The women were walking along Armada Way in Plymouth and saw the man completely naked in bushes beside Plymouth Crown Court in the early hours of Saturday.
They later saw him in bushes at the other end of Armada Way, clothed but starting to undress.
He is described as white, aged between 20 and 35 with short light hair with a large tattoo, possibly on his left arm.
Pc Peter Smith said: "I'd like to hear from anyone who saw this man that night or who may recognise the description.
"Such offences are taken seriously and we want to stop this man before his behaviour escalates."
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