Except as provided in this section, the legislature may not authorize gambling in any form.
Except as otherwise provided by law, the following activities do not constitute consideration as an element of gambling:
To listen to or watch a television or radio program.
To fill out a coupon or entry blank, whether or not proof of purchase is required.
To visit a mercantile establishment or other place without being required to make a purchase or pay an admittance fee.
The legislature may authorize the following bingo games licensed by the state, but all profits shall accrue to the licensed organization and no salaries, fees or profits may be paid to any other organization or person: bingo games operated by religious, charitable, service, fraternal or veterans' organizations or those to which contributions are deductible for federal or state income tax purposes.
All moneys received by the state that are attributable to bingo games shall be used for property tax relief for residents of this state as provided by law. The distribution of moneys that are attributable to bingo games may not vary based on the income or age of the person provided the property tax relief. The distribution of moneys that are attributable to bingo games shall not be subject to the uniformity requirement of section 1 of article VIII. In this subsection, the distribution of all moneys attributable to bingo games shall include any earnings on the moneys received by the state that are attributable to bingo games, but shall not include any moneys used for the regulation of, and enforcement of law relating to, bingo games.
The legislature may authorize the following raffle games licensed by the state, but all profits shall accrue to the licensed local organization and no salaries, fees or profits may be paid to any other organization or person: raffle games operated by local religious, charitable, service, fraternal or veterans' organizations or those to which contributions are deductible for federal or state income tax purposes. The legislature shall limit the number of raffles conducted by any such organization.
This section shall not prohibit pari-mutuel on-track betting as provided by law. The state may not own or operate any facility or enterprise for pari-mutuel betting, or lease any state-owned land to any other owner or operator for such purposes. All moneys received by the state that are attributable to pari-mutuel on-track betting shall be used for property tax relief for residents of this state as provided by law. The distribution of moneys that are attributable to pari-mutuel on-track betting may not vary based on the income or age of the person provided the property tax relief. The distribution of moneys that are attributable to pari-mutuel on-track betting shall not be subject to the uniformity requirement of section 1 of article VIII. In this subsection, the distribution of all moneys attributable to pari-mutuel on-track betting shall include any earnings on the moneys received by the state that are attributable to pari-mutuel on-track betting, but shall not include any moneys used for the regulation of, and enforcement of law relating to, pari-mutuel on-track betting.
The legislature may authorize the creation of a lottery to be operated by the state as provided by law. The expenditure of public funds or of revenues derived from lottery operations to engage in promotional advertising of the Wisconsin state lottery is prohibited. Any advertising of the state lottery shall indicate the odds of a specific lottery ticket to be selected as the winning ticket for each prize amount offered. The net proceeds of the state lottery shall be deposited in the treasury of the state, to be used for property tax relief for residents of this state
as provided by law. The distribution of the net proceeds of the state lottery may not vary based on the income or age of the person provided the property tax relief. The distribution of the net proceeds of the state lottery shall not be subject to the uniformity requirement of section 1 of article VIII. In this paragraph, the distribution of the net proceeds of the state lottery shall include any earnings on the net proceeds of the state lottery.
The lottery authorized under par. (a) shall be an enterprise that entitles the player, by purchasing a ticket, to participate in a game of chance if: 1) the winning tickets are randomly predetermined and the player reveals preprinted numbers or symbols from which it can be immediately determined whether the ticket is a winning ticket entitling the player to win a prize as prescribed in the features and procedures for the game, including an opportunity to win a prize in a secondary or subsequent chance drawing or game; or 2) the ticket is evidence of the numbers or symbols selected by the player or, at the player's option, selected by a computer, and the player becomes entitled to a prize as prescribed in the features and procedures for the game, including an opportunity to win a prize in a secondary or subsequent chance drawing or game if some or all of the player's symbols or numbers are selected in a chance drawing or game, if the player's ticket is randomly selected by the computer at the time of purchase or if the ticket is selected in a chance drawing.
Notwithstanding the authorization of a state lottery under par. (a), the following games, or games simulating any of the following games, may not be conducted by the state as a lottery: 1) any game in which winners are selected based on the results of a race or sporting event; 2) any banking card game, including blackjack, baccarat or chemin de fer; 3) poker; 4) roulette; 5) craps or any other game that involves rolling dice; 6) keno; 7) bingo 21, bingo jack, bingolet or bingo craps; 8) any game of chance that is placed on a slot machine or any mechanical, electromechanical or electronic device that is generally available to be played at a gambling casino; 9) any game or device that is commonly known as a video game of chance or a video gaming machine or that is commonly considered to be a video gambling machine, unless such machine is a video device operated by the state in a game authorized under par. (a) to permit the sale of tickets through retail outlets under contract with the state and the device does not determine or indicate whether the player has won a prize, other than by verifying that the player's ticket or some or all of the player's symbols or numbers on the player's ticket have been selected in a chance drawing, or by verifying that the player's ticket has been randomly selected by a central system computer at the time of purchase; 10) any game that is similar to a game listed in this paragraph; or 11) any other game that is commonly considered to be a form of gambling and is not, or is not substantially similar to, a game conducted by the state under par. (a). No game conducted by the state under par. (a) may permit a player of the game to purchase a ticket, or to otherwise participate in the game, from a residence by using a computer, telephone or other form of electronic, telecommunication, video or technological aid. [1963 J.R. 35, 1965 J.R. 2, vote April 1965; 1971 J.R. 31, 1973 J.R. 3, vote April 1973; 1975 J.R. 19, 1977 J.R. 6, vote April 1977; 1985 J.R. 36, 1987 J.R. 3, vote April 1987; 1985 J.R. 35, 1987 J.R. 4, vote April 1987; 1991 J.R. 27, 1993 J.R. 3, vote April 1993; 1997 J.R. 19, 1999 J.R. 2, vote April 1999
The governor acted contrary to the public policy embodied in state law and therefore acted without authority by agreeing to an Indian gaming compact allowing the conduct of games prohibited by Art. IV, s. 24 and criminal statutes. Panzer v. Doyle, 2004 WI 52
, 271 Wis. 2d 295
, 680 N.W.2d 666
The 1993 amendment to this section did not invalidate the original compacts between the state and Indian tribes. Because the original compacts contemplated extending and amending the scope of Indian gaming, the parties' right of renewal is constitutionally protected by the contract clauses of the United States and Wisconsin constitutions; and amendments to the original compacts that expand the scope of gaming are likewise constitutionally protected by the contract clauses of the Wisconsin and United States constitutions. Dairyland Greyhound Park, Inc. v. Doyle, 2006 WI 107
, 295 Wis. 2d 1
, 719 N.W.2d 408
The state lottery board may conduct any lottery game that complies with the ticket language in constitution and ch. 565. The term “lottery" in the constitution and statutes does not include any other forms of betting, playing or operation of gambling machines and devices and other forms of gambling defined in ch. 945. The legislature can statutorily authorize other non-lottery gambling including casino-type games. 79 Atty. Gen. 14.
Under the Indian Gaming Regulatory Act, 25 U.S.C.A. ss. 2701-2721, gambling activities as defined and prohibited in ch. 945, other than lotteries and pari-mutuel on-track wagering, are not permitted by any person within or without Indian country in State of Wisconsin. The prohibition includes all non-lottery gambling such as casino-type games, gambling machines and other devices. The legislature can statutorily authorize non-lottery gambling within Indian country. 79 Atty. Gen. 14.
Enactment of legislation that would propose to license and regulate certain “amusement devices" that are gambling machines would authorize “gambling" in violation of Art. IV, section 24. OAG 2-96.
The state's interest in preventing organized crime infiltration of a tribal bingo enterprise does not justify state regulation in light of compelling federal and tribal interest supporting it. California v. Cabazon Band of Indians, 480 U.S. 202
Wisconsin cannot have it both ways. The state must entirely prohibit poker within its borders if it wants to prevent any Indian tribe from offering poker on the tribe's sovereign lands. When the state decriminalized hosting poker for taverns, it could no longer deny that game to tribes as a matter of federal law. Wisconsin v. Ho-Chunk Nation, 784 F.3d 1076
When voters authorized a state-operated “lottery" they removed any remaining prohibition against state-operated games, schemes, or plans involving prize, chance and consideration. Lac du Flambeau Indians v. State of Wisconsin, 770 F. Supp. 480
Panzer v. Doyle: Wisconsin Constitutional Law Deals the Governor a New Hand. Wawrzyn. 89 MLR. 221 (2005).
Gambling and the law: The Wisconsin experience, 1848-1980. Farnsley. 1980 WLR 811.
Stationery and printing. Section
The legislature shall provide by law that all stationery required for the use of the state, and all printing authorized and required by them to be done for their use, or for the state, shall be let by contract to the lowest bidder, but the legislature may establish a maximum price; no member of the legislature or other state officer shall be interested, either directly or indirectly, in any such contract.
The legality of appointing a nominee to the board of regents when that person is a major stockholder in a printing company that is under contract to the state is discussed. 60 Atty. Gen. 172.
Extra compensation; salary change. Section
[As amended April 1956, April 1967, April 1974, April 1977, and April 1992
The legislature may not grant any extra compensation to a public officer, agent, servant or contractor after the services have been rendered or the contract has been entered into.
Except as provided in this subsection, the compensation of a public officer may not be increased or diminished during the term of office:
When any increase or decrease in the compensation of justices of the supreme court or judges of any court of record becomes effective as to any such justice or judge, it shall be effective from such date as to every such justice or judge.
Any increase in the compensation of members of the legislature shall take effect, for all senators and representatives to the assembly, after the next general election beginning with the new assembly term.
Subsection (1) shall not apply to increased benefits for persons who have been or shall be granted benefits of any kind under a retirement system when such increased benefits are provided by a legislative act passed on a call of ayes and noes by a
three-fourths vote of all the members elected to both houses of the legislature and such act provides for sufficient state funds to cover the costs of the increased benefits. [1953 J.R. 41, 1955 J.R. 17, vote April 1956; 1965 J.R. 96, 1967 J.R. 17, vote April 1967; 1971 J.R. 12, 1973 J.R. 15, vote April 1974; 1975 J.R. 13, 1977 J.R. 7, vote April 1977; 1989 J.R. 55, 1991 J.R. 13, vote April 1992
This section does not prohibit a retroactive wage adjustment negotiated by collective bargaining and applied only to a period when employees were working without a contract. DOA v. WERC, 90 Wis. 2d 426
, 280 N.W.2d 150
The sub. (3) requirement of a three-fourths vote of all members elected to the legislature permits passage of a bill increasing benefits under a retirement system when the bill has received the votes of three-fourths of the entire elected membership of the legislature. Wisconsin Professional Police Ass'n, Inc. v. Lightbourn, 2001 WI 59
, 243 Wis. 2d 512
, 627 N.W.2d 807
An amendment authorizing increased benefits to all retired employees would constitute a legislative declaration that such expenditures would be for a public purpose. 58 Atty. Gen. 101.
University salaries may be increased only from the date the regents adopt the budget and are subject to subsequent funding by the legislature. 60 Atty. Gen. 487.
Suits against state.
The legislature shall direct by law in what manner and in what courts suits may be brought against the state.
An action will not lie against the secretary of revenue for a refund of a sales tax deposit as that is an action against the state and it was not alleged that the secretary acted outside his authority. Appel v. Halverson, 50 Wis. 2d 230
, 184 N.W.2d 99
Since the mandate of this section is to the legislature, the supreme court cannot judicially intervene to change the doctrine of procedural immunity and thereby correct the anomaly that arises as a result of the constitutional restriction, absent legislative implementation, of tort suits against the state. Cords v. State, 62 Wis. 2d 42
, 214 N.W.2d 405
A state agency or officer may not waive the state's sovereign immunity without specific authorization, nor will principles of estoppel be applied to deprive the state of its sovereign rights. Lister v. Bd. of Regents, 72 Wis. 2d 282
, 240 N.W.2d 610
Although courts have common law jurisdiction to enforce arbitration awards generally, they cannot enforce awards against the state absent express legislative authorization. Teaching Assistants Assoc. v. UW-Madison, 96 Wis. 2d 492
, 292 N.W.2d 657
(Ct. App. 1980).
The doctrine of sovereign immunity cannot bar an action for just compensation based on a taking of private property for public use even though the legislature has failed to establish specific provisions for the recovery of just compensation. Zinn v. State, 112 Wis. 2d 417
, 334 N.W.2d 67
A waiver of sovereign immunity in the creation of a state agency is discussed. Busse v. Dane County Regional Planning Comm., 181 Wis. 2d 527
, 510 N.W.2d 136
(Ct. App. 1993).
A specific performance action is a suit under this section. The legislature has not consented to be sued for specific performance, and such an action is not permitted against the state. Erickson Oil Products, Inc. v. DOT, 184 Wis. 2d 36
, 516 N.W.2d 755
(Ct. App. 1994).
The state waives its sovereign immunity when it creates an agency as an independent going concern. Bahr v. State Investment Bd., 186 Wis. 2d 379
, 521 N.W.2d 152
(Ct. App. 1994).
A county's appeal of an ex parte order that it was responsible for court costs incurred by the state public defender for an indigent defendant was not an action “brought" against the state. The public defender could not assert that the appeal was barred by sovereign immunity. Polk County v. State Public Defender, 188 Wis. 2d 665
, 524 N.W.2d 389
Although the general rule is that waivers of sovereign immunity must be read narrowly, when a statute provides a clear, express, and broadly worded consent to sue, the rule of narrow construction will not be applied anew to every type of claim brought under the statute. German v. DOT, 223 Wis. 2d 525
, 589 N.W.2d 651
(Ct. App. 1998), 98-0250
When the state creates an entity independent from the state, which acts as neither its arm nor its agent, such entity falls outside the protection of sovereign immunity. The determination that a state entity is an independent going concern is a narrow exception to sovereign immunity. In determining whether a state entity is an independent going concern, courts should consider both the character and breadth of the statutory powers granted to the entity. Mayhugh v. State, 2015 WI 77
, 364 Wis. 2d 208
, 867 N.W.2d 754
Section 301.04, which permits the Department of Corrections (DOC) to sue and be sued, is not an express waiver of the DOC's tort immunity but rather addresses the DOC's capacity to be sued. Mayhugh v. State, 2015 WI 77
, 364 Wis. 2d 208
, 867 N.W.2d 754
Congress lacks the power to subject the states to private suits in their own state courts. Alder v. Maine, 527 U.S. 706
, 144. L. Ed. 2d 636 (1999).
The U.S. Constitution does not permit a state to be sued by a private party without the state's consent in the courts of a different state. Franchise Tax Board v. Hyatt, 587 U.S. ___, 139 S. Ct. 1485
, 203 L. Ed. 2d 768
The state has removed only the substantive defense of governmental tort immunity and the state constitutional barrier providing that the state may be sued only upon its consent remains. Knox v. Regents of University of Wisconsin, 385 F. Supp. 886
State immunity from suit. 1971 WLR 879.
Oath of office.
Members of the legislature, and all officers, executive and judicial, except such inferior officers as may be by law exempted, shall before they enter upon the duties of their respective offices, take and subscribe an oath or affirmation to support the constitution of the United States and the constitution of the state of Wisconsin, and faithfully to discharge the duties of their respective offices to the best of their ability.
The legislature shall determine what persons shall constitute the militia of the state, and may provide for organizing and disciplining the same in such manner as shall be prescribed by law.
Elections by legislature. Section
As amended Nov. 1982
] All elections made by the legislature shall be by roll call vote entered in the journals. [1979 J.R. 36, 1981 J.R. 29, vote Nov. 1982
Special and private laws prohibited. Section
[As created Nov. 1871 and amended Nov. 1892 and April 1993
] The legislature is prohibited from enacting any special or private laws in the following cases:
For changing the names of persons, constituting one person the heir at law of another or granting any divorce.
For laying out, opening or altering highways, except in cases of state roads extending into more than one county, and military roads to aid in the construction of which lands may be granted by congress.
For authorizing persons to keep ferries across streams at points wholly within this state.
For authorizing the sale or mortgage of real or personal property of minors or others under disability.
For locating or changing any county seat.
For assessment or collection of taxes or for extending the time for the collection thereof.
For granting corporate powers or privileges, except to cities.
For authorizing the apportionment of any part of the school fund.
For incorporating any city, town or village, or to amend the charter thereof. [1870 J.R. 13, 1871 J.R. 1, 1871 c. 122, vote Nov. 1871; 1889 J.R. 4, 1891 J.R. 4, 1891 c. 362, vote Nov. 1892; 1991 J.R. 27, 1993 J.R. 3, vote April 1993
An act validating existing sewerage districts previously held to be unconstitutionally organized is within the power of the legislature. Madison Metropolitan Sewerage Dist. v. Stein, 47 Wis. 2d 349
, 177 N.W.2d 131
The Housing Authority, designated as a corporation, does not violate the prohibition against granting of corporate powers by the legislature. State ex rel. Warren v. Nusbaum, 59 Wis. 2d 391
, 208 N.W.2d 780
Sec. 31 includes a public purpose doctrine allowing the granting of limited corporate powers to entities created to promote a public and state purpose. Brookfield v. Milwaukee Sewerage District, 171 Wis. 2d 400
, 491 N.W.2d 484
The plain meaning of sub. (9) pertains not just to legislation directly incorporating a municipality, but also to legislation providing a process for incorporating. A provision in a budget bill that exempted a town from the normal statutory incorporation process violated sub. (9) and was unconstitutional. Kuehne v. Burdette, 2009 WI App 119
, 320 Wis. 2d 784
, 772 N.W.2d 225
Creation of citizens utility board is constitutional. 69 Atty. Gen. 153.
General laws on enumerated subjects. Section
[As created Nov. 1871 and amended April 1993
] The legislature may provide by general law for the treatment of any subject for which lawmaking is prohibited by section 31 of this article. Subject to reasonable classifications, such laws shall be uniform in their operation throughout the state. [1870 J.R. 13, 1871 J.R. 1, 1871 c. 122, vote Nov. 1871; 1991 J.R. 27, 1993 J.R. 3, vote April 1993
Auditing of state accounts. Section
As created Nov. 1946
] The legislature shall provide for the auditing of state accounts and may establish such offices and prescribe such duties for the same as it shall deem necessary. [1943 J.R. 60, 1945 J.R. 73, vote Nov. 1946
Continuity of civil government. Section
[As created April 1961
] The legislature, in order to ensure continuity of state and local governmental operations in periods of emergency resulting from enemy action in the form of an attack, shall
(1) forthwith provide for prompt and temporary succession to the powers and duties of public offices, of whatever nature and whether filled by election or appointment, the incumbents of which may become unavailable for carrying on the powers and duties of such offices, and (2) adopt such other measures as may be necessary and proper for attaining the objectives of this section. [1959 J.R. 50, 1961 J.R. 10, vote April 1961
Governor; lieutenant governor; term. Section
[As amended April 1979
The executive power shall be vested in a governor who shall hold office for 4 years; a lieutenant governor shall be elected at the same time and for the same term.
[1977 J.R. 32, 1979 J.R. 3, vote April 1979
Executive orders of the Wisconsin governor. 1980 WLR 333.
Governor; 4-year term.
[Created April 1967; repealed April 1979; see 1965 J.R. 80, 1967 J.R. 10 and 15, vote April 1967; 1977 J.R. 32, 1979 J.R. 3, vote April 1979.
Lieutenant governor; 4-year term.
[Created April 1967; repealed April 1979; see 1965 J.R. 80, 1967 J.R. 10 and 15, vote April 1967; 1977 J.R. 32, 1979 J.R. 3, vote April 1979.
No person except a citizen of the United States and a qualified elector of the state shall be eligible to the office of governor or lieutenant governor.
[As amended April 1967
] The governor and lieutenant governor shall be elected by the qualified electors of the state at the times and places of choosing members of the legislature. They shall be chosen jointly, by the casting by each voter of a single vote applicable to both offices beginning with the general election in 1970. The persons respectively having the highest number of votes cast jointly for them for governor and lieutenant governor shall be elected; but in case two or more slates shall have an equal and the highest number of votes for governor and lieutenant governor, the two houses of the legislature, at its next annual session shall forthwith, by joint ballot, choose one of the slates so having an equal and the highest number of votes for governor and lieutenant governor. The returns of election for governor and lieutenant governor shall be made in such manner as shall be provided by law. [1965 J.R. 45, 1967 J.R. 11 and 14, vote April 1967
Powers and duties.
The governor shall be commander in chief of the military and naval forces of the state. He shall have power to convene the legislature on extraordinary occasions, and in case of invasion, or danger from the prevalence of contagious disease at the seat of government, he may convene them at any other suitable place within the state. He shall communicate to the legislature, at every session, the condition of the state, and recommend such matters to them for their consideration as he may deem expedient. He shall transact all necessary business with the officers of the government, civil and military. He shall expedite all such measures as may be resolved upon by the legislature, and shall take care that the laws be faithfully executed.
The legislature cannot require the governor to make specific recommendations to a future legislature or to include future appropriations in the executive budget bill. State ex rel. Warren v. Nusbaum, 59 Wis. 2d 391
, 208 N.W.2d 780
Compensation of governor. Section
Amended Nov. 1869 and Nov. 1926; repealed Nov. 1932; see 1868 J.R. 9, 1869 J.R. 2, 1869 c. 186, vote Nov. 1869; 1923 J.R. 80, 1925 J.R. 52, 1925 c. 413, vote Nov. 1926; 1929 J.R. 69, 1931 J.R. 52, vote Nov. 1932.
The governor shall have power to grant reprieves, commutations and pardons, after conviction, for all offenses, except treason and cases of impeachment, upon such conditions and with such restrictions and limitations as he may think proper, subject to such regulations as may be provided by law relative to the manner of applying for pardons. Upon conviction for treason he shall have the power to suspend the execution of the sentence until the case shall be reported to the legislature at its next meeting, when the legislature shall either pardon, or commute the sentence, direct the execution of the sentence, or grant a further reprieve. He shall annually communicate to the legislature each case of reprieve, commutation or pardon granted, stating the name of the convict, the crime of which he was convicted, the sentence and its date, and the date of the commutation, pardon or reprieve, with his reasons for granting the same.
Executive clemency in Wisconsin. Bauer. 1973 WLR 1154.