State v. Heather Jan VanBeek

2021 WI 51

SUPREME COURT OF WISCONSIN
CASE NO.: 2019AP447-CR

COMPLETE TITLE: State of Wisconsin,
Plaintiff-Respondent,
v.
Heather Jan VanBeek,
Defendant-Appellant.

ON CERTIFICATION FROM THE COURT OF APPEALS

OPINION FILED: June 4, 2021
SUBMITTED ON BRIEFS:
ORAL ARGUMENT: February 23, 2021

SOURCE OF APPEAL:
COURT: Circuit
COUNTY: Sheboygan
JUDGE: Kent R. Hoffman

JUSTICES:
ROGGENSACK, J., delivered the majority opinion of the Court with
respect to ¶¶22-35 and ¶¶46-65, in which ANN WALSH BRADLEY,
DALLET, and KAROFSKY, JJ., joined, and an opinion with respect
to ¶¶1-21, ¶¶36-45, and ¶66. DALLET, J., filed a concurring
opinion, in which ANN WALSH BRADLEY and KAROFSKY, JJ., joined.
ZIEGLER, C.J., filed a dissenting opinion, in which REBECCA
GRASSL BRADLEY and HAGEDORN, JJ., joined.
NOT PARTICIPATING:

ATTORNEYS:
For the defendant-appellant, there were briefs filed by Jay
Pucek, assistant state public defender. There was an oral
argument by Jay Pucek.

For the plaintiff-respondent, there was a brief filed by
Scott E. Rosenow, assistant attorney general; with whom on the
brief was Joshua L. Kaul, attorney general. There was an oral
argument by Scott E. Rosenow.
 2021 WI 51

NOTICE
This opinion is subject to further
editing and modification. The final
version will appear in the bound
volume of the official reports.
No.2019AP447-CR
(L.C. No. 2017CF720)

STATE OF WISCONSIN : IN SUPREME COURT

State of Wisconsin,

Plaintiff-Respondent,
FILED
v. JUN 4, 2021

Heather Jan VanBeek, Sheila T. Reiff
Clerk of Supreme Court

Defendant-Appellant.

ROGGENSACK, J., delivered the majority opinion of the Court with
respect to ¶¶22-35 and ¶¶46-65, in which ANN WALSH BRADLEY,
DALLET, and KAROFSKY, JJ., joined, and an opinion with respect
to ¶¶1-21, ¶¶36-45, and ¶66. DALLET, J., filed a concurring
opinion, in which ANN WALSH BRADLEY and KAROFSKY, JJ., joined.
ZIEGLER, C.J., filed a dissenting opinion, in which REBECCA
GRASSL BRADLEY and HAGEDORN, JJ., joined.

APPEAL from a judgment and an order of the Circuit Court

for Sheboygan County. Reversed and cause remanded.

¶1 PATIENCE DRAKE ROGGENSACK, J. This case is before us

on certification from the court of appeals1 pursuant to Wis.

Stat. § (Rule) 809.61 (2019-20).2 The court of appeals certified

1State v. VanBeek, No. 2019AP447-CR, certification (Wis.
Ct. App. Aug. 12, 2020).
2 All subsequent references to the Wisconsin Statutes are to
(continued)
 No. 2019AP447-CR

the following question: "whether a consensual encounter becomes

an unconstitutional seizure under the Fourth Amendment when an

officer requests and takes an individual's driver's license to

the officer's squad car without reasonable suspicion."

Accordingly, we review the Circuit Court of Sheboygan County's3

judgment of conviction of Heather VanBeek for possession of

methamphetamine and drug paraphernalia. VanBeek's conviction

arose from a search of her vehicle that she contends violated

her right to be free from unreasonable searches and seizures

under the Fourth Amendment to the United States Constitution.

¶2 On the certified question, we conclude that the answer

depends on the totality of circumstances surrounding an

encounter. Further, while VanBeek was not seized when Officer

Oetzel took her driver's license to run a records check, VanBeek

was seized when Oetzel returned to her vehicle, withheld her

driver's license and continued to question her and her passenger

in order to hold her until a drug-sniff dog, i.e., the K9 unit,

that he had requested arrived. Finally, we conclude that the
seizure was unlawful because, based on the totality of

circumstances, Oetzel did not have reasonable suspicion that

VanBeek was engaged in criminal activity at the time he seized

her. Accordingly, we reverse the circuit court's judgment of

the 2019-20 version unless otherwise indicated.
3 The Honorable Kent Hoffman of Sheboygan County presided.

2
 No. 2019AP447-CR

conviction and remand with instruction to grant VanBeek's motion

to suppress.

I. BACKGROUND

A. Factual Background

¶3 On the night of November 12, 2017, the City of

Sheboygan Police Department received an anonymous call that a

truck, with two occupants, had been sitting near the

intersection of 6th Street and Superior Avenue in Sheboygan for

approximately an hour. The caller also stated that a person

approached the truck with a backpack and left later without it.

The caller provided no description of the truck.

¶4 Sheboygan Police Officer Sung Oetzel responded to the

call. When he arrived, Oetzel saw only one truck in the

location that had been identified. However, to be sure it was

the truck to which the caller referred, he quickly drove around

the area and confirmed there was only one truck with two

occupants nearby. Oetzel parked his squad car behind the truck

and activated his squad car's spotlight.4
¶5 VanBeek and her passenger, Branden Sitzberger, were

sitting in VanBeek's truck when Oetzel approached. Oetzel made

contact with VanBeek, saying that "someone called in, suspicious

that two people were just sitting here."5 VanBeek responded that

4He did not activate his squad car's red and blue emergency
lights.
5The entire interaction between VanBeek and Oetzel was
recorded on Oetzel's body camera.

3
 No. 2019AP447-CR

she was "waiting for [Sitzberger] to walk." Sitzberger

similarly stated that VanBeek had just picked him up. Oetzel

informed VanBeek that the caller said VanBeek had been sitting

there for an hour, which VanBeek denied. Sitzberger said it had

been "about ten minutes." Oetzel responded by saying "it was an

anonymous caller, you know how people exaggerate sometimes. I

don't know." VanBeek answered affirmatively when Oetzel asked

if Sitzberger was her boyfriend and if she was "just waiting";

Oetzel responded "sounds legit." During his initial encounter

with VanBeek, Oetzel did not ask about a backpack or a third

person that the caller had mentioned. There is nothing in the

record to show whether such a person had been present.

¶6 Oetzel then asked VanBeek and Sitzberger for their

information "for his report, so [he] [could] just get out of

[here]." Sitzberger asked if Oetzel was going to just write

down the information. Oetzel told Sitzberger he wanted their

"IDs" so he could "compare faces." While VanBeek and Sitzberger

were giving their driver's licenses to Oetzel, Oetzel asked what
they were doing that night, and Sitzberger responded that

VanBeek had just picked him up and they were going back to

Cascade. Oetzel took possession of their driver's licenses and

said "Okay. I'll be right back, okay." VanBeek and Sitzberger

replied "alright."

¶7 Before returning to his squad car, Oetzel spoke to

another officer who had arrived on scene. Oetzel told the other

officer that VanBeek said she was "waiting for her boyfriend"
and "[he] [didn't] think it [was] anything suspicious." When he
4
 No. 2019AP447-CR

ran a records check on VanBeek and Sitzberger, Oetzel discovered

that neither person had outstanding warrants. However, Oetzel

learned that VanBeek had overdosed in February of that year and

that Sitzberger was on supervision. Based on these two

additional facts, Oetzel called for the K9 unit. Oetzel then

exited his squad car and once again spoke to the other officer

who was on scene. As he returned to VanBeek's vehicle, Oetzel

asked the other officer if he "had enough to just hold them

until [the K9 unit] [got] [there]."

¶8 After he returned to VanBeek's vehicle, while

retaining possession of their driver's licenses, Oetzel asked

VanBeek and Sitzberger numerous questions, some of which he had

already asked and they had answered. For example, Oetzel asked

VanBeek to confirm that she lived in Cascade, to repeat her

address, to confirm her date of birth, and to provide a phone

number. As Oetzel questioned her, VanBeek asked whether her

"license was bad." Oetzel answered no, and she answered

Oetzel's questions. After questioning VanBeek, Oetzel moved on
to Sitzberger, asking him to confirm his address and for a phone

number. Sitzberger also complied.

¶9 While retaining their driver's licenses, Oetzel

continued his questioning, saying "Heather, you were saying that

you were picking him up. I thought you [Sitzberger] said you

live here." Sitzberger denied saying that he lived in the area

and that he was at a friend's house. Oetzel asked, "which

friend?" and Sitzberger responded with the name "Jake" who he
said lived "a couple blocks down." Oetzel asked whether Jake
5
 No. 2019AP447-CR

lived on Superior, and Sitzberger responded affirmatively,

though he seemed unsure whether Jake lived at 7th or 8th street.

Sitzberger said that he thought VanBeek was outside but did not

see her, so he called her and walked around trying to find her.

¶10 Oetzel then asked Sitzberger more questions about

Jake, including where exactly on Superior Jake lived, for Jake's

full name, and for Jake's phone number. Oetzel told Sitzberger

that he "just want[ed] to verify [Sitzberger's] story" because

Sitzberger was on supervision. He "wanted to confirm that there

[was] a Jake there so that [Sitzberger] wasn't lying to [him]."

Sitzberger offered to call Jake, but Oetzel told Sitzberger that

he would rather "have the phone number and [he] can call [Jake]

himself." After taking Jake's phone number down, Oetzel asked

Sitzberger if Sitzberger had been drinking. Sitzberger said

that he had not. Oetzel said that he asked because Sitzberger's

face was "a little red" and Sitzberger replied saying he "just

got done walking" and that it was hot in the truck. Oetzel then

returned to questioning Sitzberger about Jake.
¶11 This time, the questions included how Sitzberger knew

Jake and how long he had known him. Sitzberger responded,

telling Oetzel that he met Jake through a friend and that he had

known Jake for about five or six months. After taking down that

information, Oetzel circled back to his original questions and

asked VanBeek and Sitzberger how long they had been sitting

there. VanBeek said that up to that point she had been there

for "probably an hour." She clarified that before Oetzel
arrived she was there for half an hour. Oetzel exclaimed that
6
 No. 2019AP447-CR

an hour is "a long time" and asked if she had been sitting there

alone for awhile, which VanBeek responded to affirmatively.

Shortly thereafter, the K9 unit arrived, and Oetzel asked

VanBeek and Sitzberger to exit the truck.

¶12 After VanBeek and Sitzberger got out of the truck, the

K9 unit conducted a sweep of the truck and the dog alerted,

indicating there were drugs present. Oetzel and another officer

searched the truck and discovered one gram of methamphetamine

and a pipe, for which they arrested VanBeek. The entire

incident lasted approximately 25 minutes.

B. Procedural History

¶13 The State charged VanBeek with one count of Possession

of Methamphetamine, contrary to Wis. Stat. § 961.41(3g)(g), and

one count of Possession of Drug Paraphernalia, contrary to Wis.

Stat. § 961.573(1). VanBeek moved to suppress the

methamphetamine and drug pipe found during the search.

¶14 In her suppression motion, VanBeek contended that

Oetzel's initial contact with her was unlawful, and, even if it
were not, the stop was extended beyond its initial mission

without reasonable suspicion that she or Sitzberger were

committing, had committed or were about to commit a crime. She

argued that Oetzel's extended questioning while retaining her

driver's license violated her right to be free from unreasonable

searches and seizures as guaranteed by both the Fourth Amendment

to the United States Constitution and Article I, Section 11 of

the Wisconsin Constitution.

7
 No. 2019AP447-CR

¶15 The circuit court held two hearings on VanBeek's

motion to suppress where the court heard testimony from Oetzel.

On direct examination, Oetzel testified that he was dispatched

to the intersection based on an anonymous call, but "the

description of the vehicle was not provided by the anonymous

caller so [he] went further south" to see if any other vehicles

were sitting idle with two occupants.

¶16 Oetzel confirmed that he did not know why Sitzberger

was on supervision and that he "didn't ask dispatch." On cross-

examination, Oetzel gave conflicting testimony on whether he

mentioned the anonymous caller's information regarding a third

person or a backpack during the initial encounter. First,

Oetzel said that he "[couldn't] recall" whether he mentioned the

backpack. A few moments later, he stated that "[he] told them

why [he] was there with the suspicious complaint about two

individuals being inside a vehicle, a truck, and that [an]

unknown person approached them with a backpack." The bodycam

footage confirms that Oetzel did not mention the backpack at any
point during the interaction. And Oetzel further confirmed this

on re-cross examination.

¶17 Oetzel also confirmed that he did not have reasonable

suspicion at the time that he took VanBeek's and Sitzberger's

driver's licenses back to his squad car. Finally, Oetzel

confirmed that VanBeek had not committed any traffic violations

and that he did not see or smell any indications of drug use.

¶18 In analyzing VanBeek's motion to suppress, the circuit
court noted that it was required to "judg[e] the reasonableness
8
 No. 2019AP447-CR

of a stop and search [and] . . . to look at the totality of

circumstances of the situation." The circuit court concluded

that "the initial contact with [VanBeek's] vehicle was

reasonable and that . . . the entire contact with the defendant

and the passenger was reasonable under a totality of the

circumstances."6 This led the circuit court to conclude that the

K9 search was also reasonable. Accordingly, the circuit court

denied VanBeek's motion to suppress.

¶19 VanBeek pled no contest, and the circuit court

subsequently entered a judgment of conviction. VanBeek appealed

to the court of appeals, where she argued that "Oetzel's demand

for and retention of [her] driver's license transformed his

contact with her into a seizure." VanBeek contended that "no

reasonable person would feel free to leave and go about his or

her business once a police officer takes and retains their

driver's license." Accordingly, VanBeek contended that she was

seized when Oetzel took her and Sitzberger's driver's licenses

back to his squad car. VanBeek further asserted that the
seizure was not justified by reasonable suspicion or the

The circuit court concluded that the initial approach
6

"probably" was justified under the community caretaker doctrine.
VanBeek's trial counsel asked for clarification on this point,
and the court stated that "[i]f you look at the standards it
clearly is a seizure, you know, because he approaches the
vehicle, and I think it was a bona fide community caretaker
activity as the state laid out[.]" The court also found that
the initial contact was "a valid investigative stop . . . under
the community caretaker [doctrine]." The court further
concluded that the secondary contact was valid under both the
community caretaker doctrine and based on reasonable suspicion.

9
 No. 2019AP447-CR

community caretaker doctrine and that, even if the initial

interaction was valid, the extension of the stop to wait for the

K9 unit was not.

¶20 The State countered, arguing that "Oetzel first seized

VanBeek when he asked her to exit her truck right before the dog

sniff occurred." The State disagreed with VanBeek's position

that she was seized when Oetzel took her driver's license back

to his squad car. The State argued that per our holding in

State v. Floyd, 2017 WI 78, 377 Wis. 2d 394, 898 N.W.2d 560,

Oetzel's retention of VanBeek's license was not a seizure and

rather, "[Oetzel] did not attempt to restrict [VanBeek's]

movement until" he asked her to step out of her vehicle.

Alternatively, the State argued that the earliest Oetzel seized

VanBeek was during his second interaction. In either event, the

State maintained that Oetzel had reasonable suspicion for the

seizure.

¶21 After reviewing Fourth Amendment jurisprudence as it

relates to VanBeek's contentions, the court of appeals certified
an issue to us in regard to Oetzel taking VanBeek's driver's

license to his squad car without reasonable suspicion. The

court of appeals reasoned that "[t]his case presents an

important issue that arises when officers investigate citizen

complaints that are not, as yet, supported by reasonable

suspicion to believe crime is afoot." The court of appeals also

sought further clarification on the following statement from

Floyd: "If an officer withholds a person's documents, there is
good reason to believe that the person was not 'free to leave'
10
 No. 2019AP447-CR

at that time." Id., ¶31. We accepted the court of appeals'

certification.7

II. DISCUSSION

A. Standard of Review

¶22 Whether evidence should have been suppressed is a

question of constitutional fact. State v. Coffee, 2020 WI 53,

¶19, 391 Wis. 2d 831, 943 N.W.2d 845. We "employ a two-step

inquiry" to make that determination. Id. First, we uphold a

circuit court's findings of historic fact unless they are

clearly erroneous. Id., ¶20. Second, we independently and

objectively examine the facts known to the officer at the time

of the alleged seizure, applying constitutional principles to

them. Id. "The burden is on the State to prove that the search

was constitutionally permissible because police did not obtain a

warrant prior to searching the vehicle." Id., ¶21 (citing State

v. Johnston, 184 Wis. 2d 794, 806, 518 N.W.2d 759 (1994)).

B. Fourth Amendment Principles

¶23 The Fourth Amendment to the United States Constitution
protects people against unreasonable searches and seizures.

U.S. Const. amend. IV. The Wisconsin Constitution contains

nearly identical protections, Wis. Const. art. I, § 11, which we

have interpreted consistent with its federal counterpart. State

"When we accept certification from the court of appeals,
7

we acquire jurisdiction of the entire appeal." State v. Denk,
2008 WI 130, ¶29, 315 Wis. 2d 5, 758 N.W.2d 775. Accordingly,
"[w]e . . . consider all issues raised before the court of
appeals." Id.

11
 No. 2019AP447-CR

v. Kramer, 2009 WI 14, ¶18, 315 Wis. 2d 414, 759 N.W.2d 598. In

this case, we are focused on the meaning of "seizures" within

the Fourth Amendment.

¶24 Although courts regularly talk about "searches and

seizures" as though they were an inseparable tandem, they are

constitutionally and analytically distinct principles. State v.

Arias, 2008 WI 84, ¶25, 311 Wis. 2d 358, 752 N.W.2d 748. "A

seizure differs from a search, as it 'deprives the individual of

dominion over his or her person or property.'" Id. (citing

Horton v. California, 496 U.S. 128, 133 (1990)).

¶25 When a seizure is claimed to have occurred, we first

determine when it began and whether it was constitutionally

permissible at its inception. Arias, 311 Wis. 2d 358, ¶30

(citing Terry v. Ohio, 392 U.S. 1, 19-20 (1968)). We then

determine whether the officer's continued actions were

"reasonably related in scope to the circumstances which

justified the interference in the first place." Arias, 311

Wis. 2d 358, ¶30 (citing Terry, 392 U.S. at 20).
¶26 Not every police-citizen interaction implicates the

Fourth Amendment. See Terry, 392 U.S. at 19 n.16; see also

State v. Griffith, 2000 WI 72, ¶39, 263 Wis. 2d 48, 613 N.W.2d

72. Law enforcement officers may approach citizens on the

street, put questions to them, and ask for identification

without implicating the Fourth Amendment "as long as the police

do not convey a message that compliance with their request is

required." Florida v. Bostick, 501 U.S. 429, 434 (1991); see
also INS v. Delgado, 466 U.S. 210, 216 (1984) ("[P]olice
12
 No. 2019AP447-CR

questioning, by itself, is unlikely to result in a Fourth

Amendment violation. While most citizens will respond to a

police request, the fact that people do so, and do so without

being told they are free not to respond, hardly eliminates the

consensual nature of the response."). Absent law enforcement

conduct that indicates required compliance, these types of

interactions are consensual encounters and generally do not

receive Fourth Amendment scrutiny. Bostick, 501 U.S. at 434.

¶27 However, a police-citizen interaction can rise to the

level of a temporary, investigative detention, commonly referred

to as a Terry stop. Terry, 392 U.S. at 30. To pass Fourth

Amendment scrutiny, Terry stops must be supported by reasonable

suspicion. Id.; see Wis. Stat. § 968.24 (codifying the standard

for Terry stops).

¶28 An officer has reasonable suspicion "when, at the time

of the stop, he or she possesses specific and articulable facts

which would warrant a reasonable belief that criminal activity

[is or] was afoot." State v. Waldner, 206 Wis. 2d 51, 55, 556
N.W.2d 681 (1996) (citing State v. Chambers, 55 Wis. 2d 289,

294, 198 N.W.2d 377 (1972)). Finally, arrests are seizures and

must be supported by probable cause. Hayes v. Florida, 470 U.S.

811, 815-16 (1985). Here, we determine whether the consensual

interaction between VanBeek and Oetzel shifted at some point in

time from a consensual encounter to a seizure for which

reasonable suspicion was required.

¶29 A seizure occurs if, under the totality of
circumstances, the "police conduct would have communicated to a
13
 No. 2019AP447-CR

reasonable person that the person was not free to decline the

officers' request or otherwise terminate the encounter."

Bostick, 501 U.S. at 439. Stated otherwise, a seizure occurs

"when the officer, by means of physical force or show of

authority, has in some way restrained the liberty of a citizen."

United States v. Mendenhall, 446 U.S. 544, 552 (1980).

"Determining whether a seizure has occurred is a highly

fact-bound inquiry." United States v. Tyler, 512 F.3d 405, 410

(7th Cir. 2008).

¶30 We determine whether a person would have felt free to

leave or otherwise terminate the encounter based on an objective

view of the specific facts presented. That analysis employs the

"innocent reasonable person, rather than the specific

defendant." County of Grant v. Vogt, 2014 WI 76, ¶30, 356

Wis. 2d 343, 850 N.W.2d 253. "If a reasonable person would have

felt free to leave but the person at issue nonetheless remained

in police presence, perhaps because of a desire to be

cooperative, there is no seizure." State v. Young, 2006 WI 98,
¶37, 294 Wis. 2d 1, 717 N.W.2d 729.

C. The Certified Question

¶31 The court of appeals certified the question of whether

an officer taking a citizen's driver's license back to the

officer's squad car necessarily constitutes a seizure. As we

explain below, we conclude that such law enforcement officer

conduct could amount to a seizure. However, rather than create

a bright-line rule that such conduct is always a seizure or is

14
 No. 2019AP447-CR

never a seizure, we continue to analyze whether a seizure

occurred based on the totality of circumstances presented.

¶32 "In the ordinary course, a police officer is free to

ask a person for identification without implicating the Fourth

Amendment." Hiibel v. Sixth Jud. Dist. Ct. of Nev., 542 U.S.

177, 185 (2004); see also Mendenhall, 446 U.S. at 555 ("[The

agents] requested, but did not demand to see the respondent's

identification and ticket. Such conduct without more, did not

amount to an intrusion upon any constitutionally protected

interest."). Further, an officer approaching a parked car and

questioning the individual or individuals within does not

necessarily amount to a seizure. See, e.g., Vogt, 356 Wis. 2d

343, ¶41 (concluding that an officer parking behind a vehicle,

approaching and knocking on the window to question the occupant

did not amount to a seizure); see also United States v.

Jefferson, 906 F.2d 346, 349 (8th Cir. 1990) (collecting cases).

¶33 However, what may begin as a valid and consensual

encounter can rise to the level of a seizure, and an officer's
retention of an individual's driver's license is an important

factor that courts consider. For example, in Florida v. Royer,

narcotics agents approached Royer in the concourse of an airport

and asked to see his ticket and his identification. Florida v.

Royer, 460 U.S. 491, 494 (1983). Royer explained the

discrepancy between the name on his ticket and the name on his

identification. Id. The officers, rather than returning

Royer's identification and airline ticket, informed Royer that
they were narcotics officers and "asked Royer to accompany them
15
 No. 2019AP447-CR

to a room" away from the concourse. Id. The officers also

retrieved Royer's luggage without Royer's consent. Royer

unlocked one suitcase, which an officer opened "without seeking

further assent from Royer," and the officers broke open the

other suitcase after Royer said "go ahead." Id. Each bag

contained narcotics, and Royer was arrested. Id.

¶34 The Court analyzed these circumstances and the

plurality concluded that "[w]hat had begun as a consensual

inquiry in a public place had escalated into an investigatory

procedure in a police interrogation room, where the police,

unsatisfied with previous explanations, sought to confirm their

suspicions." Id. at 503. The Court reasoned that because Royer

was in the police interrogation room, "[t]he officers had

Royer's ticket, they had his identification, and they had seized

his luggage[,]" the interaction lost its consensual nature. Id.

In providing additional clarity, the Court stated that, had the

officers "return[ed] his ticket and driver's license, and

inform[ed] him that he was free to go if he so desired, the
officers may have obviated any claim that the encounter was

anything but a consensual matter from start to finish." Id. at

504 (emphasis added).

¶35 A number of federal circuits have reasoned that the

prolonged retention of an individual's driver's license was an

important factor in determining whether a seizure occurred. For

example, the Seventh Circuit included an officer's retention of

16
 No. 2019AP447-CR

a driver's license in its non-exhaustive list of factors to

consider.8 Tyler, 512 F.3d at 410 (listing relevant factors in

the totality of circumstances analysis including "whether the

person was deprived of identification or other documents without

which he could not leave"); see also United States v. Weaver,

282 F.3d 302, 311 (4th Cir. 2002) (noting that "the retention of

a person's identification is an important factor in determining

whether a 'seizure' within the meaning of the Fourth Amendment

occurred" but declining to adopt a bright-line rule); Jefferson,

906 F.2d at 349 ("We have . . . noted that in certain

circumstances a consensual encounter may become a seizure if the

officer retains the individual's driver's license."); United

States v. Chan-Jimenez, 125 F.3d 1324, 1326 (9th Cir. 1997)

("When a law enforcement official retains control of a person's

identification papers, such as vehicle registration documents or

a license, longer than necessary to ascertain that everything is

in order, and initiates further inquiry while holding on to the

8The Seventh Circuit likened Tyler to the court's
jurisprudence surrounding "airport and train station stops."
United States v. Tyler, 512 F.3d 405, 410 (7th Cir. 2008). The
court concluded there was a meaningful distinction in the
expediency with which officers asked for, examined and
ultimately returned an individual's driver's license. Id.
("Where the officers told the defendant he was under
investigation for carrying drugs or retained possession of his
identification, travel documents, and/or luggage, we held there
was a seizure. . . . Where the officers only generally
identified themselves as narcotics investigators and immediately
returned the defendant's identification and travel documents, we
held the initial consensual encounter did not ripen into a
seizure.") (internal citations omitted).

17
 No. 2019AP447-CR

needed papers, a reasonable person would not feel free to

depart."); United States v. Waksal, 709 F.2d 653, 660 (11th Cir.

1983) ("We fail to see how appellant could have felt free to

walk away from police officers when they still possessed the

documents necessary for him to continue his journey.").

¶36 We conclude that an officer's retention of an

individual's driver's license is a significant but not the

dispositive fact. Our conclusion is consistent with Wisconsin

Fourth Amendment precedent. In State v. Luebeck, the court of

appeals analyzed an encounter during which an initially valid

stop ripened into an unlawful seizure. See generally State v.

Luebeck, 2006 WI App 87, 292 Wis. 2d 748, 715 N.W.2d 639.

There, the officer stopped Luebeck for a lane deviation and a

suspicion that he was driving under the influence. Id., ¶2.

The officer obtained Luebeck's and his passenger's driver's

licenses and ran warrant checks. Id. The officer also

instructed Luebeck to perform a field-sobriety test, which

Luebeck passed, and the officer administered a preliminary
breath test; Luebeck was under the legal limit. Id., ¶3. The

officer ultimately "advised Luebeck that he was going to issue

him a warning for the lane deviation and then release him." Id.

¶37 While retaining Luebeck's driver's license and having

not yet issued him the warning, the officer continued to

question Luebeck about his passenger's ability to drive in his

place. Id., ¶4. Before administering a breath test on

Luebeck's passenger, the officer asked if Luebeck had anything
illegal on his person or in his car. Id. Luebeck denied each
18
 No. 2019AP447-CR

question and consented when the officer asked to search him and

the car. Id. Luebeck had nothing on his person, but the car

search uncovered marijuana. Id., ¶5. Luebeck argued that he

was unlawfully seized at the time he gave his consent to search.

Id., ¶6.

¶38 The circuit court and court of appeals agreed with

Luebeck. At the outset, the court of appeals agreed with the

State that the initial traffic stop was valid. Id., ¶¶7, 10.

However, after examining the totality of circumstances, the

court of appeals concluded that a reasonable person in Luebeck's

position would not have felt free to leave or otherwise

terminate the encounter at the time that Luebeck consented to

the search. Id., ¶15. The court distinguished Luebeck's case

from two cases on which the State relied and explained:

Luebeck was detained for over twenty minutes, his
driver's license was held by the police, no citation
or warning for lane deviation had yet been issued, he
passed all of the field sobriety tests and his
preliminary breath test indicated a blood alcohol
content below the legal limit, and yet he was being
questioned about his passenger's ability to drive in
his place. In Williams, the officer issued and
explained the traffic warning, returned Williams'
identification, shook hands with Williams, and said,
"[W]e'll let you get on your way then." . . . In
Gaulrapp, we expressly distinguished the case from
others that "involved prolonged detention after the
officers concluded or should have concluded that the
justification for the initial stop did not warrant
further detention."
Id. (quoting State v. Williams, 2002 WI 94, ¶¶7-12, 255 Wis. 2d

1, 646 N.W.2d 834 and State v. Gaulrapp, 207 Wis. 2d 600, 608,
558 N.W.2d 696 (Ct. App. 1996)).

19
 No. 2019AP447-CR

¶39 In coming to its conclusion, the court examined

numerous Tenth Circuit cases that had concluded "that a

motorist's consent to search his or her vehicle is invalid where

a deputy does not return documents relating to the initial

traffic stop prior to asking for consent to search the vehicle."

Luebeck, 292 Wis. 2d 748, ¶16.9 The court of appeals did not

adopt a bright-line rule to that effect; rather, it concluded

that "the fact that [a] person's driver's license or other

official documents are retained by the officer is a key factor

in assessing whether the person is 'seized.'" Id.

¶40 We made a similar statement in Floyd; however, Floyd's

language must be interpreted in context. There, Floyd was

stopped because his car registration had been suspended for

emissions violations. Floyd, 377 Wis. 2d 394, ¶2. Floyd had no

driver's license with him, but he did identify himself with a

Wisconsin State identification card, which he handed to the

officer. Id., ¶4. After the officer had drafted the relevant

citations, he returned to Floyd's car and while retaining
Floyd's identification card, he asked Floyd to step out of the

car so that he could explain the citations to him. Id., ¶5. It

was at this point that Floyd alleged that his seizure was

unlawfully extended. Id., ¶14.

See United States v. Lee, 73 F.3d 1034, 1040 (10th Cir.
9

1996), overruled on other grounds by United States v. Holt, 264
F.3d 1215, 1226 n.6 (10th Cir. 2001); United States v. Lambert,
46 F.3d 1064, 1068 (10th Cir. 1995); United States v. Walker,
933 F.2d 812, 817 (10th Cir. 1991).

20
 No. 2019AP447-CR

¶41 After Floyd had exited the vehicle, the officer asked

if he could search him, to which request the circuit court found

Floyd consented. Id., ¶9. Floyd argued on appeal that his

"consent" was not voluntary. "Specifically, he argued that

because Deputy Ruffalo had not returned his identification card

prior to asking whether he would consent to a search, his

response could not be voluntary because he was unlawfully

seized." Id., ¶31. This argument conflated Floyd's earlier

argument that his seizure became unlawful because it was

extended with an implication that consent was not voluntarily

given because the officer had not returned his identification

card. Id., ¶32. Although we reasoned that if an officer

retains a person's identification "there is good reason to

believe the person was not 'free to leave' at that time," id.,

¶31, we concluded that it had no bearing on Floyd's seizure

because his initial seizure was lawful and that seizure was not

unlawfully extended during the explanation of the tickets or the

officer's subsequent request to search him. Id., ¶31.
¶42 It was statements from Luebeck and Floyd that may have

caused the court of appeals to certify a question to us. We

stand by statements made in the contexts presented in those

cases. While the withholding or retention of an individual's

driver's license may be a "key factor," important, or

analytically significant, we decline to set forth a bright-line

rule that any time an officer retains an individual's driver's

license that person is seized. Rather, courts should continue

21
 No. 2019AP447-CR

to analyze whether the individual is seized based upon the

totality of circumstances.

¶43 The above cases teach that police conduct is the

dispositive factor in determining whether a seizure has

occurred. As the Supreme Court clearly set out in Bostick, "the

crucial test is whether, taking into account all of the

circumstances surrounding the encounter, the police conduct

would 'have communicated to a reasonable person that he was not

at liberty to ignore the police presence and go about his

business.'" Bostick, 501 U.S. at 437 (quoting Michigan v.

Chesternut, 486 U.S. 567, 569 (1988)).

¶44 Applying the above principles to this case, based upon

the totality of the circumstances, Oetzel taking VanBeek's

license back to his squad car did not amount to a seizure.

Oetzel took VanBeek's and Sitzberger's licenses back to the

squad car upon his request to do so and with their permissions.

The video-cam Oetzel was wearing recorded that when Oetzel

received the licenses that they handed to him, he began to move
away from VanBeek's car. He said, "Okay. I'll be right back,

okay?" VanBeek and Sitzberger both replied "alright." This

appears to be a continuation of what had been a cordial

interaction among VanBeek, Sitzberger and Oetzel.

¶45 A reasonable person in VanBeek's position would have

understood that their "alright" responses permitted Oetzel to

retain her driver's license and that her ability to lawfully

operate her vehicle would be delayed until Oetzel returned to
her car. Further, Oetzel reasonably relied on their verbal
22
 No. 2019AP447-CR

interactions before he returned to his squad car. Accordingly,

under the totality of circumstances that bear on the certified

question, VanBeek consented to Oetzel's retention of her license

until he returned from his squad car, and therefore, she was not

seized when he took her driver's license to the squad car and

ran a warrant check.10

D. Other Issues Presented

1. Seizure

¶46 Having re-affirmed that the totality of circumstances

continues to be the correct analytical metric by which to

analyze claimed seizures, we determine based on that metric

whether VanBeek was seized at any subsequent point during her

interaction with Oetzel. We conclude that VanBeek was seized

when Oetzel returned to her vehicle, retained her driver's

license, and continued to pose questions to her and Sitzberger

in order to prevent them from leaving before the K9 unit

arrived. We conclude that a reasonable person in VanBeek's

position would not have felt free to drive away and terminate
the encounter with Oetzel while he retained her driver's license

and continued to question her and Sitzberger.

Although we determine that in this case there was not a
10

seizure when Oetzel took their identifications back to his squad
car, nothing in this opinion should be taken as concluding that
an officer running a records check back at the officer's squad
car will never amount to a seizure. Courts are to continue to
analyze the totality of circumstances of each encounter.

23
 No. 2019AP447-CR

¶47 We also conclude that there are no facts from which to

conclude that VanBeek consented to Oetzel's retention of her

driver's license after he returned to her vehicle. Rather, a

reasonable person in VanBeek's position would have believed that

Oetzel would return her driver's license as soon as he returned

from his squad car so "he could get out of here."

¶48 However, when Oetzel returned, rather than "just

getting out of here" as he originally said, he retained their

driver's licenses. He also continued to question them for

nearly eight more minutes, in order to hold them until the K9

unit he had requested arrived. Merely because this was not a

traffic stop in the ordinary sense, it does not follow that

Oetzel's conduct did not turn the interaction into an

investigative detention.

¶49 Oetzel's questioning after his return from his squad

car was repetitive of questions he had already asked and they

had answered. VanBeek was confused by Oetzel's repetitive

questions and asked him if her "license was bad," indicating
that she had expected to have her license returned and be on her

way back to Cascade.

¶50 A reasonable person being repetitively questioned

while the officer retained her driver's license would not feel

free to drive away and thereby terminate the encounter. It was

Oetzel's conduct of retaining their driver's licenses while

repeatedly asking questions that she and Sitzberger had already

answered, that coerced VanBeek to remain in Sheboygan. Also,
Oetzel's questioning was intended to require them to remain in
24
 No. 2019AP447-CR

Sheboygan so that time would pass and the K9 unit would appear

to sniff for drugs. Accordingly, VanBeek was seized during the

second round of repetitive questions while Oetzel retained her

driver's license.11

2. Reasonable Suspicion

¶51 A seizure runs afoul of the Fourth Amendment if it is

unreasonable, and a temporary detention is unreasonable if under

the totality of circumstances it is not supported by reasonable

suspicion. Coffee, 391 Wis. 2d 831, ¶2. As we have concluded

that Oetzel seized VanBeek during their second interaction, we

now determine whether the seizure was supported by reasonable

suspicion. We conclude that it was not.

¶52 Reasonable suspicion, as with other Fourth Amendment

inquiries, is an objective test that examines the totality of

circumstances. State v. Guzy, 139 Wis. 2d 663, 675, 407 N.W.2d

548 (1987). An officer has reasonable suspicion if he or she

has "a suspicion grounded in specific, articulable facts and

reasonable inferences from those facts, that the individual has

11The circuit court concluded, and the State argued, that
this interaction was justified by the community caretaker
doctrine. We disagree. An officer exercises a bona fide
community caretaker function generally "when the officer
discovers a member of the public who is in need of assistance."
State v. Kramer, 2009 WI 14, ¶32, 315 Wis. 2d 414, 759 N.W.2d
598. As we discussed above, we conclude that Oetzel's
interaction with VanBeek was not to determine whether she or
Sitzberger were in need of assistance but was rather to
investigate the anonymous call that the police department
received. Accordingly, Oetzel was not performing a bona fide
community caretaker function and the doctrine does not apply
here.

25
 No. 2019AP447-CR

committed a crime." Id. "An inchoate and unparticularized

suspicion or 'hunch' will not suffice." Id. (citing Terry, 392

U.S. at 27).

¶53 The State offered the following five facts that it

contends support the conclusion that Oetzel had reasonable

suspicion that VanBeek and Sitzberger had been, or were about to

be, involved in criminal conduct: (1) "VanBeek and Sitzberger

were hanging around a neighborhood for at least several

minutes"; (2) "Oetzel did not receive a satisfactory explanation

for that behavior"; (3) "the suspicious behavior here occurred

late at night: Officer Oetzel began speaking to VanBeek and

Sitzberger around 12:22 a.m."; (4) "an anonymous caller had

reported that two people were sitting in a truck for an

hour. . . . Based on his training and experience, Officer

Oetzel thought that people 'are usually utilizing narcotics' if

they are sitting in a parked vehicle for a long period of time";

and (5) "someone here made brief contact with a vehicle. The

concerned caller told police that someone with a backpack had
come to the truck and then left." To be sure, because we have

concluded that the seizure occurred during the second

interaction, we note that Oetzel also knew that VanBeek had

overdosed earlier in the year and that Sitzberger was on some

sort of supervision.

¶54 In response, VanBeek argues that there is nothing

suspicious about sitting in a car and that the facts derived

from the anonymous call, namely that the car had been in the
location for an hour and that someone approached the vehicle
26
 No. 2019AP447-CR

with a backpack and then left without it, were insufficient to

support reasonable suspicion of criminal conduct.

¶55 We begin with the anonymous call. "[A]n anonymous tip

alone seldom demonstrates the informant's basis of knowledge or

veracity . . . ." Alabama v. White, 496 U.S. 325, 329 (1990)

(citing Illinois v. Gates, 462 U.S. 213, 237 (1983)). "[A]n

informant's 'veracity,' 'reliability,' and 'basis of

knowledge,'" are "highly relevant" to testing the strength of

anonymous information within the totality of circumstances.

State v. Richardson, 156 Wis. 2d 128, 140, 456 N.W.2d 830 (1990)

(cleaned up). In Richardson, we concluded that "the

corroboration by police of innocent details of an anonymous tip

may under the totality of the circumstances give rise to

reasonable suspicion to make a stop." Id. at 142. We

articulated two guiding principles for assessing the weight that

we should place on anonymous calls:

First, the greater the amount, specificity and
uniqueness of the detail contained in an anonymous
tip, the more likely it is that the informant has an
adequate basis of knowledge. When attempting to
define the nature of the verified details of the tip
necessary, the White Court placed special emphasis on
the police verification of the caller's predictions of
the third party/suspect's future actions. White, [496
U.S. at 332]. The Court referred to this as a
verification of significant aspects of the tip. We
adopt this aspect of verification of the anonymous tip
which serves to avoid investigative stops based on
minimal facts that any passerby or resident on the
street could enunciate. Second, when significant
aspects of an anonymous tip are independently
corroborated by the police, the inference arises that
the anonymous informant is telling the truth about the
allegations of criminal activity. Under this

27
 No. 2019AP447-CR

principle, police who have corroborated significant
aspects of a tip are allowed the reasonable inference
under the circumstances that if an informant is
correct as to these significant aspects, he or she is
more probably than not correct as to the ultimate fact
of criminal activity.
Id. at 142-43 (footnote omitted).

¶56 We continue to abide by these principles, but we

conclude that the dearth of significant facts enunciated by the

anonymous caller in this case substantially lowers the weight

that we place on the call in the totality of circumstances.
Unlike Richardson, White or Gates,12 wherein the respective

tipsters were able to provide unique, useful and predictive

information to police prior to police interaction, the caller

here merely told Sheboygan police that a non-descript truck,

occupied by two people, was parked on the street for "an hour"

and that someone had approached the vehicle with a backpack and

then left without it. Those facts are "minimal facts that any

passerby or resident on the street could enunciate." See id. at

142. The caller did not allege that the persons in the truck

were engaged in criminal activity. Accordingly, as we consider

See State v. Richardson, 156 Wis. 2d 128, 132, 456 N.W.2d
12

830 (1990) (the tip provided "a detailed description of the
defendant and his immediate future plans"); Alabama v. White,
496 U.S. 325, 327 (1990) (the call "stat[ed] that Vanessa White
would be leaving 235-C Lynwood Terrace Apartments at a
particular time in a brown Plymouth station wagon with the right
taillight lens broken, that she would be going to Dobey's Motel,
and that she would be in possession of about an ounce of cocaine
inside a brown attaché case"); Illinois v. Gates, 462 U.S. 213,
225 (1983) (the tip was a letter that described how the Gates
sold drugs including the specific process the two used to travel
between Florida and Illinois).

28
 No. 2019AP447-CR

a call about a non-descript truck parked on the street with two

occupants, the additional assertion that someone came to the

truck with a backpack and left without it does not weigh heavily

in our analysis. Apparently, those facts were not significant

to Oetzel because he never asked VanBeek or Sitzberger about a

third person or a backpack.

¶57 The call in this case is more analogous to that in

Florida v. J.L., 529 U.S. 266 (2000). There, a person

anonymously called the police to inform them "that a young black

male standing at a particular bus stop and wearing a plaid shirt

was carrying a gun." Id. at 268. Officers responded, saw three

men "just hanging out" and one of the individuals at the bus

stop matched the caller's description. Id. "Apart from the

tip, the officers had no reason to suspect any of the three of

illegal conduct." The officers frisked J.L. and uncovered a

firearm.13 Id.

¶58 The Court concluded that "[t]he tip . . . lacked the

moderate indicia of reliability present in White and essential
to the Court's decision in that case." Id. at 271. Further,

the Court noted "[t]hat the allegation about the gun turned out

to be correct does not suggest that the officers, prior to the

frisks, had a reasonable basis for suspecting J.L. of engaging

in unlawful conduct." Id. The Court rejected the petitioner's

13At the time of his arrest, J.L. was 16 years of age, and
"was charged . . . with carrying a concealed firearm without a
license and possessing a firearm while under the age of 18."
Florida v. J.L., 529 U.S. 266, 269 (2000).

29
 No. 2019AP447-CR

argument "that the tip was reliable because its description of

the suspect's visible attributes proved accurate." Id. at 271.

In rejecting Florida's argument, the Supreme Court held that "a

tip [has to] be reliable in its assertion of illegality, not

just in its tendency to identify a determinate person." Id. at

272.

¶59 Here, and similar to J.L., Oetzel was able to

corroborate only the identifying factors given by the caller,

e.g., that there was a truck parked at the alleged location that

had two occupants. The only fact that could have been somewhat

suspicious was that the caller said someone approached the

vehicle with a backpack and then left without it. However,

Oetzel asked no questions about a third person or a backpack,

and the record does not reflect whether such a person existed.

We agree with the parties that the call, alone, could not have

supported reasonable suspicion. We conclude that the call was

useful only to the extent that it may have "help[ed] the police

correctly identify the person whom the tipster mean[t] to
accuse." See id. at 272.

¶60 Aside from the call, all that Oetzel knew at the time

of the seizure was that VanBeek overdosed earlier in the year

and that Sitzberger was on supervision. Oetzel did not know the

source of drugs that caused VanBeek's overdose, whether from a

physician or from an illegal source. There is nothing in the

record to connect her overdose in February with criminal

activity in November.

30
 No. 2019AP447-CR

¶61 That Sitzberger was on supervision also provides no

reason to believe that he was involved in criminal activity with

VanBeek. As the Tenth Circuit explained in United States v.

Sandoval, 29 F.3d 537, 542 (10th Cir. 1994), a prior conviction

for an unknown offense provides no support for reasonable

suspicion. Id. If this were not the case, those on supervision

subsequent to a conviction could be searched anywhere and

anytime that the fact of supervision became known.

¶62 Furthermore, Oetzel testified that he neither saw nor

smelled any indication of drug use, and VanBeek's window was

rolled down as she spoke with him. Accordingly, we are not

convinced that at the time of the seizure the State met its

burden of proving that Oetzel had reasonable suspicion that

criminal activity was afoot.

¶63 Two cases from the court of appeals are supportive of

our conclusion. In State v. Betow, 226 Wis. 2d 90, 95-98, 593

N.W.2d 499 (Ct. App. 1999), where Betow was stopped for

speeding, the court of appeals concluded that the officer
prolonged an initially valid traffic stop without reasonable

suspicion that Betow had controlled substances in his

possession. The State argued that reasonable suspicion existed

based on the following facts: (1) Betow's wallet had a mushroom

sticker on it, which the State argued denoted drug use; (2) the

stop occurred late at night; (3) Betow seemed nervous; (4) Betow

was returning to Appleton from Madison, a city that the State

argued was associated with ready drug obtainment; and (5) Betow
did not provide the officer with a plausible explanation for his
31
 No. 2019AP447-CR

purpose in Madison. Id. The court of appeals examined these

facts as the totality of circumstances relative to Betow's

seizure and concluded that the officer did not have reasonable

suspicion to prolong the stop.14 Id. at 98.

¶64 In State v. Gammons, 2001 WI App 36, 241 Wis. 2d 296,

625 N.W.2d 623, Gammons was a passenger in a car stopped because

it did not have a rear license plate. Id., ¶2. After

questioning extended beyond the license plate, Gammons was

arrested for possession with intent to deliver cocaine. Id.,

¶1. He asserted that the officer's questions exceeded the

permissible scope of the stop. Id. The court of appeals

analyzed the following facts: (1) "an out-of-town vehicle in an

area purportedly known for drug activity"; (2) "a night-time

stop"; (3) "and a nervous suspect." Id., ¶23. The court of

appeals held that these facts, taken together, did not form a

sufficient basis for reasonable suspicion. Id., ¶25. The court

held that because the officer did not have reasonable suspicion

of drug activity, "the Fourth Amendment required [the officer]
to terminate the stop and allow Gammons and the other men to

continue about their business." Id., ¶24. As we set forth

Although Betow and Gammons each dealt with the extension
14

of a traditional traffic stop, an officer may not extend a
lawful traffic stop "absent the reasonable suspicion ordinarily
demanded to justify detaining an individual." Rodriguez v.
United States, 575 U.S. 348, 355 (2015). Because the reasonable
suspicion analysis is the same for extensions of stops as it is
for initial stops, see State v. Betow, 226 Wis. 2d 90, 95, 593
N.W.2d 499 (Ct. App. 1999), we apply the principles articulated
in those cases to the reasonable suspicion assessment here.

32
 No. 2019AP447-CR

above, the State's proffered foundation for reasonable suspicion

here is considerably weaker than those in Betow and Gammons.

¶65 Accordingly, based on the totality of circumstances,

Oetzel did not have reasonable suspicion when he returned to

VanBeek's truck, retained her driver's license and continued to

question her; therefore her seizure was unlawful.

III. CONCLUSION

¶66 On the certified question of whether a driver is

seized when a police officer takes the driver's identification

to the officer's squad car to run a records check, we conclude

that the answer depends on the totality of circumstances

surrounding the encounter. Further, while VanBeek was not

seized when Officer Oetzel took her driver's license to run a

records check, VanBeek was seized when Oetzel returned to her

vehicle, withheld her driver's license and continued to question

her and her passenger in order to hold her until a drug-sniff

dog, i.e., the K9 unit, that he had requested arrived. Finally,

we conclude that, based on the totality of circumstances, Oetzel
did not have reasonable suspicion that VanBeek was engaged in

criminal activity at the time he seized her. Accordingly, we

reverse the circuit court's judgment of conviction and remand

with instruction to grant VanBeek's motion to suppress.

By the Court.—Reversed and remanded with instructions. 

33
 No. 2019AP447-CR.rfd

¶67 REBECCA FRANK DALLET, J. (concurring). I concur

that Heather VanBeek was unlawfully seized when police retained

her driver's license while repetitively questioning her.1 I

disagree, however, with the conclusion that VanBeek was not

seized earlier in her encounter with police. The totality of

the circumstances reveals that VanBeek was seized when police

took her driver's license back to the squad car for a records

check because, at that point, a reasonable person would not feel

free to leave or to otherwise end the interaction.

I

¶68 Sheboygan Police Officer Sung Oetzel responded to an

anonymous call reporting that two people had been sitting in a

parked truck in the same spot for approximately an hour and that

a person wearing a backpack had approached the truck. Oetzel

approached the truck with his squad car's spotlight activated

and asked VanBeek, who was sitting in the driver's seat, why and

how long she had been parked there. VanBeek explained that she

had been there about ten minutes waiting for her passenger and

that they were about to drive home to Cascade.

¶69 Oetzel responded that the explanation "sound[ed]

legit," but still asked VanBeek and her passenger for

identification "for [his] report." The passenger asked if he

could just write down his information, but Oetzel stated that he

needed a photo ID to "compare faces." Both VanBeek and her

passenger provided their driver's licenses. With both licenses

1 I join the majority/lead opinion with respect to ¶¶22-35
and ¶¶46-65.

1
 No. 2019AP447-CR.rfd

in hand, Oetzel stated "I'll be right back, okay," and as he

walked away, VanBeek's passenger responded, "alright."

VanBeek's response to Oetzel was unclear. Before Oetzel reached

his squad car, he explained to another officer that he had not

observed "anything suspicious."

¶70 Oetzel checked VanBeek's record from his squad car and

learned that she had overdosed several months earlier. Oetzel

then ordered a drug-sniffing dog to the scene. He returned to

VanBeek's truck, retaining her license while repetitively

questioning her and her passenger until the dog arrived. Once

on scene, the dog alerted officers to the evidence underlying

VanBeek's conviction and this appeal.

¶71 We review the court of appeals' certified question of

"whether a consensual encounter becomes an unconstitutional

seizure under the Fourth Amendment when an officer requests and

takes an individual's drivers license to the officer's squad car

without reasonable suspicion." While I agree that such conduct

is not a seizure in all circumstances, I conclude that under the

circumstances here, it was.

II

¶72 Interactions between citizens and the police fall on a

spectrum. On one end are interactions outside the Fourth

Amendment, such as voluntary encounters in public spaces, which

may include the police requesting someone's identification. See

Florida v. Bostick, 501 U.S. 429, 437 (1991). Further down the

spectrum and subject to the Fourth Amendment are Terry and
traffic stops——short investigative seizures permissible only if

2
 No. 2019AP447-CR.rfd

the police have reasonable suspicion that a person has just

committed, is committing, or is about to commit a crime or

traffic violation. Terry v. Ohio, 392 U.S. 1 (1968) (Terry

stops); State v. Floyd, 2017 WI 78, ¶20, 377 Wis. 2d 394, 898

N.W.2d 560 (traffic stops). At the opposite end of the spectrum

from voluntary encounters is a seizure2: police conduct that

"deprives the individual of dominion over his or her person."

E.g., Horton v. California, 496 U.S. 128, 133 (1990). Police

conduct constitutes a seizure when, considering all of the

circumstances, it would cause a reasonable person to believe

that she is not "free to leave."3 I.N.S. v. Delgado, 466

U.S. 210, 215 (1984).

¶73 Interactions on the spectrum are dynamic such that

police conduct can transform an initially voluntary encounter

The other Fourth Amendment event, a "search,"
2 is not
alleged or implicated during this first interaction and is
therefore not discussed in this opinion.

Courts sometimes state this question differently depending
3

on the case's particular facts. State v. Williams, 2002
WI 94, ¶22 n.6, 255 Wis. 2d 1, 646 N.W.2d 834. Regardless of
how the test is phrased, the "key question" is the
same: "whether a reasonable person can 'terminate the
encounter' with police." Peery v. City of Miami, 977
F.3d 1061, 1071 (11th Cir. 2020) (quoting Florida v. Bostick,
501 U.S. 429, 439 (1991)); see also, e.g., Bostick, 501 U.S.
at 435-36 (asking whether a reasonable person would feel "free
to decline the officers' requests or otherwise terminate the
[police] encounter" because the defendant, a passenger on an
interstate bus, was already not free to leave for reasons
outside the police's presence); Michigan v. Chesternut, 486
U.S. 567, 576 (1988) (asking whether a police car accelerating
to drive alongside a defendant was so intimidating that a
reasonable person would not feel "free to disregard the police
presence and go about his business").

3
 No. 2019AP447-CR.rfd

into a seizure. See United States v. Monsivais, 848

F.3d 353, 358 (5th Cir. 2017) (officer converted a non-Fourth

Amendment roadside assistance or "welfare check" into a Fourth

Amendment seizure by announcing he would pat down the stranded

driver). If an individual is seized without sufficient Fourth

Amendment justification, then subsequently obtained evidence

must generally be suppressed. See State v. Scull, 2015

WI 22, ¶¶20-21, 361 Wis. 2d 288, 862 N.W.2d 562.

¶74 Because Oetzel lacked reasonable suspicion that

VanBeek had committed or was about to commit a crime or traffic

violation, any seizure of VanBeek, even a temporary one, would

be unlawful.4 Oetzel's encounter with VanBeek started out as

voluntary, requiring no special justification to initially

approach and question VanBeek in her truck since she was parked

on a public street. See, e.g., United States v. Kim, 25

F.3d 1426, 1430 n.1 (9th Cir. 1994); 4 Wayne R. LaFave, Search &

Seizure § 9.4(a) (6th ed. 2020). Thus the question is whether

Oetzel's subsequent actions toward VanBeek escalated this

initially voluntary interaction to the level of a seizure.

¶75 The interaction moved toward a seizure when Oetzel

asked VanBeek for her photo ID. Generally, such a request is

There is no support in the record for the community
4

caretaker exception. Oetzel observed neither VanBeek nor her
passenger in distress and thus lacked "reasonable grounds to
believe there [was] an emergency at hand and an immediate need
for [his] assistance for the protection of life or property."
See State v. Ferguson, 2001 WI App 102, ¶17, 244 Wis. 2d 17, 629
N.W.2d 788 (quoting United States v. Cervantes, 219 F.3d 882,
888 (9th Cir. 2000)).

4
 No. 2019AP447-CR.rfd

not a Fourth Amendment seizure. See Delgado, 466 U.S. at 216.

But Oetzel's conduct indicated that his request was in fact a

command that VanBeek could not refuse. See Bostick, 501 U.S.

at 437 (explaining that a seizure occurs when police "ask to

examine the individual's identification" in a way that indicates

"compliance with their requests is required"). Specifically,

Oetzel rejected the offer to write down the requested

information, stating instead that he needed a photo ID to

"compare faces." When an officer rejects a less-intrusive

alternative, a reasonable person could believe that her only

other option is to comply with the officer's "request." Cf. id.

¶76 Even so, until Oetzel walked away, VanBeek at least

had an opportunity to ask for her license back so she could

terminate the encounter and go on her way (although whether

anyone would actually feel comfortable doing this is another

question5). Once Oetzel left the side of VanBeek's car, however,

that opportunity vanished. No reasonable person would think she

could drive away when an officer walks off with her driver's

license, particularly when doing so would violate state law.

See Wis. Stat. § 343.18(1) (2020-21) (prohibiting the operation

of a vehicle without immediately possessing one's license);

Floyd, 377 Wis. 2d 394, ¶31 ("If an officer withholds a person's

For that reason, several courts have held that persons are
5

seized when an officer questions them while retaining their
license. See United States v. Lopez, 443 F.3d 1280, 1285-86
(10th Cir. 2006); United States v. Chavez-Villarreal, 3
F.3d 124, 128 (5th Cir. 1993); United States v. Jordan, 958
F.2d 1085, 1087-89 (D.C. Cir. 1992).

5
 No. 2019AP447-CR.rfd

documents, there is good reason to believe the person was not

'free to leave' at that time."); see also United States v.

Thompson, 712 F.2d 1356, 1359 (11th Cir. 1983) (concluding that

an officer "effectively immobilized" and therefore seized a

driver by retaining the driver's license because driving away

without the license would violate state law). Thus, VanBeek was

unlawfully seized because Oetzel's conduct would cause a

reasonable person in VanBeek's circumstances to feel as though

she were not free to leave or to otherwise terminate the

encounter. See Delaware v. Prouse, 440 U.S. 648, 653-55, 657

(1979) (holding that, absent reasonable suspicion, "detaining

the driver in order to check his driver's license" is a Fourth

Amendment violation).

¶77 VanBeek's alleged "consent" to Oetzel confiscating her

license does not change that conclusion for two reasons. First,

it confuses the role consent plays in a Fourth Amendment

analysis. A person's consent informs the reasonableness of a

seizure, not whether an officer's conduct constitutes a seizure

in the first place. See United States v. Jordan, 958 F.2d 1085,

1088 (D.C. Cir. 1992) (explaining that whether a seizure

occurred depends only on what the "police conduct reasonably

communicated"). I have uncovered no case supporting the novel

proposition that one can consent to a seizure of her person.

Second, even if one could so consent, the record contains no

support for the conclusion that VanBeek unequivocally consented

to Oetzel's taking her license back to his squad car for the
purpose of running a records check. See State v. Reed, 2018

6
 No. 2019AP447-CR.rfd

WI 109, ¶¶8, 57, 384 Wis. 2d 469, 920 N.W.2d 56 (holding that,

in the context of a Fourth Amendment search, consent "must be

unequivocal and specific").

¶78 Instead, the record is, at best, ambiguous as to

whether VanBeek agreed to Oetzel's taking her license back to

his squad car. Oetzel did not testify on that point and the

circuit court made no factual findings regarding what VanBeek

said to Oetzel or whether she consented to Oetzel taking her

license back to his car. That leaves Oetzel's body-camera

footage. The video strongly suggests that when Oetzel took

VanBeek's license and told her that he would "be right back," he

was telling VanBeek what he was going to do, not asking for her

permission to do it. Oetzel neither informed VanBeek of the

specific reason why he was taking her license nor awaited her

response before walking away. Moreover, VanBeek's response is

unclear. Although VanBeek's passenger responded to Oetzel's

statement by saying "alright," VanBeek's response is muddled and

lost under her passenger's voice. While one might infer that

she did not say "no," such an inference falls short of the

unequivocal, affirmative statement the law requires. See United

States v. Carter, 378 F.3d 584, 588 (6th Cir. 2004) ("Even a

spoken assent to search may be too ambiguous to establish

consent in certain circumstances."); cf. Reed, 384

Wis. 2d 469, ¶57 (explaining that "mere acquiescence" is

7
 No. 2019AP447-CR.rfd

insufficient to constitute consent (quoted source omitted)).6

The record evidence therefore belies any consent justification

(if one were even possible) for her being seized.

¶79 VanBeek was thus seized when Oetzel took her license

back to his squad car. That seizure continued when Oetzel

returned to VanBeek's truck yet retained her license and

repetitively questioned her until a drug-sniffing dog arrived.

Accordingly, any evidence obtained as a result of Oetzel's

unlawful seizure of VanBeek must be suppressed. For these

reasons, I concur.

¶80 I am authorized to state that Justices ANN WALSH

BRADLEY and JILL J. KAROFSKY join this concurrence.

Even assuming the passenger's "alright" constitutes
6

consent regarding his license, he has neither actual nor
apparent "common authority" to consent on VanBeek's behalf. Cf.
State v. Wantland, 2014 WI 58, ¶23, 355 Wis. 2d 135, 848
N.W.2d 810; see also United States v. Woodrum, 208 F.3d 8, 12
(1st Cir. 2000) (order denying rehearing en banc) (Lynch, J.,
dissenting) ("[S]imply, and obviously, a person cannot give
third-party consent to the . . . seizure of another person.").

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 No. 2019AP447-CR.akz

¶81 ANNETTE KINGSLAND ZIEGLER, C.J. (dissenting). While

I agree with the majority/lead opinion's1 conclusion that VanBeek

was not seized when Officer Oetzel took her driver's license to

his squad car and ran a warrant check, see majority/lead op.,

¶45, I write separately because VanBeek was not seized when

Officer Oetzel returned to VanBeek's vehicle and continued

asking her follow-up questions. When looking at the totality of

the circumstances, it is clear that VanBeek was free to ask for

her driver's license back and end the interaction.

Consequently, her encounter with Officer Oetzel was consensual,

and she was not seized. Accordingly, I respectfully dissent.

I. ANALYSIS
¶82 For purposes of the Fourth Amendment, there are two

types of seizures. The first type is a "physical force"

seizure. See United States v. Mendenhall, 446 U.S. 544, 552

(1980). The second type is a "show of authority" seizure. Id.

Under either type of seizure, a seizure occurs "[o]nly when the

officer . . . has in some way restrained the liberty of a
citizen." Id.

1Justice Roggensack's opinion was joined in part by
Justices Ann Walsh Bradley, Dallet, and Karofsky. Specifically,
those justices joined Justice Roggensack's opinion "with respect
to ¶¶22-35 and ¶¶46-65." Concurrence, ¶67 n.1. Thus, for the
sake of clarity, I refer to Justice Roggensack's opinion as the
"majority/lead" opinion throughout this dissent because the
opinion in its entirety is not joined by a majority of the
court. The opinion is a "majority" with respect to ¶¶22-35 and
¶¶46-65. All other paragraphs represent the rationale of
Justice Roggensack and thus constitute a lead opinion.

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 No. 2019AP447-CR.akz

¶83 While an officer cannot unreasonably seize a person,

this does not mean that police are prohibited from interacting

with members of the public. Police and members of the public

regularly engage in "consensual encounters," which do not

implicate the Fourth Amendment. See Terry v. Ohio, 392 U.S. 1,

19 n.16 (1968); see also State v. Griffiths, 2000 WI 72, ¶39,

236 Wis. 2d 48, 613 N.W.2d 72. As the United States Supreme

Court has explained, an encounter between police and an

individual "will not trigger Fourth Amendment scrutiny unless it

loses its consensual nature." Florida v. Bostick, 501 U.S. 429,

434 (1991). Under this framework, we have held that certain

encounters between police and individuals are consensual,

including the police approaching individuals, asking them

questions, requesting their identification, and asking for

consent to search. Griffiths, 236 Wis. 2d 48, ¶39 (citing

Bostick, 501 U.S. at 434-35). These interactions are

permissible under the Fourth Amendment "as long as the police do

not convey a message that compliance with their requests is

required." Bostick, 501 U.S. at 434-35.

¶84 Although "consensual encounters" are not subject to

Fourth Amendment scrutiny, an officer cannot temporarily detain

a person for investigative purposes without implicating the

Fourth Amendment because such a detention is a seizure. Terry,

392 U.S. at 30. Such temporary, investigative detentions are

referred to as Terry stops. See, e.g., State v. Blatterman,

2015 WI 46, ¶24, 362 Wis. 2d 138, 864 N.W.2d 26. For a Terry
stop to pass Fourth Amendment scrutiny, the officer must have

2
 No. 2019AP447-CR.akz

"reasonable suspicion that a crime has been committed, is being

committed, or is about to be committed." State v. Young, 2006

WI 98, ¶20, 294 Wis. 2d 1, 717 N.W.2d 729; see also Wis. Stat.

§ 968.24.

¶85 To determine whether an encounter between police

officers and an individual was either a consensual encounter or

a seizure, we "must consider all the circumstances surrounding

the encounter to determine whether the police conduct would have

communicated to a reasonable person that the person was not free

to decline the officers' requests or otherwise terminate the

encounter." Bostick, 501 U.S. at 439. Phrased differently, we

must determine, under the totality of the circumstances, whether

"a reasonable person would feel free 'to disregard the police

and go about his business.'" Id. at 434 (quoting California v.

Hodari D., 499 U.S. 621, 628 (1991)).2 "The test is objective

and considers whether an innocent reasonable person, rather than

the specific defendant" would have felt free to terminate the

encounter and go about their business. County of Grant v. Vogt,

2014 WI 76, ¶30, 356 Wis. 2d 343, 850 N.W.2d 253. Even if an

innocent reasonable person would have felt free to terminate the

encounter and go about their business, "but the person at issue

nonetheless remain[s] in police presence, perhaps because of a

2 As part of the totality of the circumstances, as explained
in the majority/lead opinion's answer to the certified question
in this case, "an officer's retention of an individual's
driver's license is a significant but not the dispositive fact."
Majority/lead op., ¶36.

3
 No. 2019AP447-CR.akz

desire to be cooperative, there is no seizure." Young, 294

Wis. 2d 1, ¶37.

¶86 Applying this test to the facts of VanBeek's case, as

capably set forth in the majority/lead opinion, it is clear that

VanBeek was not seized when Officer Oetzel either went back to

his squad car or when Officer Oetzel returned to VanBeek's

vehicle and retained her identification.3

¶87 I agree with the majority/lead opinion's statement

"that [Officer] Oetzel taking VanBeek's license back to his

squad car did not amount to a seizure." Majority/lead op., ¶44.

Such a conclusion is consistent with the longstanding Fourth

Amendment principles that I just explained. The concurrence

suggests that there is "no case supporting the novel proposition

that one can consent to a seizure of her person." Concurrence,

¶77. However, an individual affirmatively approving an

officer's retention of a driver's license indicates that the

encounter has not lost its consensual nature. Bostick, 501 U.S.

at 434. Such affirmative approval——commonly referred to as

consent——is a strong indicator under the totality of the

circumstances that the encounter has retained its consensual

nature. See Mendenhall, 445 U.S. at 558. Thus, as the

majority/lead opinion aptly described, "A reasonable person in

VanBeek concedes that her encounter with Officer Oetzel
3

was consensual when Officer Oetzel first approached her vehicle
and when she handed Officer Oetzel her license. The dispute
arises only with regard to whether the encounter remained
consensual after Officer Oetzel returned to his squad car with
VanBeek's identification.

4
 No. 2019AP447-CR.akz

VanBeek's position would have understood that [VanBeek's and her

passenger's] 'alright' responses permitted [Officer] Oetzel to

retain her driver's license." Majority/lead op., ¶45.

¶88 Moreover, even without her license, VanBeek could

still "disregard the police and go about [her] business." As

she explained to Officer Oetzel when he first approached, she

and her passenger were sitting in the vehicle for some period of

time. As such, VanBeek's "business"——that she must have felt

free to return to——was sitting in her vehicle with her

passenger. Officer Oetzel returning to his squad car with

VanBeek's driver's license in no way impeded upon VanBeek's

business of sitting in her vehicle. Furthermore, VanBeek never

signaled that she wanted to leave, which would indicate that her

business was leaving the area. Her affirmative approval to

Officer Oetzel returning to his squad car with her

identification strongly suggests that her business was sitting

in her vehicle, not leaving the area. Accordingly, VanBeek was

not seized when Officer Oetzel returned to his squad car with

VanBeek's driver's license.4

The concurrence wrongly concludes to the contrary,
4

believing that Officer Oetzel walking away with VanBeek's
driver's license automatically transformed the consensual
encounter into a seizure. Concurrence, ¶76. Such a conclusion
effectively asks for a bright-line rule that whenever an officer
walks away with an individual's driver's license, the individual
is automatically seized. As is routinely stated, "[t]he Supreme
Court has eschewed bright-line rules [in Fourth Amendment
inquiries], instead emphasizing the fact-specific nature of the
reasonableness inquiry." State v. Malone, 2004 WI 108, ¶17, 274
Wis. 2d 540, 683 N.W.2d 1 (quoting Ohio v. Robinette, 519
U.S. 33, 39 (1996)); see generally State v. Coffee, 2020 WI 53,
¶¶37-42, 391 Wis. 2d 831, 943 N.W.2d 845 (explaining why bright-
(continued)
5
 No. 2019AP447-CR.akz

¶89 Having concluded that VanBeek was not seized when

Officer Oetzel returned to his squad car, I now address the

point at which I diverge from the majority/lead opinion——when

Officer Oetzel returned to VanBeek's vehicle. The majority/lead

opinion concludes that "VanBeek was seized during the second

round of repetitive questions while Oetzel retained her driver's

license." Majority/lead op., ¶50. I disagree because there are

no facts in the record that demonstrate that the otherwise

consensual encounter between Officer Oetzel and VanBeek

transformed into an impermissible seizure.

¶90 An officer can ask questions and retain identification

of an individual without that encounter transforming into a

seizure. See Griffiths, 236 Wis. 2d 48, ¶39 (citing Bostick,

501 U.S. at 434-35). This includes if the officer asks follow-

up questions. See I.N.S. v. Delgado, 466 U.S. 210, 216 (1984).

As the United States Supreme Court has explained, "[u]nless the

circumstances of the encounter are so intimidating as to

demonstrate that a reasonable person would have believed he was

not free to leave if he had not responded, one cannot say that

the questioning resulted in a detention under the Fourth

line rules are disfavored). Instead of a bright-line rule, as
the concurrence essentially suggests, the proper inquiry is
whether, under the totality of the circumstances, a reasonable
person would have felt free to terminate the encounter and go
about their business. See Florida v. Bostick, 501 U.S. 429, 439
(1991).

6
 No. 2019AP447-CR.akz

Amendment." Id.5 Only "if the person[] refuses to answer and

the police take additional steps . . . to obtain an answer, then

the Fourth Amendment imposes some minimal level of objective

justification to validate the detention or seizure." Id. at

216-17. Accordingly, either the circumstances must be so

intimidating that the questioning would cause a reasonable

person to believe that she was not free to leave if she had not

responded, or the police must take additional steps to obtain an

answer after a refusal to answer for the interaction to

transform from a consensual encounter into a Fourth Amendment

seizure. We have neither in this case.

¶91 Here, the only circumstances that the majority/lead

opinion points to are that Officer Oetzel retained VanBeek's

driver's license and continued to ask repetitive questions.

Majority/lead op., ¶50. However, repeated questioning is

permissible under the Fourth Amendment so long as the

circumstances are not "so intimidating as to demonstrate that a

reasonable person would have believed he was not free to leave

if he had not responded." Delgado, 466 U.S. at 216. Thus,

Officer Oetzel's retention of the driver's license must have

been "so intimidating" that a reasonable person in VanBeek's

position would not have felt free to terminate the encounter and

go about her business. But a reasonable person is willing to

5 The formulation of the reasonable person test evolved to
its current form after I.N.S. v. Delgado, 446 U.S. 210
(1984): Whether an innocent, reasonable person would have felt
free to terminate the encounter and go about their business.
See Bostick, 501 U.S. at 439.

7
 No. 2019AP447-CR.akz

ask for the return of their identification. See, e.g., United

States v. Weaver, 282 F.3d 302, 312 (4th Cir. 2002) (holding

that the defendant was free to request his license be returned

to him so that he could end the encounter). VanBeek could have

requested that Officer Oetzel return her identification, and she

could have gone about her business. Id. However, she chose not

to. Instead, she "nonetheless remain[ed] in police presence,

perhaps because of a desire to be cooperative." Young, 294

Wis. 2d 1, ¶37. Accordingly, Officer Oetzel's retention of

VanBeek's identification was not "so intimidating" that VanBeek

could not have requested the return of her identification and

terminated the encounter.

¶92 Moreover, the majority/lead opinion relies heavily on

the fact VanBeek would not have been able to terminate the

encounter and leave the scene because she needed her license to

lawfully operate her vehicle. Majority/lead op., ¶45. However,

this reliance is misplaced. The test for a seizure is not

whether a person would feel free to leave the scene; rather, the

proper inquiry is whether a person would feel free to terminate

the encounter and go about their business. See Bostick, 501

U.S. at 439. As I explained above, VanBeek's "business" when

Officer Oetzel arrived was sitting in her vehicle with her

passenger. Although she expressed an interest in leaving the

scene, this was not her "business." Consequently, Officer

Oetzel's retention of her driver's license in no way impeded her

ability to go about the business of sitting in her vehicle with
her passenger.

8
 No. 2019AP447-CR.akz

¶93 Accordingly, based on the totality of the

circumstances, VanBeek was not seized when Officer Oetzel

returned to her vehicle, asked follow-up questions, and retained

her identification. Officer Oetzel's questioning and retention

of VanBeek's identification was not sufficiently intimidating to

render mandatory compliance and transform the encounter into a

seizure. VanBeek could have asked for the return of her

identification, but she never did, "perhaps because of a desire

to be cooperative." Young, 294 Wis. 2d 1, ¶37. Moreover,

VanBeek did not need her license to go about her business——

namely, sitting in her vehicle with her passenger.

¶94 Because VanBeek was not seized, the circuit court did

not err when it denied VanBeek's motion to suppress.

II. CONCLUSION

¶95 While I agree with the majority/lead opinion's

conclusion that VanBeek was not seized when Officer Oetzel took

her driver's license to his squad car and ran a warrant check,

see majority/lead op., ¶45, I write separately because VanBeek

was not seized when Officer Oetzel returned to VanBeek's vehicle

and continued asking her follow-up questions. When looking at

the totality of the circumstances, it is clear that VanBeek was

free to ask for her driver's license back and end the

interaction. Consequently, her encounter with Officer Oetzel

was consensual, and she was not seized.

¶96 Accordingly, I respectfully dissent.

¶97 I am authorized to state that Justices REBECCA GRASSL
BRADLEY and BRIAN K. HAGEDORN join this dissent.

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1