days after the date of the commission's notice under subd. 1., the
16cochairpersons of the committee notify the commission that the committee has
17scheduled a meeting to review the commission's proposal, the commission may make
18each proposed modification only upon approval of the committee.
AB1070,7 19Section 7 . 13.56 (2) of the statutes is amended to read:
AB1070,17,320 13.56 (2) Participation in certain proceedings. The cochairpersons of the joint
21committee for review of administrative rules or their designated agents shall accept
22service made under ss. 227.40 (5) and 806.04 (11). If the committee determines that
23the legislature should be represented in the proceeding, it shall request the joint
24committee on legislative organization to designate the legislature's representative
25for
intervene in the proceeding as provided under s. 806.04 (11). The costs of

1participation in the proceeding shall be paid equally from the appropriations under
2s. 20.765 (1) (a) and (b), except that such costs incurred by the department of justice
3shall be paid from the appropriation under s. 20.455 (1) (d).
AB1070,8 4Section 8 . 13.90 (2) of the statutes is amended to read:
AB1070,17,235 13.90 (2) The cochairpersons of the joint committee on legislative organization
6or their designated agent shall accept service made under s. ss. 806.04 (11) and
7893.825 (2)
. If the committee, the senate organization committee , or the assembly
8organization committee, determines that the legislature should be represented
9intervene in the proceeding, that committee shall designate the legislature's
10representative for the proceeding.
as provided under s. 803.09 (2m), the assembly
11shall represent the assembly, the senate shall represent the senate, and the joint
12committee on legislative organization shall represent the state. In an action
13involving the constitutionality of a statute, or challenging a statute as violating or
14preempted by federal law, if the joint committee on legislative organization
15determines at any time that the interests of the state will be best represented by
16special counsel appointed by the legislature, it shall appoint special counsel to
17represent state defendants and act instead of the attorney general and the attorney
18general may not participate in the action. Special counsel appointed under this
19subsection shall have the powers of the attorney general with respect to the litigation
20to which special counsel has been appointed.
The costs of participation in the
21proceeding shall be paid equally from the appropriations under s. 20.765 (1) (a) and
22(b), except that such costs incurred by the department of justice shall be paid from
23the appropriation under s. 20.455 (1) (d).
AB1070,9 24Section 9 . 13.90 (3) of the statutes is renumbered 13.90 (3) (c) and amended
25to read:
AB1070,18,7
113.90 (3) (c) The joint committee on legislative organization shall assign office
2space for legislative offices and the offices of the legislative service agencies as
3defined in sub. (1m)
. The joint committee may assign any space in the capitol not
4reserved for other uses under s. 16.835. Except as provided in ss. 13.09 (6) and 13.45
5(4) (c), the joint committee may locate any legislative office or the office of any
6legislative service agency outside the capitol at another suitable building in the city
7of Madison.
AB1070,10 8Section 10 . 13.90 (3) (a) and (b) of the statutes are created to read:
AB1070,18,109 13.90 (3) (a) In this subsection, “legislative service agency” has the meaning
10given in sub. (1m).
AB1070,18,1311 (b) The cochairpersons of the joint committee on legislative organization shall
12lease or acquire office space for legislative offices or legislative service agencies under
13par. (c).
AB1070,11 14Section 11 . 13.91 (1) (c) of the statutes is amended to read:
AB1070,18,1715 13.91 (1) (c) Perform the functions prescribed in s. 227.15 for the review and
16resolution of problems
ch. 227 relating to administrative rules and guidance
17documents
.
AB1070,12 18Section 12. 15.07 (1) (b) 24. of the statutes is created to read:
AB1070,18,2019 15.07 (1) (b) 24. The 6 members of the group insurance board appointed under
20s. 15.165 (2) (j).
AB1070,13 21Section 13 . 15.165 (2) of the statutes is renumbered 15.165 (2) (intro) and
22amended to read:
AB1070,18,2523 15.165 (2) Group insurance board. (intro.) There is created in the department
24of employee trust funds a group insurance board. The board shall consist of the
25following members:
AB1070,19,1
1(a) The governor, the or his or her designee.
AB1070,19,2 2(b) The attorney general, the or his or her designee.
AB1070,19,4 3(c) The secretary of administration, the director of the office of state
4employment relations, and the
or his or her designee.
AB1070,19,5 5(e) The commissioner of insurance or their designees, and 6 his or her designee.
AB1070,19,12 6(j) Six persons appointed for 2-year terms, of whom one shall be an insured
7participant in the Wisconsin Retirement System who is not a teacher, one shall be
8an insured participant in the Wisconsin Retirement System who is a teacher, one
9shall be an insured participant in the Wisconsin Retirement System who is a retired
10employee, one shall be an insured employee of a local unit of government, and one
11shall be the chief executive or a member of the governing body of a local unit of
12government that is a participating employer in the Wisconsin Retirement System.
AB1070,14 13Section 14 . 15.165 (2) (d) and (f) to (i) of the statutes are created to read:
AB1070,19,1514 15.165 (2) (d) The administrator of the division of personnel management in
15the department of administration or his or her designee.
AB1070,19,1616 (f) One individual appointed by the speaker of the assembly.
AB1070,19,1717 (g) One individual appointed by the minority leader of the assembly.
AB1070,19,1818 (h) One individual appointed by the majority leader of the senate.
AB1070,19,1919 (i) One individual appointed by the minority leader of the senate.
AB1070,15 20Section 15 . 16.42 (5) of the statutes is created to read:
AB1070,19,2221 16.42 (5) (a) In this subsection, “fee” means any amount of money other than
22a tax that an agency charges a person other than a governmental entity.
AB1070,19,2523 (b) Each agency required to submit a budget request under sub. (1) shall
24include with its request a report that lists each fee the agency is required or
25otherwise authorized to charge and that includes all of the following:
AB1070,20,2
11. The amount of each fee, or, if a fee does not have a fixed amount, the method
2of calculating the fee.
AB1070,20,33 2. An identification of the agency's statutory authority to charge each fee.
AB1070,20,44 3. A statement whether or not the agency currently charges the fee.
AB1070,20,65 4. A description of whether and how each fee has increased or decreased since
6the agency was first authorized to charge the fee.
AB1070,20,77 5. Any recommendation the agency has concerning each fee.
AB1070,16 8Section 16. 16.84 (2m) of the statutes is created to read:
AB1070,20,189 16.84 (2m) Send notice to the joint committee on legislative organization of any
10proposed changes to security at the capitol, including the posting of a firearm
11restriction under s. 943.13 (1m) (c) 2. or 4. If, within 14 working days after the date
12of the notice, the cochairpersons of the joint committee on legislative organization do
13not notify the department that the committee has scheduled a meeting to review the
14department's proposal, the department may implement the changes as proposed in
15the notice. If, within 14 working days after the date of the department's notice, the
16cochairpersons of the committee notify the department that the committee has
17scheduled a meeting to review the department's proposal, the department may
18implement the proposed changes only upon approval of the committee.
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