The State of Wisconsin maintains an Examining Board of practicing physicians that issues medical licenses and enforces standards against professional misconduct, fee splitting, and unauthorized practice under names other than the licensed name. Appellee Duane R. Larkin, a Michigan resident, obtained a Wisconsin medical license in August 1971 under a reciprocity agreement and maintained a Milwaukee practice performing abortions. On June 20, 1973, the Board notified Larkin that it would hold a closed investigative hearing on July 12, 1973, under Wis. Stat. Ann. § 448.17 to determine whether he had engaged in proscribed acts, with the possibility of warning, reprimand, or referral for criminal or revocation proceedings.
Larkin filed suit in the United States District Court for the Eastern District of Wisconsin under 42 U.S.C. § 1983 seeking preliminary and permanent injunctive relief against enforcement of the statutes and the investigative hearing. The district court denied a temporary restraining order. The Board conducted the investigative hearing on July 12 and 13, 1973, at which numerous witnesses testified and Larkin's counsel was present throughout; counsel was later informed Larkin could appear to explain the evidence. On September 18, 1973, the Board noticed a contested hearing for October 4, 1973, to determine whether Larkin's license should be temporarily suspended under Wis. Stat. Ann. § 448.18(7).
The district court granted a restraining order against the contested hearing, concluded a substantial federal question existed, and requested a three-judge court. The Board instead held a final investigative session on October 4, 1973, and issued findings of fact, conclusions of law, and a decision determining probable cause to believe Larkin had violated criminal provisions and engaged in unprofessional conduct, directing referral to the Milwaukee County District Attorney for revocation and criminal proceedings. On November 19, 1973, the three-judge court held § 448.18(7) unconstitutional as a due process violation and enjoined its enforcement; judgment was entered January 31, 1974. Appellants appealed and the Supreme Court noted probable jurisdiction on June 10, 1974. The district court later modified its judgment on July 25, 1974, to withdraw the declaration of unconstitutionality and enjoin enforcement of the statute only against Larkin.
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