## Facts

- The City alleged persistent prostitution-related activity in defined Milwaukee areas, causing resident and business complaints and creating enforcement difficulties.
- The City sued multiple defendants, alleging their prostitution activities constituted a public nuisance under Wis. Stat. § 823.02 and seeking injunctive relief.
- The circuit court entered a permanent injunction barring specified “prostitution-related activities” in designated areas.
- Prohibited acts included soliciting passersby or motorists, offering or agreeing to sexual acts for value, approaching vehicles and directing them to secluded locations for such activity, certain conduct at bus stops and pay phones, loitering on private property without permission, and being within 25 feet of another enjoined person engaged in listed activities.
- Several defendants appealed, challenging the use of public-nuisance law to address prostitution and arguing parts of the injunction were unconstitutional.

## Issues

1. Whether Wis. Stat. § 823.02 authorizes a municipality to seek a public-nuisance injunction against individuals for geographically concentrated prostitution-related activity.
2. Whether the injunction’s specific restrictions were unconstitutional because they were vague, overbroad, or improperly burdened protected speech, movement, or association.
3. Whether the “25-foot” proximity restriction impermissibly restricted association by penalizing mere proximity rather than nuisance-related conduct.

## Decision

- The court affirmed that the City could use Wis. Stat. § 823.02 to seek injunctive relief to abate prostitution-related activity treated as a public nuisance in specified areas.
- The court upheld provisions targeting illegal prostitution and conduct closely tied to prostitution.
- The court reversed or required modification of provisions that swept in lawful conduct through vague or overbroad terms, including parts of the bus-stop and pay-phone restrictions.
- The court narrowed or invalidated the 25-foot proximity provision to the extent it restricted mere public proximity or association without a sufficient connection to prostitution-related conduct.
- The judgment was affirmed in part, reversed in part, and remanded for entry of a revised injunction consistent with the court’s constitutional analysis.

## Legal Principles

- A municipality may seek to enjoin a public nuisance under Wis. Stat. § 823.02 based on persistent, location-specific patterns of prostitution-related unlawful conduct.
- Injunction terms must be sufficiently definite and narrowly drawn; they may target illegal acts and conduct directly incidental to illegal acts, but may not broadly prohibit ordinary lawful public behavior based on a person’s status.
- Restrictions that burden association or public presence must be tied to nuisance-related conduct; an injunction may address coordinated prostitution activity but cannot categorically bar mere proximity in public spaces.

## Conclusion

Wisconsin’s Court of Appeals permitted the City to use public-nuisance injunctions to curb entrenched prostitution in defined areas, while requiring that injunction provisions be narrowly limited to prostitution-related conduct and not drafted so broadly or vaguely that they restrict lawful public activity or mere association.


City of Milwaukee v. Burnette, 248 Wis. 2d 820, 637 N.W.2d 447 (Wis. Ct. App. 2001)