FOURTH D I VI SI ON DOYLE, P. J.

, M I LLER and DI LLA RD, JJ.

N O T IC E : M otions for r e c ons i de r a tion m us t be ph y sic a l ly r e ce iv ed i n our c le r k ’s offic e w ithin te n da y s of the da te of de c is ion to be de e m ed tim e ly file d.

http://w w w .ga a ppe a ls .us /r ule s /

M ar ch 25, 2015



# I n th e Co u r t o f

A p p eals o f

G eo r g ia

A1 4 A1 56 2

. SOUTHERN S T A TES-BARTOW COUNTY, INC. et
al

. v

. RIVERW OOD FARM PROPERTY OW NERS ASSOCIATION, INC., et al

.

D I LLA R D , J u dg e.

In t h i s ci v i l act i o n , Ri v erwo o d Farm Pro p ert y Own er s A s s o ci at i o n , In c., a

g ro u p o f p ri vat e p ro p ert y o wn ers i n u n i n co rp o rat ed Bart ow Co u n t y (“ pl ai n t i ffs ”)

,

s u ed So u t h ern St at es -Bart o w Co u nt y, In c., s ev eral co m p an i es an d i n d i v i d u al s wi th

o wn ers hi p i n t eres t i n S o u t h e r n St at es (co l l ect i v el y “ So u t h ern St at es ”), an d Bart o w

Co u n t y (“ Co un t y ”), al leg i n g t hat a l an dfi l l So ut h ern St at es p ro p o s ed t o d ev el o p o n

p ro p ert y i t o wn ed wi th in t h e Co u n t y v i o l at ed zo n i n g o rd i n an ces an d s h o u l d b e

en jo i n ed

. Fo l l o wi n g a g ran t o f p art i a l s u m m ary j u d gm en t in fav o r o f t h e p l ai n t i ffs

,

So u t hern St a t es ap p eal s , arg u in g t hat t h e tri al co u rt erred i n (1 ) fi n d i ng t h at a 1 9 9 3

c o u n t y zo n i n g o rd i n an ce ap p l i ed to t h e p ro p ert y ; (2 ) fi nd i n g t h at So u t h ern St a t e sfai l ed t o ret ai n i t s ri g ht t o d ev el o p a l an d fi ll ; (3 ) fai l i n g t o fi n d th at t h e 19 9 3 zo n i n g

o rd i n an ce v i ol at ed t h e G eo rg ia Co n s t i t ut i on ; (4 ) fi n d i n g , al t ern at iv el y , t h at So u t h ern

St at es wai v ed an y ri g h t s i t h ad wh en i t s o u g h t a new l an dfi l l p erm i t i n 2 0 0 4 ; an d (5 )

fi nd i ng t h at it h ad s u b

ject -m at t er j u ri s d i ct i o n , d es p i t e th e fact t h at t h e p l ai n t iffs were

al s o co n t es ti n g t he l an d fi l l p erm i t i n an ad m i n i s t rat i v e p ro ceed i n g

. Fo r t h e reas o n s s et

fo rt h i n f r a , we v acat e t h e ju d g m en t an d rem an d fo r fu rt h er p ro ce e d i n g s c on s i s t en t

wi t h t h i s o p i n o n

.

Vi ewed i n th e li g h t m o s t fav o rab l e t o th e So u th ern St at es ( i.e.

, t he n o n m o v i n g

p art y ), 1 t h e reco rd s h o ws t h at i n 1 9 8 9

, So u t h ern St at es fi l ed an ap p l i cat i o n wi t h t h e

Geo rg i a E n v i ro n m en t al Pro t ect i o n Di v is i o n (“ EPD”) t o d ev el o p an d o p erat e a s o li d

was te lan d fi l l o n p ro p ert y t hat i t o wn ed o n Ho d g es M i n e Ro ad i n Bart o w Co u n t y

. In

co n nect io n wi th t h at ap p l icat i o n , So u t h ern St at es was req u ired t o o b tai n a cert i fi cat e

o f zo ni n g co m

pl ian ce fro m t h e Co u n t y , d em o n st rat i n g t h at t he l an d fi l l co m p l i ed wi th

l o cal zo n i n g an d l an d -u s e o rd i n an ces

. 2 Bu t at t h at t i m e , t h e Co un t y ’ s ap p l i cab l e

zo n in g o rd i n an ces d i d n o t al l o w fo r a lan d fi l l o n t h e s u b ject p ro pert y

. An d

1 S ee, e.g

. , McCa ski ll v. Ca r i l l o , 2 6 3 Ga. Ap p

. 8 90

, 8 9 0 (5 8 9 SE2 d 5 82 ) (2 0 0 3 ).

2 S ee Ga. Co m

p

. R. & Reg s

. 3 9 1-3 -4 -.0 5 (1 ) (a) (“ Th e fo l l owi n g cri t eri a m u s t
b e m et fo r a s it e p ro p o s ed as a s o l i d was t e han d l in g faci l i ty : Z o n i n g

. T h e s i t e m u s t

co n fo rm t o al l l o cal zo n in g / l an d u s e o rd in an ces .”).

2co n seq u en t l y , t h e Co u nt y refu s ed So u th ern St at es ’ s req u es t fo r a cert i fi cat e o f zo n i n g

co m p l ian ce. Sh o rt l y

t h ereaft er, l i t i g at io n en s u ed

.

I n 1 99 1

, i n a s ep arat e b u t so m ewh at rel at ed act i on , t h e Su prem e Co u rt o f

Geo rg i a d ecl ared t h e Bart ow Co u n t y zo n i n g o rd i n an ce t o b e i n v a l i d o n th e g ro u n d

t h at t h e Co u n t y

fai led t o co m

p ly wi t h t he Z o n i ng Pro ced u res Law. 3 An d as a res u l t

,

t h e Su p rem e Co u rt h el d t h at t h ere was “ n o v al i d res t ri ct i o n o n t h e pro p ert y , an d t h e

[p ro p ert y o wn er] h as t h e ri g ht u n d er t he l aw t o us e t he p ro p er t y as i t s o d es i res

. ” 4

Th en , o n Sep t em

b er 22

, 1 99 4

, t h e Su p eri o r Co urt o f Bart o w Co u n ty

— i n li g h t o f t h e

Su p rem e Co u rt ’ s d eci s i o n

— i s su ed an o rd er, i n wh i ch i t ru l ed t hat b ecau s e n o va l id

zo n in g o rd i n an ce co n t ro l l ed i n 1 9 8 9 wh en So u t h ern St at es s u bm i t t ed i t s l an d f i l l

p erm i t ap p l i cat i o n , So u t h ern St at es h ad “ a v es t ed ri g ht t o o bt ai n a cert i fi cat e o f t h e

ri gh t to u s e t hei r real p ro p ert y wi t h o u t co u nt y l an d u s e res t ri ct io n s

. . . d es p i t e t h e

en act m en t o f a s u b seq uen t zo n i n g o r d i n a n ce.” Acco rd i ng l y , t he s up eri o r co u rt

o rd ered t he Co u n t y t o i s s u e t h e n eces s ary cert i fi cat e, an d i t en jo i ned t h e Co u n t y fro m

p ro h ib i t i ng So ut h ern St at es ’ s o p erat i o n o f a l an dfi l l o n t h e s u bject p ro p ert y

.

3 S ee Ti l l ey Pr o

p s

., In c. v. Ba r t o w Co u n t

y , 2 6 1 Ga. 1 5 3

, 1 5 4 -5 5 (1 ) (4 0 1 SE2 d

5 2 7 ) (1 9 9 1 ); s ee a l

s o OCGA § 3 6 -6 6 -1 et

s eq

.

4 Ti l l ey Pr o

p s., In c. , 2 6 1 Ga. at 1 55 (2 ).

3Sh o rt l y t h ereaft er, So u t h ern St at es r e q u e s t ed an d recei v ed a cert i fi cat e o f

zo n in g co m

pl ian ce fro m t h e Co un t y

. Nev ert hel es s , wh i le i t co n t i nu ed i n t ern al

d i s cu s s i o n s an d ev al u at i on s reg ard i n g d ev el o p m en t o f t he l an d fi l l fo r n earl y t en (1 0 )

y ears , So u th ern St at es d i d l it t l e, i f an y t h i n g , t o w ard m o v i n g t h e p ro j ect fo rward an d

s u b m i t t ed n o ad d i t io nal i n fo rm at i o n , i n cl u d in g t h e cert i fi cat e o f zo n in g co m p l i an ce,

t o t he EPD.

Ev en t u al l y , i n 2 00 4

, So u t h ern St at es s u bm i t t ed wh at was ch aract eri zed as a

n ew p erm i t ap pl i cat i on fo r a “ Co n st ru ct i o n an d Dem o l i t i o n ” l an d fi l l

. An d al t h o u g h

u n d er th e zo n i n g o rd i n a n c e s i n p l a ce at th at t i m e a l an d fi ll o n t h e p ro p ert y was n ot

a perm i tt ed u s e, t h e C o u n ty

— as s u m i n g t h at it was s t i l l co n s t rai ned b y t h e 1 9 9 4

Su p eri o r Co u rt o rd e r— i s s u ed a cert i fi cat e o f zo n i n g co m p li an ce i n s u p p o rt o f

So u t hern St at es ’ s ap p l i cat i o n

. St i l l

, th e pro ces s d rag g ed o n fo r n earl y an o t her d ecad e.

An d i n Jan u ary 2 0 1 2, So u th ern St at es s u b m i t t ed t o t h e EPD y et an o th er cert i fi cat e o f

zo n in g co m

p l i an ce i ss ued b y

t he Co u n ty

.

On M ay 2 3

, 2 0 1 3

, wh i l e So u t h ern St at es ’ s ap p l icat io n was st il l p en d i n g wi th

t h e EPD, p l a i n t iffs fi l ed a co m p l ai n t fo r decl arat o ry ju d g m en t an d i n ju n ct i v e rel i ef

ag ai n s t So u t h ern St at es an d t h e Co u n ty , al l eg i n g t h at t h e p ro p o s ed l an d fi l l v i o l at ed

C ounty z o ni n g o rd i n an ces

. Lat er, p l ai n t i ffs am en d ed t h ei r co m pla int to inc lude c la im s

4fo r an ti ci p at o ry n u i s an ce an d v i o l at i o n s o f Geo rg i a ’ s Rack et eer In fl u en ced an d

Co rru p t Org an i zat i on s (“ RICO”) Act

. 5 So u th ern St at es an d th e Co un t y fi led an s wers ,

an d i n M ay 2 0 1 3

, So u t h ern St at es fi l ed a m o t io n t o d i s m i s s, wh i ch t h e t ri al co u rt

d en ied

.

On No vem

b er 12

, 20 1 3

, p l ai nt i ffs fi l ed a m o t io n fo r p art i al s u m m ary ju d g m en t

,

arg u i n g t h at

, b as ed o n t he 1 9 9 3 z o n i n g o rd i n an ce i n fo rce at th e t im e t h e s u p eri o r

co u rt i s s u ed t h e 1 9 9 4 o rd er (ru l i n g t h at So u t h ern St at es h ad a v es t ed ri g h t t o o p erat e

a l an d fi l l ), So u t h ern St at es ’ s ves t ed ri g ht l ap s ed b ecau se i t fai l ed t o co m m en ce u s i n g

t h e p ro p er t y a s a l an d fi l l wi t h i n o n e y ear. Th e p l ai nt i ffs al s o co n t en d ed t h at

,

n o t wi t h s t an d i n g t h e 1 9 9 4 o rd er, b ecau s e So u t h ern St at es s ou g h t a n ew EPD p erm i t

fo r t h e l an d fi l l i n 2 0 04

, it s act io n s were g o v ern ed b y th e zo n in g o rd i n an ces i n p l ace

at t hat ti m e, wh i ch p ro hi b i t ed s u ch u s e.

Sh o rt l y th ereaft er, o n No v em b er 1 4

, 2 0 13

, t h e EPD fi nal l y i s s u ed a s o l i d -was t e

h an dl i n g p erm i t t o So u t h ern St at es , al l o wi ng i t t o d ev el o p an d o p erat e a l an d fi ll o n

i t s Ho d g es M i n e Ro ad p ro p ert y

. Co n s eq uen t l y , So u t h ern St at es reas s ert ed i t s m o t i o n

t o d i s m i s s p l ai n t i ffs ’ n

uisa n c e c la im

, a

r g uing t h at p lai n ti ffs were req ui red t o ch al l en g e

t h e g ran t o f t he EPD p erm i t v i a an ad m i n i s t rat i v e p ro ceed i n g b efo re s eek in g rel i ef in

5 S ee OCGA § 1 6 -1 4 -1 et

s eq

.

5t h e s u p eri o r co u rt

. 6 In t h at s am e m o t i o n , So u th ern St at es al s o s o u g h t d i s m i s s al o f t h e

p l ai n t i ffs ’ RICO an d p u n it i ve-d am ag es cl ai m s

.

On Decem

b er 3 0

, 20 13

, fo l l o wi ng a h eari n g o n a l l th e p en d i n g m o t i o n s , t h e

t ri al co u rt g ran t ed t he p lai n t i ffs ’ m o t i o n fo r p art i al s um m ary ju d g m en t , fi n d i n g t h at

wh at e v e r v es t ed ri g h t So u th ern St at es m ay h av e h ad (u n d er t h e 1 9 9 3 zo n i n g

o rd i n an ce) l ap s ed wh en i t fai led t o co m m en ce u s in g t h e p ro p ert y as a l an dfi l l wi t h in

o n e y ear. Th e tri al co u rt al s o ru l e d

, al t ern at i v el y , th at So u t h ern St at es ap p l i ed fo r a

n ew p erm i t wi t h t h e EPD i n 2 0 0 4

, an d t h erefo re, t h e Co u n t y s h o u l d h av e ap p l i ed t h e

“ t h en -cu rren t ” zo n in g o rd i n an ce t o i t s d et e r m i nat i o n o f wh et h er t o i ss u e an o t h er

c e rt i fi cat e o f zo n i n g co m p l i an ce. Ad d i t i o n al l y , t h e t ri al co u rt gran t ed So u t h e r n

St at es ’ s m o t io n t o di s m i s s t h e p l ai n t i ffs ’ RICO an d pu n i t i ve-d am ag es cl ai m s , b ut

d en ied t h e m o ti o n t o d i sm i s s t h e an t i ci p at o ry -n u i san ce cl ai m

.

S o u t h ern St at es t h en fi l ed an ap p eal i n t h e Su prem e Co u rt o f Geo rg i a ,

ch al l en g i n g t h e t ri al co u rt ’ s g ran t o f p a r t i al s u m m ary ju d g m en t i n fav o r o f t h e

6 S ee OCGA § 1 2 -2 -2 (c) (2 ) (A) (“ An y p ers o n wh o is ag g ri ev ed o r ad v ers el y

a f f e c t ed b y an y o rd er o r act i o n o f t h e d i rect o r s h al l

, u p o n p et i ti o n t o t he d i r e c t o r wi t h i n 30 d ay s aft er t h e i s s u an ce o f s u ch o rd e r o r t h e t ak i n g o f s u ch act i o n , h av e a ri gh t t o a h eari n g befo re an ad m i ni s t rat i v e l aw ju d g e o f th e Offi ce o f St at e Ad m i n i s t rat i v e Heari ng s as s i gn ed u n d er Co d e Sect i o n 5 0 -1 3-4 0 an d act i n g i n p l ace

o f t h e Bo ard o f Nat u ral Res o u rces .”).

6p l ai n t i ffs an d t h e co u rt ’ s d en i al of i ts m o t i o n t o d is m i ss pl ai nt i ffs ’ an t i ci p at o ry

n u i s an ce cl ai m

. Ho wev er, t h e Su p rem e Co urt h el d t h at t h e i ss u es o n ap p eal fai l ed to

i n v o k e i t s ju ri s d ict i o n o ver eq u i t y cas es o r co ns t i t u t i o n al q u es t i o n s , an d t h u s ,

t ran s ferred t he m at t er t o t h i s Co u rt

. 7 Th i s ap p eal fo ll o ws

.

At t h e o u t s et

, we n o t e t h at i t i s wel l es t ab l i s h ed th at s u m m ary ju d g m en t i s

p ro p er i f “ t h e pl ead i n g s , d ep o s i t i o n s , an s w ers to i n t erro g at o ri es , an d ad m i s s i o n s o n

fi le, t og et h er wi t h t h e affi d av i t s, i f an y , s h o w t h at t h ere i s n o g en u i n e i s s ue as t o an y

m at eri al fact an d t h at t he m ov i n g p art y i s en t i tl ed t o a ju dg m en t as a m at ter o f l aw.” 8

If s u m m a r y j u d g m en t i s g ran t ed b y a t ri al co u rt

, i t en jo y s n o p res u m

p t i o n o f

co rrect ne s s o n ap peal

, “ an d an ap p el l at e co u rt m us t sat i s fy i t s el f d e n o v o t h at t h e

req u i rem en t s o f OCGA § 9 -1 1 -5 6 (c) h av e been m et .” 9 An d i n o u r d e n o vo rev i ew o f

a tri al co u rt ’ s g ran t o f a m o t i o n fo r s u m m ary ju d g m en t

, we are ch arg ed wi t h “ v i ewi n g

t h e ev i d en ce, an d al l reas o n ab l e co n cl u s i on s an d in feren ces d rawn fro m t h e ev i d en ce

7 S ee S o u t h er n S t a t es -Ba r t o w Co u n t y, In c. v. Ri ver wo o d F

a r m Pr o p

. Own er s As s ’n , Cas e No . S1 4D0 7 1 5 (Deci d ed Feb ru ary 2 0 , 2 0 1 4 ).

8 OCGA § 9 -1 1 -5 6 (c).

9 Co wa r t v. W id en er , 2 8 7 Ga. 6 2 2, 6 2 4 (1 ) (a) (6 9 7 SE2 d 7 7 9 ) (2 0 1 0).

7i n th e l i g h t m o st fav o rab l e t o t h e n o n m o v an t .” 1 0 Fu rt h erm o re, w e s i m i l arl y ap p l y a d e

n o vo s t an d ard o f rev i ew t o t h e tri al co u rt ’ s d en i al o f a m o ti o n to di s m i s s

. 1 1 W i t h t h es e

g u i d i n g p ri n ci pl es i n m i n d

, w e tu rn n o w t o So u t hern St at es ’ s s peci fi c cl ai m s o f erro r.

1

. So u th ern St at es co n t en d s t h at t h e t ri al co u rt erred in d en y i n g i ts m o t i o n t o

d i s m i s s p l ai n t i ffs ’ an t i ci p at o ry -n u is an ce cl ai m . Sp eci fi cal ly , i t arg u es t h at t h e co u rt

erred i n fi n d i n g t h at i t h a d s u b ject -m at t er ju ri s d ict i o n o v er th e cas e d es pi t e t h e fact

t h at t h e p l ai n t i ffs were a l s o co n t es t i n g t h e l an dfi l l p erm i t i n an E PD ad m in i s t rat i v e

p ro ceed in g

. Becau s e s u b

ject -m at t er ju ri s d i ct i o n is a t h res h o l d is s u e, 1 2 we wi l l ad d res s

t h i s cl ai m fi rs t an d

, i n d o i n g s o , h o l d t h at t h e t ri al co u rt d i d n o t err.

As n o ted s u

p r a , aft er p l ai n t i ffs fi l ed t hi s l aws u i t

— i n fact o nl y

s h o rt l y b efo re

t h e t r i al co u rt g ran t ed t he pl ai n t i ffs p art i al s u m m ary ju d g m en t— th e E PD g ran t ed

1 0 Ben ef i el d v

. T o m i n i ch

, 3 0 8 Ga. A p p

. 6 0 5

, 6 07 (1 ) (7 0 8 SE2 d 5 6 3) (2 0 1 1 ) (p u n ct u at i o n o m i t t ed ).

1 1 S ee Mi l l er Co u n t

y B d

. o f Ed u c. v. McIn t o sh

, 3 2 6 Ga. Ap p

. 4 0 8, 4 1 1 (1 ) (7 5 6

SE2 d 6 4 1 ) (2 0 1 4) (ap p l y i n g a d e n o vo s t an d ard o f rev i ew t o t h e t ri al co urt ’ s d en i al

o f a m o t i o n t o di s m i s s p l ai n t i ff’ s co m p l ai n t fo r fai l u re t o ex h au s t ad m in i s t rat i v e

rem ed ies ).

1 2 S ee Li ve O a k Co n su l t i n g

, In c. v. Dep ’t o

f Cmt y. Hea l t h , 2 8 1 Ga. Ap p . 7 9 1,

7 9 4

- 9 5 ( 1) (6 3 7 SE2 d 4 5 5) (2 0 0 6 ) (n o t i ng t h at

, as a th res ho l d m at t er, a t ri al co u rt

s h o u ld d et erm i n e i t s ju ri s di ct i o n ); a cco rd Dep ’t o f Tr a ns p

. v. Du p r ee , 2 5 6 Ga. Ap p. 6 6 8 , 6 7 1 -6 7 2 (5 7 0 SE2 d 1 ) (2 0 0 2 ).

8So u t hern St at es ’ s p erm i t ap p l i cat i o n

. Im m ed i at el y t h ereaft er, p lai n t i ffs ch al l en g ed

t h at ad m i n i s trat iv e g ran t u n d er OCGA § 1 2 -2 -2 (c) (2 ) (A), wh i ch p ro v i d es t h at :

[a] n y p ers o n w h o is ag g ri ev ed or ad vers el y affect ed b y an y o rd er o r

act i o n of t h e d i rect o r s h al l

, u p o n p et i t i o n t o t h e d i rect o r wi t h i n 30 d ay s

aft er t h e i s s uan ce o f s uch o rd er o r t h e t ak i n g o f s u ch act io n , h av e a ri g h t

t o a h eari n g b efo re an ad m i n i s t rat i v e l aw ju dg e o f t h e O f f i ce o f St at e

Ad m i ni st rat i v e H eari n gs as s i g n ed u n d er Co d e Sect io n 5 0 -1 3 -4 0 an d

act i n g i n p l ace o f t h e Bo ard o f Nat u ral Res o u rces

.

In l i g h t o f t h is s t at ut e, So u th ern St at es arg u es t h at p l ai n t i ffs s h o u ld h av e b een

req u i red t o ex h au s t th ei r ad m i n i s t rat i v e rem ed i es b efo re s eek i n g res o l u t i o n o f i t s

an t i ci p at o ry -n ui san ce cl ai m i n t h e s u p eri o r co u rt

. W e d i s ag ree.

So u t h ern St at es i s co rrect t h at d eci s i on s o f t he Su p rem e Co u rt o f Geo rg i a h av e

h el d t h at “ wh ere a s t at u t e p ro v i d es a p a r t y wi t h a m ean s o f rev i ew b y an

ad m i n is t rat i v e ag en cy , s u ch pro ced u re is g en eral l y an ad eq u at e rem ed y at l aw s o as

t o precl u de t h e g ran t o f eq u i t ab l e rel i ef.” 1 3 Bu t h ere, a p ro ceed i n g u n d er OCGA § 1 2

-

2 -2 (c) (2 ) (A) wi l l n o t res o l v e t h e p l ai n ti ffs ’ p ri m a r y c l a i m t h at So u t h ern St at es ’ s

o p erat i o n o f a l an dfi ll on i t s p ro p ert y v i o l at es Co u nt y zo n in g o rd in an ces . In d eed , i f

1 3 Geo r g e v. D e p ’ t o f Na t u r a l Res o u r ces , 2 5 0 Ga. 4 9 1

, 4 9 2 (2 9 9 SE2 d 5 5 6 ) (1 9 8 3) (p u nct u at io n o m i t t ed ); acco rd Fl i nt R i v e r M i l l s v. H en r y , 2 3 4 Ga. 3 8 5

, 3 8 7 (2 1 6 SE2 d 8 9 5 ) (1 9 7 5 ).

9t h e pl ai nt i ffs ’ co nt en t i o n t h a t t h e Co u n t y s h ou l d b e p ro h ib i t ed wh at s o ev er fro m

i s su i ng So u t h ern St at es a cert ifi cat e o f zo n in g co m p l i an ce u l t i m a t el y p rev ai l s , t h e

EPD p erm i tt i ng p ro ces s i s es s en t i al l y a d ead let t er. 1 4 Co n s eq u en t l y , t h e

ad m i n is t rat i v e-p erm i tt i n g p ro ces s an d i t s ap p eal p ro v is i o n s d o n ot “ p ro v i d e t h e

[p l ai nt i ffs ] wi t h a n a d e q u at e rem ed y an d t he s u p eri o r co u rt d i d h av e j u ri sd i ct i o n to

i s su e an i nju n ct i o n

. ” 1 5 Acco rd i ng l y , t h e co u rt d id n o t err i n d en y i ng So u t h ern St at es ’ s

m o ti o n t o d i s m i s s

. 1 6

2

. So u t h ern St at es al s o co n t en d s t h at t h e t ri al co u r t e r r e d i n fi n d i n g t h at t h e

1 9 9 3 Bart o w Co u n t y Zo n i n g Ord i n an ce Sect i o n 6 .1 .4 was ap p l i cab l e t o it s v es t ed

ri gh t t o o p erat e a l an d fi l l o n it s p ro p ert y a s reco g n i zed b y t h e 1 99 4 Su p eri o r Co u rt

Ord er. Ag ai n, we d i s ag ree.

1 4 S ee s u p r a n o t e 2 , Ga. Co m

p . R. & Reg s

. 3 9 1 -3 -4 -.0 5 (1 ) (a).

1 5 Emmo n s v. C i t

y o f Ar ca d e , 2 7 0 Ga. 1 9 6, 19 8 (2 ) (5 0 7 SE2 d 46 4 ) (1 9 9 8 );

a cco rd Ga la xy Ca r

pet M i l l s

, In c. v. Ma ss en g il l

, 2 5 5 Ga. 3 6 0

, 3 61 (2 ) (3 3 8 SE2 d 4 2 8 ) (1 9 8 6).

1 6 S ee Emmo n s , 2 7 0 Ga. at 1 9 8 (2 ) (h o ld i n g t h at b ecau se i t w as ci ty ’ s fl awed

d eci s i o n -m ak i n g p ro ces s t h at ag g ri ev ed ci t i zen s , an d no t i s s uan ce o f l an d fi l l p erm i t

,

a dm i n i s t rat i v e-p erm i t t in g p ro ces s an d i t s ap p eal p ro v i s i on s d i d n o t p ro v i d e t he m w ith

ad eq uat e rem ed y

at l aw, s o t hat s u p eri or co urt h ad ju ri s d i ct i o n t o i s su e i n ju n ct i o n).

10Sect io n 6 .1 .4 o f t h e Bart o w Co u nt y Z on i n g Ord i n an ce, wh ich b ecam e effect i v e

i n Sep tem

b er o f 1 9 9 3 , p ro v i d ed :

An y i n t en d ed n o n -co nfo rm i n g u s e fo r wh i ch a v es t ed ri g h t was acq u i red

p ri o r t o t h e ad o p t i o n o f t h i s o rd i n an ce o r t h e ad o p t io n o f an am en d m en t

t h eret o s h al l b e p ro h i b i t e d u n l es s s u ch i s act ual l y co m m en ced wi t h i n

o n e y ear o f t he ad o p ti o n o f t h i s o rd in an ce o r t h e a d o p t io n o f an

am en d m en t t h eret o reg ard l es s o f t h e i n t en t o r ex p ect at i o n t o co m m en ce

o r ab an d o n s uch n o n -co n fo rm i n g u s e. 1 7

Here, t he Bart o w Co u n t y Su p eri o r Co u rt reco g n i zed So u t h ern St at es ’ s v es t ed

ri gh t t o d ev el op a l an d f

i l l i n i t s 1 9 9 4 o rd er, b ut t he ri g h t was act u al l y acq u i red in

1 9 8 9 wh en So u t h ern St at es s u b m i t t e d i ts ap p l i cat i o n fo r a l an dfi l l p erm i t t o t h e

EPD. 1 8 An d g i v en t h at o u r Su p rem e Co u rt h el d i n 1 9 91 t h at t h e Co u n ty’s zo n i n g

o rd i n an ce i n p l ace i n 1 9 89 w as v o i d

, 1 9 t h e fi rs t ap p l i cab l e zo n i n g o rd in an ce was t h e

o rd i n an ce effect i ve i n 1 9 93

. A cco rd i n g l y , t h e t ri al co urt d i d n o t err i n fi n d i ng t h at §

1 7 Zo n i n g Ord i nan ce Bart o w Co u n t y § 6

. 1 .4 (effect iv e Sep t em b er 1 9 9 3 ).

1 8 S ee Fu l to n Co u n t

y v. A ct i o n Ou t d

oo r Ad ver t i s i n g

, JV, LLC

, 2 8 9 Ga. 3 4 7

, 3 5 0 (1 ) (7 1 1 SE2 d 68 2 ) (2 0 1 1 ) (h o ld i n g t h at wh en an ap p l i can t su b m it s an ap p l i cat i o n in

acco rd an ce wi th ap p l icab l e ord i n an ces , t h e ap p l i can t h as a v es t ed ri g h t an d i s en t i t l ed

t o t h e p erm i t ); W

MM P r o p s

. , In c. v

. C ob b Co u n t

y , 25 5 Ga. 43 6

, 4 3 8 (1 ) (b ) (3 3 9

SE2 d 2 5 2) (1 9 8 6) (s am e).

1 9 S ee Ti l l ey Pr o

p s ., In c. , 2 6 1 Ga. at 1 5 5 (2 ).

116 .1

. 4 o f t h e Co u n t y ’ s 1 9 9 3 zo ni n g o rd i n an ce was ap p l i cab l e in ev al u at i ng So u t h ern

St at es ’ s v es t ed ri g h t

.

3

. So u t h ern St at es n ex t m ai n t ai n s t h at t he t ri al co u rt erred in fi n d i ng t h at i t d id

n o t ret ai n i ts v es t ed ri g h t t o o p erat e a l an d fi l l b ecau se i t fai l ed t o co m pl y wi t h § 6 .1

. 4

o f t h e Co u nt y ’ s 1 9 9 3 zo n i n g o rd i n an ce. On ce ag ai n , we d i s ag ree.

As an i n it i al m at t er, we n o t e t h at t h e p ri n ci p l es g u i d i n g o u r co n s id erat i o n o f t h e

m ean i n g o f s t at u t es are s et t l ed o n es , an d we “ ap p ly t h o s e sam e p ri n ci p l es w h en we

co n si d er t h e m ean i ng o f an o rd i n an ce.” 2 0 Co n s eq u en tl y , we l o o k fi rs t t o t h e t ex t o f t h e

o rd i n an ce, an d i f t h e t ex t i s cl ear an d u n am b i g u o u s , “ we l o o k n o fu rt h er, at tri b u t i n g

t o t h e o rd i n an ce i t s p l ai n m ean i n g .” 2 1 An d as we l o o k t o th e wo rd s o f t h e o rd i n an ce,

we at t ri b u t e t o t h o s e wo rd s t hei r “ o rd i n ary , l o g i cal

, an d co m m o n m ean i n g s, u n l es s a

cl ear i n d i cat i o n o f so m e o t h er m ean i n g ap p ears .” 2 2 F u rt h erm o re, we read t h e

o rd i n an ce as a wh o l e “ acco rd i n g t o t h e nat u ral a n d m o s t o b vi o u s i m p o rt o f t h e

2 0 Da n i el Co r

p

. v. Reed

, 2 9 1 Ga. 5 96

, 5 97 (7 32 SE2 d 6 1 ) (2 0 1 2 ); a cco r d Ri s s er v. Ci t y o f Th o ma s vi l l e , 2 4 8 Ga. 8 6 6 , 8 6 6 (2 8 6 SE2 d 7 2 7 ) (1 9 8 2 ).

2 1 Da n i el Co r

p

. , 2 9 1 Ga. at 5 9 7 ; a cco r d Op en s i d ed MRI o f A t l a n t a , 2 8 7 Ga.

4 0 6 , 4 0 7 (6 9 6 SE2 d 64 0 ) (2 0 1 0 ).

2 2 Da n i el Co r

p

. , 29 1 G a. at 5 9 7 (p u n ct u at io n o m i t t ed ); a cco rd Ju d i ci a l Co u n ci l

o f Ga

. v. Br o wn & Ga l l o , 2 8 8 Ga. 2 9 4

, 2 9 7 (7 0 2 SE2 d 8 9 4 ) (2 0 1 0 ).

12l an g u ag e, wi th o u t res o rt i ng to s u b t l e an d fo rced co n s t r u c t i o ns , fo r t h e p u rp o s e o f

ei t h er l i m i t i n g o r ex t en d i n g i t s o p erat io n

. ” 2 3

As n o t ed s u

pr a , § 6

. 1 .4 o f t h e Co u nt y ’ s zo n i n g o rd i n an ce p ro v i d es , i n part

, t h at

“ [ a ]n y i n t e n d ed n o n -co n fo rm i n g u s e fo r wh i ch a v es t ed ri g ht was acq u i red p ri o r to

t h e ad o p ti o n o f t h i s o r d i n a n ce o r t h e ad op t i o n o f an am en d m en t t h eret o s h al l b e

p ro h ib i t ed u n l es s su ch i s act u al l y co m m en ced wi t h i n o n e y ear o f th e ad o p t i o n o f t h i s

o rd i n an ce

. . . . ” 2 4 A n d h ere, t h e n o n -co n fo rm i ng u s e fo r wh ich So u t hern St at es

o b t ai n ed a v es t ed ri g h t , as n o t ed i n t h e 1 9 9 4 Su peri o r Co u rt o rd er, was t o o p erat e a

l an d fi l l o n it s pro pert y

. Th e q u e s t i o n , t h en , b eco m es wh et h er So u t h ern St at es

“ co m m en ced ” t h e “ n o n -co n fo rm i n g u s e” of t h e p ro p ert y wi t h i n o n e y ear so t h at i t s

v es t ed ri g h t d i d n ot l ap s e.

So u t h ern S t a t e s arg u es t h at i t co m p l i ed wi t h § 6 .1 .4 o f t h e 1 9 9 3 zo n i n g

o rd i n an ce by o b t ai ni n g a zo n i n g -co m p li an ce l et t er fro m t h e Co u n t y w i t h i n a few

m o n t h s aft er t h e 1 9 9 4 Su p eri o r Co u rt o rd er. Bu t we d i s ag ree t h at th e zo n i n g

o rd i n an ce can b e read s o ex p an s i v el y , as t h e p l ai n m ean i n g o f “ c o m m e n ci n g ” t h e

2 3 Da n i el Co r

p

. , 2 9 1 Ga. at 5 9 7 (p u n ct u at i on o m i t t ed ); a cco r d Jo n es v. Do u g l a s Co u n t y , 2 6 2 Ga. 3 1 7 , 3 2 1 (1 ) (b ) (4 1 8 SE2 d 1 9 ) (1 9 9 2 ).

2 4 S ee Zo n i n g Ord i n an ce Bart o w Co un t y § 6 .1 .4 (effect i ve Sep t em b er 1 9 9 3 ).

13n o n -co n fo rm i n g “ us e” in d i cat es t h e s t art o f o p erat i n g an act u al lan d fi l l o n t h e

p ro p ert y an d

, t h erefo re, at t h e very l eas t

, i n v o l v es s om et h i n g m o re t h an s u b m i t t i n g

p ap erwo rk

. 2 5 Th i s , So u t h ern St at es d i d no t d o

. In d eed

, it i s u nd i s pu t ed t h at So u t h ern

St at es d i d n o t act u al l y

b eg i n o p erat i ng a l an d fi l l o n t h e p ro p ert y wi t h i n o n e y ear o f

t h e 1 9 9 4 o rd er o r ev en wi t h i n t en y ears

. As s u ch

, t h e tri al co u rt d i d n o t err in fi n d i n g

t h at So u t h ern St at es fai l ed t o co m p l y wi t h t h e 1 9 9 3 zo n i n g o rd i n a n c e a n d t h at i t s

v es t ed ri g h t t o o p erat e a l an d fi l l , t h erefo re, l ap s ed

. 2 6

4

. So u t h ern St at es f

u r t h e r co n t en d s th at

, as s u m i n g i t i s ap p l icab l e, t h e t ri al

co u rt erred in fai l i n g t o fi n d t h a t t h e 1 9 93 zo n i n g o rd i n an ce v i o l at es t h e Geo rg i a

Co n s t i t u t i o n

. Sp eci fi cal l y , So u t h ern St at es arg u es t h at Art i cl e I, Sect i o n I, Parag rap h

2 5 S ee T h e Co m

p act Ox f o r d E n g li s h Di ct i o n ary 2 9 4 (2 d ed

. 1 9 9 1 ) (d efi n i n g

“ co m m en ce” as , i nt er a l i a , “ [t ] o m ak e a s tart o r beg i n ni n g ; t o co m e i nt o o p erat i o n ”);

i d

. at 2 2 0 4 (d efi n i n g “ u s e” as , i n t er a l i a , “ [t ] h e act o f em p l o y i n g a t h i n g fo r an y (es p.

a p ro fi t ab l e) p u rp o se”).

2 6 S ee Da n i el Co r

p

. , 2 9 1 Ga. at 5 98 -9 9 (h o l di n g th at p l ai n m ean i n g o f

o rd i n an ce req u i ri n g al co h o l l i cen s ee to “ o p en fo r b u s i n es s ” wi t h i n n i n e m o n t h s o f

i s su an ce o f l icen s e, wi th fai l ure t o d o so res u l ti n g i n au t om at i c fo rfei t u re o f l i cen s e, d i d n o t refl ect an y

req u i rem en t as t o t h e reg u l ari t y o r co n t i n u i t y

o f b u s i n es s ).

14X o f t h e Geo rg i a Co n s t i tu t i o n , 2 7 “ fo rb i d s pas s ag e o f ret ro act i ve l aws wh i ch

i n ju ri o u sl y affect t h e v es t ed ri gh t s o f ci t izen s .” 2 8

Th e reco rd

, i n fact

, sh o ws t h at So ut h ern St at es rai s ed a co n s ti t ut i o nal ch al l en g e

t o t h e 1 9 9 3 Bart o w Co un t y zo n i n g o rd i n an ce b efo re t h e tri al co u rt in i t s res p o n s e to

t h e p l ai n t i f

f s ’ m o ti o n fo r p art i al s u m m ary j u d gm en t

. H o wev er, i n g ran t i n g t h e

p l ai n t i ffs ’ m o t i o n , t he t ri al co u rt di d n o t ad dres s So u t h ern St at es ’ s co n s t i t u t i o n al

ch al l en g e, m

u ch l es s i s s u e a ru l i n g o n i t s arg u m en t

. In d eed

, i n i ts o rd er t ran s ferri n g

t h i s cas e t o t h e Co u rt o f Ap p eal s , t h e Su p rem e Co urt o f Geo rg i a ex p l i ci t l y hel d t h at

t h e t ri al co u rt d i d no t ru l e o n So u t h ern St at es ’ s arg um en t t h at th e 1 9 93 zo n i n g

o rd i n an ce i s u n co n s ti t ut i o n al as ap p l i ed t o i t

. 2 9 W e are, o f c o urs e, bo u n d b y t h at

o rd er. 3 0 T h u s , b ecau s e a d eci s i on o n t h e co n s t i t u ti o n al i s s ue h as t h e p o t en t i al t o affect

2 7 S ee Ga. Co n s t

., Art

. I, Sec. I, Par. X (“ No b i l l o f at t ai n d er, ex p o s t fact o l aw,

ret ro act i v e l aw, or l aws i m pai ri n g t h e ob l i g at i on of co n tract o r m ak i n g i rrev o cab l e

g ran t o f s p eci al p ri v i l eg es o r i m m u n i t i es s h al l b e p as s ed .”).

2 8 Fu l t o n Co u n t

y v. Act i o n Ou t d

o o r Ad ver ti si n g

, JV, LLC

, 2 8 9 G a. 3 4 7

, 3 5 0 (1 ) (7 1 1 SE2 d 6 8 2 ) (2 0 1 1 ) (p u n ct u at i o n o m i t ted ).

2 9 S ee s u p r a n o t e 7

.

3 0 S ee Bu ch a n v. Ho b b

y , 2 8 8 Ga. Ap p

. 4 7 8

, 4 79

- 8 0 (6 5 4 SE2 d 4 4 4) (2 0 0 7 ) (n o t i ng t hat t h e Co u rt o f Ap p eal s was b o u n d b y t h e Su prem e Co u rt o f G eo rg i a’ s

t ran s fer o rd er, wh i ch h el d t h at t h e t ri al co u rt d i d n o t ru l e o n t h e co n s t it u ti o n al i t y o f

a s t at ut e d es p i t e p lai n t i ff’ s ch al l en g e t o s t at u t e o n s uch g ro u n ds ).

15t h e p l ai n t i ffs ’ l aws u i t ag ai n st So ut h ern St at es , w e m u s t vacat e t h e t ri a l c o u r t ’s

ju d g m en t an d rem an d t h e cas e fo r co n s i derat i o n o f t h e co n s t i t u t i o n al ch al l en g e o r

o t h er p ro ceed i ng s co n si s t en t wi t h t h i s o pi n i o n

. 3 1

5

. Fi n al l y , So u th ern St at es co n t e n d s t h a t t h e t ri al co urt erred i n fi n d i n g,

al t ern at i v el y , t hat So u t h ern St at es w ai v ed an y v es t ed ri g h t s i t m ay h av e h ad wh en i t

s o u g ht a n ew l an dfi l l perm i t fro m t h e EPD i n 2 0 0 4 . An d b ecau s e affi rm i n g t h e t ri al

co u rt o n t h is cl ai m of erro r wo u l d p o t en ti al l y o bv i at e an y fu rt h er p ro ceed i n g s i n t h i s

m at t er, we m

u s t ad d res s i t n o w. In d oi n g so , we ho l d t h at g en u i n e i s s u es o f m at eri al

fact ex i s t as t o wh et h er So u t h ern St at es ’ s ap p l i cat io n s ub m it t ed t o t h e EPD i n 2 0 0 4

co n st i t u t ed a n ew p erm i t s u ch t h at an y v es ted ri g h t s r e su l t i n g fro m t h e 1 9 8 9

ap p li cat io n were wai ved

.

As n o t ed i n th e affi d av i t o f So u th ern St at es ’ s co n s ul t i n g en v i ro n m en t al

en g in eer, b y 2 0 0 4

, t h e EPD req u i red p erm i t ap p l i can t s t o su b m i t ad d i t i o n al

i n fo rm at i o n t h at was n ot p rev i o u s l y req u i red

. Bu t as t h e en g i n eer fu rt h er n o t ed

, o n

t h e rel ev an t EPD fo rm , t h ere was n o pl ace t o in d i c a t e t h at t h e ap p l i can t was

3 1 S ee Ci t y o f Deca t ur v. D eKa l b Co u n t y , 2 84 Ga. 4 3 4

, 4 3 8 (2 ) (6 6 8 SE2 d 2 4 7 ) (2 0 0 8) (h o l d i n g th at a co n s t it u t i o n al ch al l en g e wi l l no t b e co n s i dered o n ap p eal wh en i t h as n o t b een ru l ed u p o n i n t h e co urt b el o w ); B u ch a n , 2 8 8 Ga. A p p

. at 4 8 0 (rem an d i n g cas e fo r co n s id erat i o n o f co n s t i t u t i o nal ch al l en g e).

16m o di fy i n g a p en di n g ap p l i cat io n

. Th u s , So u t h ern St at es ch eck ed t h e b o x o n t h e fo rm

i n d i cat i n g “ n ew p erm i t.” Ho wev er, as t h e en g i n eer ex p l ai n ed

, So u t hern St at es ’ s g o al

i n t h i s reg ard was m erel y t o red u ce t h e s co p e of i t s p en d i n g ap p l i cat i on

. It was n ot

s eek i n g t o res t art th e ap p l i cat i o n p ro ces s , an d

, i n fact

, acco rd i n g t o t h e en g in eer, t h e

2 0 0 4 ap p l i cat i on was m ad e p art o f t h e EPD’ s o ri g i nal 1 9 8 9 ap pl i cat io n fi l e.

In res p o n s e, t h e pl ai n t i ffs arg u e t h at “ s el f-s erv in g an d co n cl u s o ry affi d av i t s are

i n s u ffi ci en t t o creat e an i s su e fo r t ri al .” 3 2 Bu t i n l i g h t o f i t s l ev el o f det ai l , So u t h ern

St at es ’ s en g i n eer’ s affi d av i t can h ard l y b e ch aract eri zed as m erel y co n cl us o ry

. An d

d es p it e th e ap p aren t s el f-s erv i n g n at u re o f t h i s affi d av i t

, “ w h e t h e r th e t es t i m o n y i s

cred i b l e i s n o t an i s s u e t h at th e t ri al co u rt can d et erm in e o n s u m m ary ju d g m en t .” 3 3

In d eed

, g i v en t h at al l d o u b t s are “ t o b e res o l v ed ag ai n s t [t h e p l ai nt i ffs ] ” 3 4 as m o v an t s ,

t h e affi d av i t p res en ts a g en u i n e i s s u e o f m at eri al fact as t o wh et h er So u t h ern St at es ’ s

2 0 0 4 ap pl i cat i o n co n s t i t u ted a n ew p erm i t su ch t h at an y v es t ed ri g h t s res u l t i n g fro m

3 2 J. Ki n s o n Co o k o

f Ga

., In c. v. Heer

y / M i t ch el l

, 2 8 4 Ga. Ap p

. 5 5 2

, 5 5 9 (d ) (6 4 4 SE2 d 4 4 0 ) (2 0 0 7 ).

3 3 Ba r r et t v. Br i t t

, 3 1 9 Ga. Ap p

. 1 1 8

, 1 2 4 (7 3 6 SE2 d 1 4 8 ) (2 0 1 2 ) (p u n ct u at i o n

o m it t ed ).

3 4 Id

. (p u n ct u at i o n o m i t t ed ).

17t h e 1 98 9 ap p l i cat i on were wai v ed

. Acco rd i n g l y , t h e t ri al co urt erred i n ru l i n g

o t h erwi s e. 3 5

Fo r al l of t h e fo reg o i n g reas o n s , w e v acat e t h e t ri al co u rt ’ s ju d g m en t an d

rem an d t h e cas e fo r fu rt h er p ro ceed i n g s co n s is t en t wi t h th i s o p i n i o n. In l i g h t o f o u r

h o l d i n g s i n Di v is i o n s 4 an d 5

, s u p r a , we reco g n i ze t h at su ch fu rt h e r p ro ceed i ng s

en t ai l t wo p o s s i bi l i t i es

. A ru l i n g i n fav o r o f t h e p lai n t i ffs on t h e co ns t i t u ti o n al i t y o f

t h e 1 9 9 3 zo n i n g o rd i n an ce res ol v es t h e cas e at t h e tri al -co u rt l e v e l a n d ren d ers t h e

ch aract eri zat i o n o f t h e 2 0 0 4 EPD p erm i t ap pl icat i o n m o o t

, w h i l e a ru li n g i n fav o r o f

So u t hern St at es , i .e. , t hat t h e o rd i n an ce i s u n co n s t i tu t i o n al

, wo u ld t h en n eces s i t at e

r e solution of t h e 20 0 4 p erm i t-ap p l i cat i on is s u e. Si m i l arl y , s h o u l d t h e pla intif f s pr e va i l

i n a t ri al o n t h e m eri t s o f wh et h er o r n o t th e 2 00 4 EPD p erm it ap p l i cat i on was a n ew

ap p li ca t i o n , t h e co n s t i t ut io n al i t y o f t he 1 9 9 3 zo n i n g o rd i nan ce wo u l d be ren d ered

m o ot

, wh ereas t h e q u es t io n o f co n s t i t u t i o n al i t y wo ul d s t i l l req u ire res o l u ti o n s h o u ld

So u t hern St at es prev ai l

. Ne vert h el es s , we leav e a d et erm i n at i o n o f h o w t o b es t

p ro ceed to t h e t ri al co u rt an d t h e p art i es

.

Ju d g men t va ca t ed a nd ca s e r ema n d

ed . Do yl e, P. J., a nd

Mi l ler , J., co n cu r

.

3 5 S ee i d

. (h o l d i n g t h at part i es ’ co nfl i ct in g affi d av i t s p res en ted an i s s u e o f fact

s u ch th at t ri al co u rt erred i n g ran t i n g d efen d an t s’ m o t i o n fo r s u m m ary ju d g m en t ).

18