In th e S u p re m e Co u rt o f Ge o rg ia

De c id e d: Ju n e 1 5 , 2 0 1 5

S 1 5 A 0 1 1 7 . LUE, MAYOR v

. EADY e t a l.

B ENHAM , Ju stic e

.

Th is c a se in v o lv e s a h ig h ly c o n t en t io u s d isp u te o ve r c e rta in o ffic ia l

a c tio n s o f Ma ry An n Wh i p p l e L u e

, Ma y o r o f th e City of Go rd o n, wh o is

a p p e lla n t in th is c a se

. Ma y o r Lu e wa s th e first Afric a n-Am e ric a n to b e e le c te d

m a y o r o f th is c ity

, a

n d sh e wa s swo rn in to o ffic e o n J a n u a ry 6

, 20 14

. Ba re ly

two m o n th s la te r, two m e m b e rs o f th e c ity c o un c il a n d fiv e o th e r c itiz e n s file d

a c o m pla in t a ga in st Ma y o r Lu e in h e r o ffic ia l c a p a c ity

, wh ic h wa s la t e r

a m e n d e d

, s e e k i n g re m o v a l o f Ma y o r Lu e fo r va rio u s a c tio n s a lle ge d to b e

e x a m p le s o f c o n d u c t d e m o nstra tin g in c o m p e te n c e

, mi sfe a sa nc e

, a n d

m a lfe a sa n c e in o ffic e

, wh ic h , a c c o rd in g to th e c o m pla in t, p ro v id e g ro u n d s fo r

re m o v a l fro m o ffic e p u rsu a n t to th e C ity o f G o rd on Ch a rte r. Ac c o rd in g to th e

c o m p la in t, th e se a c tio n s fe ll in to t h r ee c a te g o rie s: a lle g e d v io la tio n s o f th e

Ge o rg ia Op e n M e e tin g s A c t, OCGA § 5 0-1 4 -1

, e t se q. (“ Ac t” ); a l le g e dv io la tio n s o f th e c ity c h a rte r (“ Ch a rte r” ) 1

, c ity c o d e

, a n d c ity p e rso n n e l p o lic y ;

a n d a lle g e d fin a n c ia l m a lfe a sa n c e

. On e o f th e m e th o d s fo r re m o v in g an e le c te d

o ffic ia l, a s se t fo rth in th e C h a r t e r

, is b y o rd e r o f th e S u p e rio r C o u rt o f

W i l k in so n Co u n ty a fte r a h e a rin g o n a c o m pla in t file d b y a n y re sid e n t o f t h e

c ity

. In a d d itio n to re m o v a l fro m o ffic e

, th e c o m p la in t so u g h t t h e a wa rd o f

a tto rn e y fe e s a

n d fin e s, p u rsu a n t to OCGA § 5 0 -1 4 -5 (b ) a nd O CGA § 5 0 -1 4 -6

.

Th e tria l c o u rt d e nie d Ma y o r Lu e ’s m o tio n s to d ism iss th e c o m p la in t.

S h o rtly th e re a fte r, th e tria l c o u rt g ra n te d th e m o tio n fo r a te m p o ra ry re stra in in g

o rd e r file d b y p la in tiffs (wh o a re a p p e lle e s in th is a

p p e a l), p u rsu a nt to wh ic h th e

m a y o r w a s te m

p o ra rily su sp e n d e d fro m o ffic e u ntil su c h tim e a s a h e a rin g c o u ld

b e he ld o n p la in tiffs’ m otio n fo r in te rlo c u to r y i n j u n c tio n. Ma y o r Lu e file d a

mo tio n to re c u se th e tria l c o u rt ju d ge

, a lle gin g im p ro p e r e x p a r t e

c o m m u nic a tio n s b e twe e n th e ju dg e an d p la in tiffs’ c o u nse l w i t h r e s p e c t to th e

te m p o ra ry re stra in in g o rd e r h e a r i n g

, a nd th a t m o tio n w a s d e n ie d

. Afte r a

h e a rin g o n p la in tiffs’ m o tio n fo r in te rlo c u to ry in ju n c tio n, th e tria l c o u rt g ra n te d

th e m otio n a n d e nte re d a n o rd e r, wh ic h wa s la te r a m e n d e d, b y wh ic h Ma y o r Lu e

wa s re in sta te d to o ffic e

, su b je c t to c e rta in c o n d itio n s im po se d o n h e r, in c lu d in g

1 The City

Charter of the City

of Gordon is codified at Ga. L . 1988, p. 4375.

2a p ro h ib itio n fro m h e r m e e tin g p riv a te ly w ith th re e o r m o re c o u n c il m e m b e rs to

d isc u ss c ity b u sin e ss a

n d a re q u ire m e nt th a t an y su c h m e e tin g s m u st b e o p e n to

th e pu b l ic with n o tic e p ro v id e d to th e p u b lic a s re q u ire d by la w. Ma y o r Lu e

a p p e a ls th e d e n ia l o f h e r m o tio n s to d ism iss, th e d e n ia l o f h e r m otio n to re c use

th e tria l c o u rt ju d g e

, a

n d c e rta in te rm s o f th e in te rlo c u to ry in ju n c tio n ord e r a n d

a m e n d e d o rd e r. F o r th e re a so n s se t fo rth h e re in we a ffirm i n p ar t a n d re v e rse

in p a rt.

1

. We first a d d re ss Ma y o r Lu e ’s a sse rtio n th a t th e tria l c o u rt ju d g e e rre d

in d e n y i n g h e r m o tio n to re c u se h im se lf a s th e sittin g ju d g e in th e c a se

. Th e

m o tio n wa s b a se d u p o n t w o o c c u r re n c e s: F irst, Ma y o r Lu e a sse rts th e ju d g e

e n g a g e d in im

pro p e r e x p a

rte c o m m u n ic a tio n s with o p p o sin g c o un se l with

re sp e c t t o sc h e d u lin g th e h e a rin g o n p la in tiffs’ m o tio n fo r a te m p o ra ry

re stra in in g o rd e r; se c o n d

, M a y o r Lu e a sse rts t h e ju d g e im pro p e rly fa ile d to

re sp o n d to h e r c o u n se l’s le tte r re q u e stin g e ith e r th a t th e ju d g e re c use o r th a t h e

p ro v id e c o u n se l with in fo rm a tio n re la tin g to h o w th e re qu e st fo r a he a rin g wa s

m a d e a n d sc h e d u le d

. M a y o r Lu e a lle g e d in th e m o tio n to re c use th a t th e tria l

ju d g e ’s c o n d u c t re q u i r e d d isq u a lific a tio n p u rsu a n t to Ca n o n 3 (E) (1 ) o f th e

3Ge o rg ia Co d e o f Ju d ic ia l Co n d u c t 2

, wh ic h p ro v id e s: “ Ju d g e s sh a ll d isq u a lify

th e m se lv e s in a n y p ro c e e din g in wh ic h th e ir im p a rtia lity m ig h t re a so n a

b ly b e

q u e stio n e d

. . . .” Th e re c o rd re fle c ts th a t p la in tiffs’ c o u n se l t el e p h o n e d th e

ju d g e ’s se c re ta r y to re q u e st a d a te fo r th e TRO h e a rin g a n d

, g iv e n th e ju d g e ’s

a v ai l a b i l ity

, it wa s sc h e d u le d fo r 3 :0 0 p .m

. o n th e d a te th e re q u e st wa s m a d e

.

Ma y o r Lu e ’s c o u n se l a c k n o wle d g e d in h is m o tio n th a t h e re c e iv e d no tic e o f th e

sc h e du le d h e a rin g fro m a la wy e r in p la in tiffs’ c o u n se l’s o ffic e b y te le ph o n e c a ll

re c e iv e d a t 1 :3 8 p.m

. o n th e d a y o f th e he a rin g. In th e o rd e r de n y in g th e m o tio n

to re c u se

, th e c o u rt n o te d th a t th e a ffid a v it su p po rtin g th e m o tio n wa s sile n t a s

to a n y e ffo rt m a d e b y Ma y o r L u e ’s c o u nse l to se e k a d e la y in th e h e arin g

, e ith e r

b y re q u e st to p la in tiffs’ c o u n se l o r to th e c o u rt. Th e o rd e r fu rth e r sh ows it wa s

e n te re d a fte r ta

k in g in to c o n sid e ra tio n th e sta nd a rd s fo r d isq u a lific a tio n se t fo rth

in Ca n o n 3 (E) a n d Un ifo rm

S u p e rio r Co u rt Ru le 2 5 .3

. 3

2 T he version of the Georg ia Code of J udicial Cond u c t ap p l i c able to the motion f or

disqualification in this c a se was r evised by order of the Supreme Court d a ted May 14, 2015, to take

effect J anuary 1, 2016. The r elevant portion of Canon 3 (E) (1) has not chang ed and can be found

at Canon 2, Rule 2.11 (A) of the new Code.

3 Rule 25. 3 states:

W h en a judg e is presented w ith a motion to recuse, or d isqualify

, accompanied b y an

affidavit, the judg e shall temporarily cease to act upon the merits of the matter a nd

shall immediately determine the timeliness of the motion and th e leg al sufficiency

of the affidavit, and make a determination, assuming any of the facts alleg ed in the

4Ha v in g re v ie we d th e re c o rd

, we fin d n o e rro r in th e tria l c o u rt’s d e n ia l o f

th e m o tio n to re c u se

. Th e p ra c tic e o f c o m m u n ic a tin g e x p a rte to a ju dg e o r th e

ju d g e ’ s s t af

f fo r a d m in istra tiv e a n d sc h e d u lin g p u rp o se s is a uth o riz e d a s a n

e x c e p tio n to th e ru le pro h ib itin g e x p a rte c o m m un ic a tio n s with a ju d g e

, a s n o te d

in th e tria l c o u rt o rd e r. Ca n on 3 (B) (7 ) (a ) e x p re ssly a u th o riz e s su c h

c o m m u nic a tio n s so lo n g a s:

(i) th e ju d g e re a so n a

b ly b e lie v e s th a t n o p a rty will g a in a p ro c e d ura l

o r ta c tic a l a d v a nta g e a s a re su lt o f th e e x p a rte c om m u n ic a tio n

, a n d

(ii) th e ju d g e m a ke s p ro v isio n p ro m p tly to n otify a ll o th e r p a rtie s o f

th e su b sta n c e o f th e e x p a rte c om m u n i c a tio n a nd a llo ws a n

o p p o rtu n ity to re sp o n d

. 4

With r es p ec t to th e sc h e d u lin g o f h e a rin gs, we d o n o t c o n stru e th is Ca n o n to

re q u ire th e ju d g e to n o tify th e o p p o sin g p a rty p e rso n a lly so lo ng a s, a s h e re

, th e

p a rty re q u e stin g th e h e a rin g p ro v id e d a d e q u a te re a so n a b le no tic e

. T h e m a n n e r

affidavit to be true, whether recusal would b e warranted. I f it is found that the motion

is timely

, the affidavit sufficient and that recusal would b e a uthoriz ed if some or all

of the facts set f

orth in the affidavit are true, another judg e shall be assig ned to hear

the motion to recuse. T h e alleg ations of the motion shall stand denied automatically

. The t r i al judg e shall not otherwise o p pose the motion. I n reviewing a motion to

recuse, the judg e shall be g uided by Canon 3 ( E ) o f the Georg ia Code of J udicial

Conduct.

4 I n the amended version of the Code of J udicial Conduct, this a uthoriz ation is discussed in

Rule 2.9 (A) (1) (a) and (b).

5in wh ic h th e h e a rin g in q u e stio n in th is c a se w a s sc h e d u le d d o e s no t re q u ire th e

d isq u a lific a tio n o f th e tria l ju dg e b e c a u se it do e s n o t p re se n t a situ a tio n in wh ic h

th e ju d g e ’s “ im

p a rtia lity m ig h t re a so n a

b ly b e q u e stio n e d .” No r d o e s th e tria l

ju d g e ’s a lle g e d re fu sa l to re sp o n d to c ou nse l’s le tte r d e m a n d in g e ith e r v o lu n ta ry

re c u sa l o r a n e x p la n a tio n o f th e m a n n e r in w h ic h th e re q u e st f o r h e a rin g wa s

h a n d le d

. Th e m otio n to re c u se wa s du ly c o n sid e re d an d ru le d u po n b a se d u p o n

th e m o tio n a n d a ffid a v it in su p p o rt o f th e m o tio n.

2

. Ne x t, we a dd r e s s th o se te rm s o f th e in te rlo c u to ry in ju n c tio n o rd e r

c h a lle ng e d b y Ma y o r Lu e

. S h e a rg u e s th a t th e o b je c tio n a ble p o rtio n s o f t h e

o rd e r a re b a se d u p o n a m isin te rp re ta tio n o f th e Ch a rte r p ro v isio n s re la tin g to

wh a t c o n stitu te s a qu o ru m of th e c ity c o u n c il f o r p u rp o se s of tra n sa c tin g c ity

b u sin e ss, th e c irc u m sta n c e s p u rsu a n t to wh ic h th e m a y or m a y v ote o n issu e s o f

c ity b u sin e ss, a s we ll a s o th e r p ortio n s o f th e Ch arte r. As se t fo r t h h e re in

, we

a g re e th a t th e tria l c o u rt m isin te rp re te d t h e C h arte r a n d re v e rse th e n o te d

p o rtio n s o f th e in te rlo c u to ry in ju n c tio n o rd e r.

Th e Op e n Me e tin g s Ac t re q u ire s a ll m e e tin gs, a s t h a t te rm is d e fin e d in

th e Ac t, o f c e rta in p u b lic a g e n c ie s to b e o p e n to th e p u b lic

. OCGA § 5 0 -1 4 -1

( b ) ( 1 ). Th e p a rtie s to th is c a se d o n o t d isp u te th a t th e C ity of Go rd o n i s a n

6“ a g e nc y ” a s th a t te rm is d e f i n e d i n t h e Ac t (se e OCGA § 5 0 -1 4 -1 (a ) (1 ) (D))

a n d th a t th e c ity c ou n c il is its g o ve rn in g b o d y

. “Me e tin g ” is d e fin e d a t OCGA

§ 5 0 -1 4 -1 (a ) (3 ) (A) a s:

(i) Th e g a th e rin g o f a q u o ru m of th e m e m b e rs o f th e g o v e rn in g

b o d y o f a n a g e nc y a t wh ic h a n y offic ia l b u sin e ss, po lic y

, or p u b lic

m a tte r o f th e a g e n c y i s fo rm u la te d

, p re se n te d

, d isc u sse d

, o r v o te d

u p o n ; o r

(ii) Th e g a th e rin g o f a qu o ru m o f a n y c o m m itte e of th e m e m b e rs o f

th e g o v e rn in g b o d y of a n a g e n cy o r a qu oru m o f an y c o m m itte e

c re a te d b y th e g o v e rn in g b o d y a t wh ic h a ny o ffic ia l b u sin e ss,

p o lic y

, o r pu b lic m a tte r o f th e c o m m itte e is fo rm u la te d

, p re se nte d

, d isc usse d , o r v o te d up o n

.

To e v a lu a te th e tria l c o u rt’s ru lin g s o n wh a t c o n stitu te s a q u o ru m o f th e c ity

c o u n c il fo r v o tin g a nd c on d u c t i n g o ffic ia l b u sin e ss, it is first n e c e ssa ry to

e x a m in e th e re le v a n t se c tio n s o f th e Ch a rte r.

Th e Ch a rte r a s a wh o le p ro v i d e s t h a t th re e distin c t e n titie s a re in v o lv e d

in c ity g o v e rn a n c e –th e m a y o r, th e c o u n c il (a s a wh ole ), an d “ c o u n c ilm e m b e rs,”

a s th a t t e rm is u se d in th e Ch a rte r. Th e Ch a rte r, in S e c tio n 2 .1 0 la b e le d “ C ity

c o u n c il c re a tio n ; c o m

p o sitio n; n um

b e r; e le c tio n ,” p ro v id e s th a t th e le g isla tiv e

a u th ority o f c ity g o v e rn me n t i s v e ste d in a c ity c o u n c il to b e c o m p o se d o f six

c o u n c ilm e m

b e rs a n d a

m a y o r. Th ro u g h o u t th e Ch a rte r, th e te rm “ m a y o r” a n d

7th e te rm “ c o u n c ilm e m be r[s] ” a re re fe rre d to a s distin c t o ffic e rs with d i s tin c t

p o we rs a n d d u tie s. Pu rsu a n t to S e c ti o n 3

. 1 5

, la be le d “ Vo tin g ,” th e Ch a rte r

stip ula te s th a t “ fo u r c o u n c ilm e m b e rs” sh a ll c o n stitu te a

q u o r u m a

u th o riz e d to

tra n sa c t c ity c o u n c il b u s i n e ss a n d

, “ [e ] x c e p t a s o th e rwise pro v id e d in th is

c h a rte r,” re q u ire s th e a ffirm a tiv e v o te of “ fo ur c o un c ilm e m b e rs” fo r a d o p tio n

o f a ny o rd in a n c e

, re so lu tio n

, o r m o tio n

. Th e p o we rs a n d d u tie s o f th e m a y o r a re

s e t f o rth in S e c tio n 3 .2 2

, o n e e n u m e ra tio n o f wh ic h is to p re sid e o v e r a ll c ity

c o u n c il m e e tin g s. S u b se c tio n (8 ) o f S e c tio n 3.2 2 a u th oriz e s th e m a y o r to

p a rtic ip a te in th e c o u n c il’s d isc u ss i o n s o f a ll m a tte rs b ro u g h t b e fo re th e c ity

c o u n c il, b u t lim its th e m a y o r’s a u th o r i t y t o v o t e o n su c h m a tte rs to on ly two

in sta n c e s: (1 ) wh e n th e re is a tie v o te

, a n d (2 ) in a ll e le c tio n s o f o ffic e rs wh o a re

e le c te d b y th e c ity c o u n c il, a s we ll a s im p e a c h m e n t o r r e mo v a l p ro c e e d in g s,

wh e th e r o r no t th e re is a tie vo te

. With re sp e c t to o ffic e rs e le c t e d b y th e c ity

c o u n c il, th e Ch a rte r p ro vid e s in S e c tio n 3 .1 1 (b ) th a t th e c ity c o u n c il sh a ll e le c t,

b y m a jo rity v o te

, a c o u n c ilm e m b e r to se rv e a s m a y or p r o te m po re a n d a

c o u n c ilm e m

b e r to se rv e a s p re sid in g o ffic e r. S e c tio n 4 .1 2 o f th e Ch a rte r

p ro v id e s th a t a c i t y a tto rn e y sh a ll b e a p po in te d b y th e c ity c o u n c il an d sh a ll

se rv e a t th e p le a su re o f th e c ity c o u n c il.

8(a ) Th e first pro v isio n o f th e in te rlo c u to ry in ju n c tio n o rd e r c ha lle n g e d b y

Ma y o r Lu e is th e pro h ib itio n a g a in st h e r m e e tin g p riv a te ly with th re e o r m o re

c o u n c ilm e m

b e rs to d isc u ss c ity b u sin e ss. Th e o rd e r sta te s:

Fo u r o r m o r e m e m be r s o f th e c ity c o u n c il sh a ll no t m e e t

p r iv a te ly to d isc u ss c ity b u sin e ss. Th is in c lu de s o c c a sio ns wh e re

a t le a st 3 c o u n c ilm e m

b e rs a n d th e m a y o r a re pre se n t. Th is a p plie s

a t a ll tim e s a n d to a ll p la c e s, it d o e s n o t m a tte r wh e th e r th e m e e tin g

is in c ity h a ll, a p riv a te h o m e

, a v e h ic le

, a re sta u ra n t, o r a n y o th e r

lo c a tio n

.

(Em p h a sis in o rig in a l.) Th e o rd e r re in sta te s Ma y o r Lu e to he r p o sitio n a s m a y o r

su b je c t to c e rta in c o n d itio n s. Th e se c o n ditio n s in c lu d e th e fo llo win g :

Th e Ma y o r is e n jo in e d fro m p riv a te ly m e e tin g with th re e o r m o re

c o u n c ilm e m

b e rs to d isc u ss c ity b u sin e ss. All su c h m e e tin gs m u st

b e o p e n to th e pu blic

, a n d n o tic e of s u ch me e t in g s sh ou ld b e

p ro v id e d a s re q u ire d b y sta te la w.

(Em p h a sis in o rig in a l.)

It is o b v io u s fro m th e se se c tio n s o f th e o rd e r th a t th e y a re b a se d u p o n th e

tria l c o u rt’s a ssu m

ptio n th a t a q u o ru m is c re a te d b y th re e c o u n c ilm e m be rs p lu s

th e m a y o r. B u t th e la n g u a g e o f th e Ch a rte r, a s n o te d a bo ve

, sp e c ific a lly d e fin e s

a q uo ru m a s c o n sistin g of “fo u r c o u n c i l me m b e rs,” a n d it m a k e s a d istin c tio n

b e twe e n c ou n c ilm e m

b e rs a n d th e m a y o r. A p p e lle e s a rg u e th a t su c h a re a d in g

o f th e Ch a rte r re n d e rs m e a n in g le ss th a t se c tio n o f th e Ch a rte r p e rm ittin g th e

9m a y o r to v o te in th e c a se o f a t i e

, g i ve n th a t th e Ch a rte r a lso re q uire s th e

a ffirm a tiv e v o te o f fo u r c o u n c ilm e m b e rs to p a ss a n y o rd in a n c e

, re so lu tio n

, o r

m o tio n. Ac c o rd in g to t h e a p p e lle e s, if th e m a y o r is c o nsid e re d a

“ c o u n c ilm e m

b e r” fo r pu rp o se s o f p ro vid in g th e n e c e ssa ry fo u rth v o te to b re a k

a tie

, th e n th e m a y o r m

u st a lso b e c on sid e re d a “ c o u n c ilm e m b e r” fo r p u rp o se s

o f c re a tin g a

q u o ru m fo r a

m e e tin g to tra n sa c t c ity c o u n c il b u sin e ss.

Th e in te rp re ta tio n o f sta tu te s, o rd in an c e s, an d c h a rte rs p re se n ts a q u e stio n

o f la w fo r th e c o u rt. Me rry v

. W illia ms

, 2 8 1 Ga

. 5 7 1

, 57 3 (2 ) (6 42 S E2 d 4 6 )

(2 0 0 7 ); Mo n tic e llo

, L t d

. v

. City o f Atla n ta

, 2 3 1 Ga

. A p p

. 3 8 2

, 3 83 (1 ) (4 9 9

S E2 d 1 5 7 ) (1 9 9 8 ). It is tru e

, a s a p p e lle e s a rg u e

, th a t u n d e r th e ru le s g o v e rn in g

sta tu to ry c o n stru c tio n

, “ s t a tu te s ‘in p a ri m a te ria ,’ i.e

. , sta tu te s re la tin g to th e

sa m e su b je c t m a tte r, m

ust b e c o n stru e d to g e th e r.” W illis v

. City o

f Atla n ta

, 2 8 5

Ga . 7 75 , 7 7 6 (2 ) (6 8 4 S E2 d 2 7 1 ) (2 0 0 9 ) (q u o tin g Bu tte rwo rth v . Bu tte rwo rth

,

2 2 7 Ga

. 30 1

, 3 0 3 -3 04 (1 8 0 S E2 d 5 4 9 ) (1 97 1)). We d o n o t a gre e

, h owe v e r, th a t

th e Ch a rte r se c tio n g ra n tin g th e m a y o r th e a u th ority to v o te in th e c a se o f a tie

v o te o f c o u n c ilm e m

b e rs m e a n s t h e C h a r t e r m u st b e c o n stru e d a s g ra n tin g th e

m a y o r th e sta tu s o f a c o u n c ilm e m b e r fo r p u rp o se s o f c re a tin g a q u o ru m

. Th e

Ch a rte r sp e c ific a lly sta te s th a t “ fo u r c ou nc ilm e m b e rs” c o n stitu te s a q u oru m fo r

10tra n sa c tin g c ity c o u n c il b u sin e ss a n d it a lso sp e c ific a l l y p r o v id e s th e lim ite d

c irc u m sta n c e s u n d e r w h ic h th e m a y o r c a n vo te

. T h a t b e in g th e c a se

, a m e e tin g

o f th re e c o u nc ilm e m

b e rs p lu s th e m a y o r d o e s no t c o n stitu te a qu oru m o f th e c ity

c o u n c il a n d is n o t a m e e tin g th a t is su b je c t to th e Op e n M e e tin g s Ac t. Th e o n ly

re a so na b le c o n stru c tio n o f th e C h a r t er p ro v isio n s o n v o tin g is th a t th e m a y o r

d o e s n o t b e c o m e a c o u nc ilm e m be r fo r p u rp o se s o f v o tin g wh e n c a lle d u p o n to

b re a k a tie vo te ; th e m a y o r v o t e s a s m ay o r, a n o n -c o u n c ilm e m b e r, wh o is

a u th oriz e d b y th e Ch a rte r to c a st a tie -b re a k in g v o te o f th e c o u n c ilm e m be rs. S e e

Pa lme r v

. Cla x to n

, 2 0 6 Ga

. 8 6 0

, 8 6 3 (2 ) (5 9 S E2 d 3 79 ) (1 9 5 0 ). In de e d

, th e

se n te nc e re q u irin g th e a ffirm a tiv e v o te o f “ fo u r c o u n c ilm e m b e rs” to a d o p t a n y

o rd in a n c e

, re so lu tio n, or m o tio n o p e n s with th e p ro v iso

, “ [e ] x c e p t a s o th e rwise

p ro v id e d i n t h is c h a

p te r,” a n d th e Ch a rte r sp e c ific a lly p ro vid e s o th e rwise in

S e c tio n 3 .2 2 (8 ) wh ic h a

u th o riz e s th e m a y o r to v ote in th e c a se o f a “ tie v o te .”

In d e c id in g w h e th e r to g ra n t a n in t e r l o c u to ry in ju n c tio n

, tria l c o u rts a re

to c o n sid e r wh e th e r:

(1 ) th e re is a su b sta n tia l th re a t th a t th e m ov in g p a rty will su ffe r

irre p a ra b le in ju ry if th e in

ju n c tio n is n o t g ra n te d ; (2 ) th e th re a te n e d

in ju ry to th e m o v i n g p a rty o u twe ig h s th e th re a te n e d h arm th a t th e

in j u n c tio n m a y d o to th e p a rty b e in g e n jo in e d ; (3 ) th e re is a

su b sta n tia l lik e lih oo d th a t th e m o v in g p a rty will p re v a il o n th e

11m e rits of [th e ] c la im s a t tria l, a n d (4 ) g ra n tin g th e in te rlo c u to ry

in ju nc tio n will n o t d isse rv e th e p u b lic in te re st.

(Cita tio n om itte d.) S

RB In v e st me n t S e rv ic e s, L L L P v

. Bra n c h Ba n k in g a n d

T ru st Co

. , 2 8 9 Ga

. 1

, 5 (3 ) (7 0 9 S E2 d 2 6 7 ) (2 0 1 1 ). In S RB In v e stme n t S

e rv ic e s

,

th is Co u rt n o te d th a t th e m o v in g p a rty n e e d n o t p ro v e a ll fo u r fa c to rs. Id

. Th e

tria l c o u rt’s b ro a d d isc re tio n to g ra n t o r d e n y a n in te rl o c u t o r y in ju n c tio n

,

h o we v e r, wil l n o t b e re v e rse d “ u n le ss th e tria l c o u rt m a d e a n e rro r of la w th a t

c o n trib u te d to th e d e c isio n

, th e re wa s no e v id e n c e o n a n e le m e n t e sse n ti a l to

re lie f, o r th e c o urt m a n ife stly a b u se d its d isc re tio n .” (Cita tio n a n d p u n c tu a tio n

o m itte d .) Id

.

To th e e x te n t th a t th e tria l c o u rt o rd e r e n jo in s th e m a y o r fro m m e e tin g

p riv a te ly with th re e c ity c o u n c il m e m b e rs, it a p p e ars th a t th e tria l c o u rt’s g ra n t

o f th e in ju n c tio n with re sp e c t to th e ma y o r’s p a rtic ip a tio n in su c h m e e tin g s is

b a se d u po n a n e rro n e o u s in te rp re ta tio n o f th e C h a rte r. 5 Th a t b e in g th e c a se

, th e

first o f th e fo u r fa c to rs a tria l ju d g e is to c o n sid e r wh e n d e c id in g u p o n a m o tio n

fo r in te rlo c u to ry in

ju n c tio n is n ot m e t in th is c a se

– th e m o vin g p a rtie s will n o t

5 T he injunction prohibits the may or from meeting privately w ith three or more c ity council

members. As d iscussed above, it is permiss i b le for the may or to meet privately with three city

council members. However, a meeting with four would consitute a quorum and v i o l a t e the Open

Meeting s Act law if done in privat e.

12su ffe r irre p a ra b le h a rm b y d e n ia l of th e m o tio n be c a u se th e a p p lic a b le la w d oe s

n o t gra n t th e m th e rig h t to d e m a n d o r e x p e c t th a t su c h m e e tin g s will b e n o tic e d

a n d o p e n to th e p u b lic

. A tria l c o u rt’s d isc re tio n to d e c id e wh e th e r to g ra n t a n

in te rlo c u to ry in

j u n c tio n is a

b u se d

, an d m a y b e re v e rse d

, wh e n it is b a se d o n a

mi s u n d e rsta n d in g o r m isap p lic a tio n o f th e g o v e rn in g la w, o r in th is c a se

, c i t y

c h a rte r. S e e Owe n s v

. Hill

, 2 9 5 Ga

. 3 0 2

, 30 9 (4 ) (7 5 8 S E 2 d 7 9 4) (2 0 1 4 ).

Ac c o rd in g ly

, we re v e rse th a t se c tio n o f th e in te rlo c u to ry in ju nc tio n o rd e r

re q u irin g c o m

p lia n c e with th e Op e n M e e t i n g s A c t f o r m e e tin g s in c lu d in g Ma y o r

Lu e th a t d o n ot in v o lv e a q u o ru m o f fo u r c o u nc ilm e m

b e rs.

(b ) As se t fo rth in S e c t i o n 3 .2 2 (8 ), th e Ch a rte r a u th oriz e s th e m a y o r to

v o te o n c ity c o u n c il b u sin e ss o n ly in th e e ve n t o f a tie vo te a n d a lso in e le c tio n s

o f o ffic e rs wh o a re e le c te d by th e c it y c o u n c i l a n d im p e a c h m e n t o r re m o v a l

p ro c e e d in g s, wh e t h e r o r n ot th e vo te is tie d

. A n o th e r se c tio n o f th e

in te rlo c u to ry in

ju n c tio n ord e r c h a lle n g e d b y Ma y o r Lu e sta te s th a t th e m a y o r’s

a u th ority to v ote with re sp e c t to d e c isio n s o n e le c te d o ffic e rs do e s n o t in c lu d e

th e c ity a tto rn e y o r c ity e m p lo y e e s. S p e c ific a lly , th e o rd e r sta te s:

Th e Ma y o r c a n o n ly vo te wh e n th e re is a th re e to th re e tie

. Th e

o n ly e x c e p tio n is with re g a rd to e le c te d o ffic e rs, wh ic h d o e s n o t

in c lu d e th e c ity a tto rn e y o r c ity e m p lo y e e s. If th e Ma y o r b e lie v e s

13t h e r e is a m a tte r o n wh ic h sh e c o u ld o th e rwise v o te

, sh e ma y

p e titio n th is Co u rt fo r g u id a n c e

.

(Em p h a sis in o rig in a l.)

S tric tly sp e a k in g

, th is se c tio n o f th e in te rlo c u to ry ord e r c orre c tly a p p lie s

th e te r ms o f th e c ity c h a rte r with re sp e c t to th e m ay or’s a u th o rity to v o te o n

ma t t e r s b e fo re th e c ity c o u n c il, a n d th e tria l c ou rt d id no t e rr in e n te rin g it.

Ac c o rd in g to th e t e r m s o f th e C h a rte r, n e ith e r th e c ity a tto rn e y n o r c ity

e m p lo y e e s a re e le c te d offic e rs. P u rsu a n t to S e c tio n 4 .1 2, th e c ity a tto rn e y is to

b e a p p o in te d b y th e c ity c o u n c il a n d se rv e a t th e p le a su re of th e c ity c ou nc il, a n d

it is th e c ity c o u n c il wh ic h d e c id e s u p o n th e c i t y a t to rn e y ’s c o m p e n sa tio n 6

, 7

P u rsu a n t to S e c tio n 3 .2 2 (2 ), th e m a y o r h a s a u th o rity to “ [a ] p p o in t a n d re m o v e

fo r c a u se , with c on firm a tio n o f a p p o in tm e n t o r re m o v a l b y th e c ou nc il, a ll . . .

e m p lo y e e s o f th e c ity

. . . .” City e m p lo y e e s a re a

pp o in te d b y th e m a y o r a n d a re

6 As with any matter set forth in the Charter on which the city co u n c i l m a k e s t h e

determination, in the event of a tie vote, and assuming a q uorum of four c ouncilmembers, the may or

may cas t the tie-breaking vote f or appointment of the city attorney

. T h e record reflects a dispute

ex ist s w i t h r es p ect to employ ment o f the city attorney

. I f any d ecisions have been made to date

reg arding the city attorney that do not comply w ith the terms of the Charter, the proper remedy is to

seek a trial court ruling that the specific act i o n i n q u e s t i o n is ultra vires and bey ond the scope of

authority of the person or entity that took the challeng ed action as defined by the municipal code or

charter. See, e.g

., City of Ludowici v. Brown , 249 Ga. 857 (295 SE2d 857) (1982).

14n o t e le c te d o ffic e rs, a n d th e re fo re th e c h a lle n g e d p ro v isio n o f th e in te rlo c u to ry

in ju n c tio n o rd e r d o e s n o t v io la te th e te rm s o f th e Ch a rte r. 8

(c ) T h e fin a l se c tio n o f th e in te rlo c u to ry in ju n c tio n o rd e r to wh ic h

a p p e lla n t o b

je c ts sta te s a s fo llo ws:

Th e Ma y o r is e n jo in e d fro m te rm i n a tin g an y c ity e m p lo y e e

with o u t fu ll d u e pro c e ss a s is p ro vid e d b y th e c ity c h arte r, sta te a n d

fe d e ra l la w

, a nd th e a

p p ro v a l o f th is c o u rt a fte r th e op po rtu nity fo r

a h e a rin g

.

(Em p h a sis in o rig in a l.) “ In

ju n c tio n o u g h t n o t to b e g ra n te d

, u n le ss th e in ju ry is

p re ssin g a n d th e de la y d a n g e ro u s, a n d th e re is no a d e q u a te re m e d y a t la w.”

(Cita tio n a n d p u n c tu a tio n o m itte d .) Ca th c a rt V a n & S t ora g e Co

. v

. City o f

Atla n ta

, 1 69 Ga

. 7 9 1 (1 5 1 S E 4 8 9 ) (1 9 30 ). W h e re th e re is an a d e qu a te re m e d y

a t la w, a te m

po ra ry in ju n c tio n so u g h t b y th e p e titio n e r is p ro p e rly re fu se d

. Ea st

v

. He n ry Da rlin g

, In c

. , 1 6 3 Ga

. 7 6 0 (1 3 6 S E 8 9 5 ) (1 9 2 7 ). No a lle ga tio n is m a d e

th a t Ma y o r Lu e ha s im

p ro p e rly te rm in a te d o r th re a te n e d t o te rm in a te a n y c ity

e m p lo y e e

, a lth o u g h th e re c o rd re fle c ts a p p elle e s a re c on c e rn e d th a t sh e m a y

h a v e p la n s to d o so

. “ Co u rts o f e q u ity will n ot e x e rc ise [th e p o we r o f in ju n c tiv e

8 To the ex tent that this provision of the interlocutory order may be interpr e t ed as placing

a restriction on the may or’s authority to appoint c ity employ ees i n the manner set forth in the

Charter, however, that interpretation would be contrary to the ex press provisions of the Charter.

15re lie f] to a lla y m e re a p p re h e n sio n s o f in

ju r y

, b ut on ly wh e re th e in ju ry is

im m in e n t a n d irre p a ra

b le a nd th e re is n o a d e q u a te re m e d y a t la w.” (Cita tio n a n d

p u n c tu a tio n o m itte d .) Mo rto n v

. Ga rd n e r

, 2 4 2 Ga

. 8 5 2

, 8 5 6 (2 5 2 S E2 d 4 1 3 )

(1 9 7 9 ). Th is se c tio n o f th e in te rlo c u to ry in ju n c tio n o rd e r is, th e re fo re

, re v e rse d

.

3

. Ma y o r Lu e file d two m o tio n s to d ism iss th e c om p la in t o n th e g ro u n d

th a t it fa ile d to sta te a c la im u p o n wh ic h re lie f c a n b e g ra n te d

. In th e e a rlie rfile d m o tio n

, Ma y o r Lu e a sse rte d sh e is imm u n e fro m p la in tiffs’ c la im s fo r

d a m a g e s fo r a lle g e d no n -c o m p lia nc e with th e Op e n Me e tin g s Ac t b y v irtu e o f

th e d o c trin e o f so v e re ig n im m u n ity a n d b y th e d o c trin e o f o ffic ia l o r q u a lifie d

im m u n ity

. S h e a lso a sse rte d th a t p la in tiffs f ai l e d t o sta te a c la im a g a in st h e r

b e c a u se sh e

, a s a n in d iv id u a l e le c te d o ffic ia l, is n ot an “ a ge n c y ” p ursu a n t to th e

Op e n M e e tin g s Ac t a n d th u s is n o t a p ro p e r p a rty to a c o mp l a in t fo r d a m a ge s

u n d e r th e Ac t. F in a lly

, Ma y o r L u e a sse rte d th a t e v e n if th e p la in tiffs we re to

p ro v e a v io la tio n o f th e Op e n Me e tin g s Ac t, th e y are no t e n title d to e n fo rc e c iv il

p e n a ltie s a g a in st h e r p u rsu a n t to OCGA § 5 0 -1 4-6

. In th e se c o nd -file d m o tio n

,

Ma y o r Lu e a sse rte d sh e

, in h e r c a p a c ity a s m a y o r, is no t a p a rty c a pa b le o f b e in g

su e d

. Afte r th e se mo t i on s w e re file d

, p la in tiffs a m e n d e d th e ir c o m p la in t to

m a k e a d d itio n a l c la im s o f v io la tio ns o f th e Op e n Me e tin g s Ac t, a s we ll a s o th e r

16a c ts w h ic h

, a c c o rd in g to pla in tiffs, c re a te g ro u n d s fo r re m o v a l fro m offic e

. Th e

tria l c o u rt d e n ie d b o th m o tio n s to dism iss, a n d Ma y o r Lu e a p p e a ls. On a

p p e a l,

Ma y o r Lu e a rg u e s th a t th e tria l c o u rt’s d e c isio n o n h e r mo t i o n s to d ism iss

sh o u ld b e re v e rse d b e c a

u se : (a ) in he r c a

p a c ity a s m a y o r, a s sh e is n a m e d in th e

c o m p la in t, sh e i s n o t a n e n tity o r p e rso n c a p a b le o f b e in g su e d ; (b ) sh e is n o t

a n a g e nc y th a t m a

y b e s u e d u n d e r th e O p e n Me e tin g s Ac t; a n d (c ) in h e r

c a p ac i ty a s m a y or, sh e is n o t a p ro p e r p a rty to th e c la im fo r awa rd of a tto rn e y

fe e s. We a lso a dd re ss wh e th e r t h e tria l c o u rt p ro p e rly d e nie d th e m o tio n to

d ism iss w ith re sp e c t to th e p la in tiffs’ p e titio n to n u llify c e rta in c i t y c o u n c il

d e c isio n s a n d with re sp e c t to th e p e titio n to re m o v e th e m a y o r.

(a ) We re

je c t Ma y o r Lu e ’s a sse rtio n th a t th e c o m pla in t sh ou ld b e

d ism isse d in its e n tire ty b e c a u s e th e n a m e d d e fe n d a n t, “ Ma ry An n Wh ip p le

Lu e

, a s Ma y o r of th e City o f Go rd o n ,” is n e ith e r a n a tu ra l p e rso n n o r a n e n tity

c a p a b le of b e in g su e d

. Be in g n a m e d a s a d e fe n d a n t in a la wsu it in a n o ffic ia l

c a p a c ity

, ra th e r th a

n a n in d iv id u a l c a

p a c ity

, do e s n o t m e a n th e p e rso n so n a m e d

is an e n tity in c a

p a ble o f b e in g su e d

. 9 In fa c t, th e Civ il P ra c tic e A c t re c o g n iz e s

9 I t is not uncommon for the may or of a c ity to b e sued in his or h er official c apacity

. See,

e.g

., Owens v. City of Greenville

, 290 Ga. 557 (772 SE2d 755) (2012); City of Atlanta v. Southern

States Police Benevolent Assn. of Georgia

, 276 Ga. App. 4 46, 447, n. 1 (623 SE2d 557) (2005); City

17th a t a p u b lic offic e r m a y su e o r b e su e d in his o r h e r offic ia l c a p a c i t y

. S e e

OCGA § 9 -1 1 -2 5 (d ) (2 ) (p e rm ittin g a p u b lic o ffic e r n a m e d in a n a c tio n in h is

o r h e r o ffic ia l c a

pa c ity to b e de sc rib e d a s a p a rty b y o ffic ia l title ra th e r th a n b y

n a m e

, un le ss th e tria l c o urt re q u ire s h is o r he r na m e to b e a d de d ). T h i s C o u rt

h a s sta te d th a t a su it file d a ga in st a c o u n ty e m plo y e e in h is o ffic ia l c a

p a c ity is,

in e sse nc e

, a c la im a g a in st th e c o un ty

. S e e Gilb e rt v

. R ic h ard so n

, 2 6 4 Ga

. 7 4 4

,

7 4 6

, n . 4 (2 ) (4 54 S E2 d 4 76 ) (1 9 9 4 ); se e a lso City o f Atla n ta v

. Ha rb o r Gro v e

Ap a rtme n ts, L L C

, 3 08 Ga

. Ap p

. 5 7

, 58 (7 0 6 S E2 d 7 2 2 ) (1 ) (2 0 1 1 ). Lik e wise

,

we c o nc lu d e h e re th a t p la in tiffs’ c la im a ga in st Lu e

, in h e r o ffic ia l c a p a c ity a s

m a y o r is, in e s s e n c e

, a c la im a g a in st th e City o f Go rd o n

, wh ic h is le g a l e n tity

in c o rp o ra te d b y th e Ge n e ra l Asse m b ly 1 0 a nd c a

p a ble o f b e in g su e d

.

(b ) Ma y o r Lu e a rg u e s th a t th e Op e n Me e tin g s Ac t, b y its te rm s, a p p lie s

o n ly to a n “ a g e n c y ,” a s de fin e d b y th e A c t. P u r s u a n t t o OCGA § 50 -1 4 -1 (a )

(1 ), a m u n ic ip a l c o rp ora tio n

, e v e ry d e p artm e n t o r sim ila r b o d y o f th e m u n ic ip a l

c o rp ora tio n

, a nd e v e ry c ity is a n a g e n c y s u b j e c t to th e te rm s of th e Ac t. 1 1

of Roswell v. Bolton , 271 Ga. App. 1 (608 SE2d 659 (2004).

1 0 See Section 1.10 of the City Charter of the City of Gordon, supra.

1 1 I n pertinent part, OCGA § 50-14-1 (a) states that, as used in the Open Meeting s Act:

(1) “Ag ency ” means:

18Ac c o rd in g ly

, Ma y o r Lu e a rg u e s sh e is n o t a n a g e nc y su b je c t t o th e Op e n

Me e tin g s Ac t. As is o b v io u s fro m th e c a ptio n o f th e c o m

p la in t, a s we ll a s th e

p a rty na m e d in th e su m m o n s, Lu e wa s su e d in h e r o ffic ia l c a p a c ity a s m a y o r,

a n d sh e is th e so le p a rty n a m e d a s d e fe n d a nt. Ma y o r L u e a sse rts sh e

, a lo n e

, is

n o t th e p ro p e r d e fe n da n t to th is a c tio n a lle gin g v io la tio n s o f th e Op e n Me e tin g s

Ac t a n d se e k in g to e n fo rc e d a m a g e s fo r v io la tio n o f th e Ac t.

It is tru e th a t, in g e ne ra l, th e O p e n Me e tin gs Ac t a d d re sse s th e o blig a tio n s

o f a g e n c ie s, a s d e fin e d b y th e Ac t, a nd n ot sp e c ific in d iv id u a ls o r g o v e rn m e n ta l

o ffic e rs. Th a t se c tio n of th e Ac t th a t im p ose s pe n a ltie s, ho w e v e r, re fe rs to “ a n y

p e rso n ” wh o v io la te s th e re q u ire m e n ts o f th e Ac t. OCGA § 5 0 -1 4

- 6 sta te s a s

fo llo ws:

An y p e rso n k n o win g ly a n d willfu lly c o n d u c tin g o r pa rtic ip a tin g in

a m e e tin g i n v i o l a tio n o f th is c h a p te r sh a ll be g u ilty o f a

m isd e m e a n o r a n d u p o n c o n v ic tio n sh a ll b e p u n ish e d by a fin e n o t

to e x c e e d $ 1 ,0 0 0 .0 0

. Alte rn a tiv e ly

, a c iv il p e n a lty m ay b e im p o se d

. . . (B ) Every county

, municipal c o r p o ration, school district, or other political

subdivision of this state;

(C) Every department, ag ency

, board, b u r e a u

, office, commission, authority

, or

simil ar body of e ach such county

, municipal corporation, or other political

subdivision of this state; [ and]

(D) Every city

, county

, reg ional, or o ther authority established pursuant to the laws

of this state; . . . .

19b y th e c o u rt in a ny c iv il a c tio n b ro u g h t p u rsu a n t to th is c h a pte r

a g a in st a n y p e rso n wh o n e g lig e n tly v io la te s th e te rm s o f t h is

c h a p te r in a n a m o u n t no t to e x c e e d $ 1,0 0 0 .0 0 fo r th e first v io la tio n

. A c iv il pe n a lty o r cr i min a l fin e n ot to e x c e e d $ 2 ,5 0 0 .0 0 p e r

v io la tio n m a y b e im

p o se d fo r e a c h a d d itio n a l vio la tio n th a t th e

v io la to r c o m m its with in a 1 2 m o nth p e rio d fro m th e d a t e th a t th e

first p e n a lty o r fin e wa s im po se d

. It sh a ll b e a d e fe n se to a n y

c rim in a l a c tio n u n d e r th is Co d e se c tio n th a t a p e rso n ha s a c te d in

g o o d fa ith in h is o r h e r a c tio n s.

P rio r to its a m e n d m e nt in 20 1 2

, th is c o d e se c tio n p ro v id e d o n l y f o r

m isd e m e a n o r c rim in a l p e n a ltie s fo r v io la tio n o f th e Ac t. 1 2 Th is p re c lu d e d

p riv a te c itiz e ns fro m se e k in g to im p o se a p e n a lty fo r no nc o m p lia n c e with th e

Ac t sin c e th e y la c k sta n d in g to in itia te a c r i m in a l p ro se c u tio n

. Se e C a rd in a le

v

. City of Atla n ta

, 2 9 0 G a

. 5 2 1

, 5 2 6 (7 2 2 S E2 d 7 3 2 ) (2 0 1 2 ) (a ffirm in g d ism issa l

o f th a t p o rtio n o f a c o m

p la in t a g a in st a m

u n ic ip a lity a nd in div id ua l m e m b e rs o f

th e c ity c o u n c il se e k in g to im p o se m isd e m e a no r p e n a ltie s fo r a lle g e d vio la tio n s

o f th e O p e n Me e tin g s Ac t, b u t re v e rsin g d ism issa l o f th a t p ortio n o f th e

c o m p la in t se e k in g d e c la ra to ry an d in ju n c tiv e re lie f fo r a l l e g e d v io la tio n s).

S h o rtly a fte r th is Co u rt issu e d its o p in io n in th e Ca rd in a l e ca se

, th e Ge n e ra l

Asse m bly a m e n d e d O C GA § 5 0 -1 4 -6 to p ro v id e

, in a d d itio n to a c rim in a l

1 2 See Ga. L . 1988, p. 235, § 1.

20p e n a lty fo r k n o win g a n d willfu l v io la tio n o f th e Ac t, fo r th e im p o sitio n o f a c iv il

p e n a lty “ in a

n y c iv il a c tio n

. . . a g a in st a n y pe rso n wh o n e glig e n tly vio la te s th e

te rm s o f th is c h a

p te r . . . .” 1 3

In c o n stru in g a sta tu te , th is c o u rt a pp lie s

fu n d a m e n ta l ru le s o f s ta tu to ry c o n stru c tio n [th a t] re q u ire u s to

c o n stru e a sta tu te a c c o rd in g to i t s t e r ms, to g iv e wo rd s th e ir p la in

a n d o rd in a ry m e a n in g

, a n d to lo o k d ilig e n tly fo r th e in te ntio n o f th e

Ge n e ra l Asse m

b ly

. OCGA § 1 -3 -1 (a ); [Cit.]

. W h e re th e p la in

la n g u a g e o f a sta tu te is c le a r a n d su sc e p tib le o f o nly o n e re a so na b le

c o n stru c tio n , we m

u st c o n stru e th e sta tu te a c c o rd in g to its te rm s.

Atla n ta In d

e p e nd e n t S c h o o l S y ste m v

. At l a n t a Ne ig h b o rh o o d Ch a rte r S c h o o l,

In c

., 2 9 3 Ga

. 6 29

, 6 3 1 (7 4 8 S E2 d 8 8 4) (2 0 1 3 )

. A l t h o u gh th e o p e n m e e tin g s

re q u ire m e n ts of th e Ac t a

p p ly to a g e n c ie s, th e n a tu ra l a n d re a so n a b le re a d in g o f

OCGA § 5 0 -1 4 -6 is th a t th e Ge n e ra l A sse m b ly re c o g n iz e d th a t d e c isio n s to

c o m p ly

, o r n ot, w ith th e Ac t a re m a d e b y in div id u a ls, o r “ p e rso n s,” wh o a re h e ld

a c c o u nta b le b y th e p ro v isio n s o f th a t Co d e se c tio n

. 1 4 Th e c o m pla in t in th is c a se

,

1 3 G a

. L

. 2012, p. 218, § 1/HB 397. I n the same House B ill, a similar provision was

enacted providing f

or recovery of civil penalties ag ainst “any person or entity ” who n eg lig ently

violates the terms of the Open Records Act, OCGA § 50-18-70 et seq. Ga. L

. 2012, p. 218, § 2/HB

397.

1 4 S e e a l s o OCGA § 50-14-1 (e) (2) (B ) (requiring minutes to include the identity of

“persons” making motions and voting ); OCGA § 50-14-4 (b) (stating that if a meeting is closed to

the public, the “person ” presiding must ex ecute an affidavit, a nd if one or more “persons” in an

21h o we v e r, d o e s n o t n a m e Ma y o r Lu e in h e r in d iv id u a l, p e rso n a l c a p a c ity ;

in ste a d, sh e wa s su e d in h e r o ffic ia l c a p a c ity a s m ay o r. A c c o rd in g ly

, th a t

p o rtio n o f th e c o m

p la in t se e k in g to e n fo rc e a c iv il p e n a lty “ a g a in st a n y p e rso n

wh o n e g lig e ntly vio la te s th e te rm s o f th is c h a p te r,” p u rsu an t to OCGA § 5 0 -1 4

-

6 fa ils to n a m e a

p ro p e r p a

rty d e fe nd a n t a n d sh o u ld b e d ism isse d

. 1 5

(c ) Th e c o m

p la in t a lso se e k s a n a wa rd o f a t t orn e y fe e s, p u rsu a n t to

OCGA § 5 0 -1 4 -5 (b ), fo r a lle g e d v io la tio n s o f th e Op e n Me e tin gs A c t. Un lik e

OCGA § 5 0

- 1 4 -6

, wh ic h p ro v id e s fo r th e im p o sitio n o f c iv il a n d c rim in a l

p e n a ltie s a g a in st a p e rso n wh o v io la te s th e Op e n Me e tin g s Ac t, OCGA § 5 0 -1 4

-

5 (b ) do e s n ot re fe r to a p e rso n wh o h a s v io la te d th e Ac t. In ste a d

, it re fe rs o n ly

to a n a c tio n b ro u g h t to e n fo rc e th e Ac t in wh ic h th e tria l c o u rt d e te rm in e s th a t

“ a n a g e nc y ” h a s a c te d w ith o ut su b sta n tia l ju stific a tio n in v io la tio n of th e Ac t.

Th o se c a se s in w h ic h a

n a wa rd o f a tto rn e y fe e s p u rsu a nt to th is Co d e se c tio n ha s

b e e n a f f i r me d in v o lv e c o m

p la in ts file d a g a in st th e g o v e rn m e n ta l a ge n c y th a t

ex e cutive session speaks out of turn, the presiding officer must take certain steps); OCGA § 50-14-5

( c ) ( providing immunity for any “ag ency or person” who provides access to information in go o d

faith).

1 5 W e therefore need not d ecide in this case whether private citiz ens may enforce the new

civil penalty provision a nd/or collect any civil penalty paid, or if, as in the case of the criminal

penalty provision, only the Attorney G eneral has standing to enforce and collect the criminal penalty

on behalf of the State, which receives any fine paid.

22wa s su b

je c t to th e Op e n M e e tin g s Ac t, a lo ng w i t h in d iv id u a l o ffic e h o ld e rs.

S e e , e

. g

., City o

f S ta te sb o ro v

. D a b b s

, 2 8 9 Ga

. 6 6 9 (2 ) (7 1 5 S E2 d 73 ) (2 0 1 1);

S la u g h te r v

. Bro wn

, 2 6 9 Ga

. Ap p

. 2 1 1 (6 0 3 S E2 d 7 0 6 ) (2 0 0 4 ); Ev a n s Co u n ty

B d

. of Co mmrs. v

. Cla x to n En te rp rise

, 2 5 5 Ga

. Ap p

. 6 5 6 (5 6 6 S E 2 d 3 9 9 )

(2 0 0 2 ). Th is is a

p p ro p ria te b e c a

u se th e c le a r a n d u n a m

b ig u o u s la n gu a g e o f

OCGA § 5 0 -1 4 -5 (b ) re fe rs to a n a g e n c y an d n o t a p e rso n

. F o r th e re a so n s se t

f o r th a b o v e

, we c o n c lu d e th a t p la in tiffs’ c la im a g a in st Lu e

, in h e r c a p a c ity a s

m a y o r, fo r a n a wa rd o f a tto rn e y fe e s p u rsu a n t t o O C G A § 1 5 -1 4-5 (b ) is, in

e sse n c e

, a c la im a ga in st th e City o f G o rd o n

, wh ic h is a n a g e nc y p u rsu an t to th e

Op e n Me e tin g sAc t. Co n se q u e n tly

, th is c la im wa s n o t su b je c t to d ism issa l o n th e

g ro u n d th a t Lu e

, in h e r c a

p a c ity a s m a y o r, is n ot a p ro p e r p a rty to th e c la im

, a n d

th e tria l c o u rt did n o t e rr in d e n y in g Ma y o r Lu e ’s m o tio n to dism iss th is p o rtio n

o f th e c la im

.

( d ) T h e c om

p la in t se e k s in

ju n c tiv e re lie f to n ullify c e rta in c ity c o u n c il

d e c isio n s b e c a

u se th e y we re a lle g e d ly m a d e a t m e e tin g s th a t we re n o t n o tic e d

o r o th e rwise n o t c o n du c te d in c o m p lia n c e with th e re q uire m e n ts o f th e O p e n

Me e tin g s Ac t. In

ju n c tiv e re lie f, h o we v e r, d o e s n o t p ro v i d e a re m e d y fo r a c ts

23a lre a d y c o m

p le te d

. S e e

, e .g

., Mo o rh e a d v

. L u t h e r

, 2 1 9 Ga

. 24 2 (2 ) (a ) (1 3 2

S E2 d 6 6 9) (1 96 3 ); W

ig g in s v

. Bd

. o f C o mmrs. o f T ift Co u n ty

, 25 8 G a

. Ap p

. 6 6 6

,

6 6 8 (5 74 S E2 d 8 74 ) (2 0 0 2 ) (in a c a se a lle gin g v io la tio n s o f th e Op e n Me e tin g s

Ac t, wh e re it a

p p e a rs th a t th e a c ts c o m

p la in e d o f we re fu lly c on su m m a te d

, a n

in ju n c tio n d o e s n o t lie ). Ad d itio na lly

, a n in ju n c tiv e re m e d y d oe s n o t lie wh e re

o n e h a s a c o m

p le te re m e d y a t la w. L a w re nc e v

. L a wre n c e

, 1 9 6 Ga

. 2 0 4 (1 ) (a )

(2 6 S E2 d 2 8 3 ) (1 9 43 ); se e a lso T o b in v

. Co b b Co un ty Bd

. o f Ed u c

., 2 78 Ga

. 6 6 3

(2 ) (6 0 4 S E2 d 16 1 ) (2 0 0 4 ) (wh e re th e Op e n Re c o rd s Ac t p ro v id e s a n a d e q u a te

re m e d y a t la w, n e ith e r m a n d a m us n o r e q u ita

b l e r e l i e f c a n b e g ra n te d ). Th e

Op e n M e e tin g s Ac t p ro v id e s a le g a l re m e d y fo r in v a lid a tin g a n y o ffic ia l a c tio n

o f a n a g e n c y m a d e in v io la tio n o f th e A c t

. O CGA § 5 0 -1 4 -1 (b ) (2 ).

C o nse q u e n tly

, th e tria l c o urt e rre d in de n y in g M a y o r Lu e ’s m o tio n to d i s mi s s

th a t p o rtio n o f th e c o m

p la in t se e k in g to n u llify c e rta in c ity c o u n c il d e c isio n s o n

th e g ro u n d th e y we re m a d e in v io la tio n o f th e Op e n Me e tin g s Ac t.

(e ) Th e o n l y o t h e r e q u itab le re lie f so u g h t in p la in tiffs’ c o m p la in t is

Ma y o r Lu e ’s re m o v a l fro m o ffic e . Th e Ch a rte r p ro v id e s th e m an n e r in wh ic h

a m a y o r m a y b e re m o v e d fro m o ffic e

, in c lu d in g a n o rd e r o f th e Wilk in so n

24Co u n ty S u p e rio r c ou rt fo llo win g a h e a rin g o n a c o m pla in t fo r re m o v a l. It a lso

se ts fo rth th e g ro u n d s b y wh ic h a m a y o r m a y b e re m o v e d

, in c lu d in g

in c o m p e te n ce

, mi s fe a sa n c e

, or m a lfe a sa n c e in o ffic e

. P la in tiffs in th is a c tio n

a lle g e th a t gro un d s fo r re m o v a l, if p ro v e n

, a re e sta b l i s h e d b y Ma y o r Lu e ’s

a lle g e d v i o l a t i o n s o f th e Op e n Me e tin g s Ac t, a lo n g with o th e r a lle g e d

wro ng d o in g

. Ne v e rth e le ss, a c o m pla in t fo r re m o v a l fro m o ffic e is o n e th a t m u st

b e a sse rte d a g a in st th e o ffic e h o ld e r, in h e r in d iv id u a l c a p a c ity

, n o t a g a in st th e

o ffic e

. 1 6 Bu t a s n o te d a

bo v e

, p la in tiffs d id n o t n a m e th e Ma y o r in h e r in d iv id u a l

o r p e rso n a l c a

p a c ity

, b u t o n ly in h e r c a

p a c ity a s m a y o r. Co n se q u e n tly

, th e tria l

c o u r t e rre d in d e ny in g Ma y o r Lu e ’s m o tio n to d ism iss th a t p o rtio n o f th e

c o m p la in t se e kin g re m o va l fro m o ffic e

.

Ju d g m e n t a ffirm e d in p a rt a n d re v e rse d in p a rt. All th e Ju stic e s c o n c u r.

1 6 B y analog y , the writ of quo warranto to challeng e the rig ht of a person to hold a specific

public o f fice, pursuant to OCGA § 9-6-60, is a proceeding ag ainst a named individual. See Malone

v. Minchew

, 170 G a. 687 (153 SE 773) (1930); see also Lopez v. Bd. of Educ., etc

., 310 Conn. 576,

591 ( 81 A3d 184) (2013) (“[ A] writ of quo warranto m u s t be directed toward the objectionable

person holding a

n office a nd ex ercising its functions in his o r her individual c apacity .” [ Citations and

punctuation omitted.] )

25