THI RD DI VI SI ON

ELLI NGTON, P. J.

, DI LLA RD and M C FA DDEN, 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 /

Jul y 14, 2015



# I n th e Co u r t o f

A p p eals o f

G eo r g ia

A1 5 A0 40 1

, A1 5 A0 4 0 2

. DAY v

. FLOYD COUNTY BOARD OF

EDUCATION; an d v i ce v ers a. J E-0 2 0

E LLI N G T O N , Pres i d i n g J ud g e.

Gi l d a Day ’ s t each i n g co nt ract wi th t h e Fl o y d Co un t y Bo ard o f Ed ucat i o n

, a/ k / a

t h e Fl o y d Co u n t y Sch o o l Di s t ri ct (“ t h e Lo cal Bo ard ”), w as n o t ren ewed fo l l o wi n g a

s y s t em -wi d e red u ct i o n i n fo rce, a d eci s i o n u l t i m at el y u p h el d b y t h e Su p eri o r Co u rt

o f Fl o y d Co un t y

. 1 In Cas e No

. A1 5 A0 4 0 1

, D a y ap p eal s

, arg u i n g t hat t h e s u p eri o r

co u rt erro n eo u s l y i n terp ret ed G eo rg i a l aw in rev ers i n g t h e d eci s i o n o f t h e Geo rg i a

Bo ard o f Ed u cat i o n (“ t h e S t a t e Bo ard ”). In Cas e No

. A1 5A0 4 0 2

, t h e Lo cal Bo ard

cro s s -ap p eal s

, co nt en d i n g t hat t h e St at e Bo ard d i d n o t h av e ju ri s d i ct io n t o en t ert ai n

Day ’ s ap peal fro m t h e L o cal Bo ard ’ s d eci s i o n b ecau se t h e Lo cal Bo ard

, as a ch art er

1 T h i s C o u r t gran t ed Day ’ s ap p l icat i o n fo r a d is cret i o nary ap p eal

. See OCGA §

5 -6 -3 5 (a) (1 ).s y s t em

, i s n o t bo u n d b y t h e Fai r Di sm is sal Act (“ t h e FDA”), OCGA § 2 0 -2 -9 4 0 et

s eq

. Fo r t he reas on s t h at fo ll o w, we rev ers e t h e o rd er o f t h e s u p eri o r co u rt an d rem an d

wi t h i n s t ru ct i o n

.

Th e fact s rel ev an t to t h e ap p eal an d t h e cro ss -ap p eal are t h e s am e. In 2 0 0 7

, Day

was em p l o y ed as a co u n sel o r at Co o s a H i g h Sch o o l

, wh i ch was p art o f t h e F l o yd

Co u n t y s c h o o l d i s t ri ct

. In 2 0 10

, t h e Fl o y d Co u n ty sch o o l d i s tri ct b ecam e a ch art er

s y s t em u n d er t h e Ch art er Sy s t em s Act o f 1 9 9 8

, OCGA § 2 0 -2 -2 0 6 3

. 2

. 2 Th e ch art er

refl ect s t h at t h e Lo cal Bo ard was g ran t ed , p u rs u an t t o OCGA § 2 0 -2 -2 0 6 5 (a), “ t h e

b ro ad fl ex i b i l i t y al l owed b y s tat e l aw fro m t h e p ro v i s i o n s o f Ti t l e 2 0 ” o f t h e Geo rg i a

Ed u cat io n Co d e. T h e ch art er d i d n o t ex p res s l y i n co rp o rat e o r al l o w fo r t h e

i n co rp o r a t i o n o f an y of t h e pro v is i on s o f t h e FDA an d t h ere i s n o ev i d en ce i n t h e

reco rd t h a t t h e c h art er was l at er am en d ed t o ad o p t an y p ro v i s io n o f t h e FDA. Th e

ch art er d i d req u ire, h o wev er, t h at each ch art er s c h o o l w i t h i n t h e s y st em es t ab l i s h a

Lo cal S c h o o l Go vern an ce Team (“ LSGT”) fo r t h e p u rp os e o f “ m ax i m i zi n g s ch o ol

l ev el d eci s i o n m ak i n g

. ” Th e LSGTs are s u b ject t o t h e co n t ro l an d m an ag em en t o f t h e

Lo cal Bo ard

.

2 Ga. L. 2 0 0 7, p . 1 8 5

.

2In 2 0 1 3

, t h e L o cal Bo ar d i m p l e m en t ed a s y s t em -wi d e red u ct io n i n fo rce

(“ RI F ”) o f ab o u t 1 2 0 em p l oy ees i n res p o n s e t o d ecreas ed s t at e fu n d i n g an d a

p ro ject ed d efi ci t o f $ 1 0 m i l l i o n fo r t h e 2 0 13 -2 0 1 4 s ch oo l y ear. Th e R IF pl an was

creat ed b y t h e s ch o o l s u peri n t en d en t an d i m p l em e n t e d b y a t eam co m pri s ed o f t h e

s u p eri n t en d en t

, th e h u m an res o u rces d i rect o r, an d a d at a an al y st

. In deci d i n g wh i ch

em pl o y ees t o l et g o

, t h e t eam fi rs t s el ect ed t ho s e wi th po o r p erfo rm an ce ev al u at i on s

an d t h os e wi t h “ rep eat ed p e r f o rm an ce co n cern s .” Day was n o t i n t h i s i n i t i al g ro u p.

Th ereaft er, t he t e a m g ro u p ed t h e rem ai n i n g em p l o y ees i n t o cat eg o ri es b as ed u p o n

p o s i t i on (e.g

. t each ers

, g u i dan ce co u n sel o rs

, et c.,) an d s t at u s (e .g

., t en u red

, n o n

t e n u red

, an d cl as s i fi ed em p l o y ees ). Th e t eam t h en d et erm i n ed h o w m an y p o s i t i on s

i n each cat eg o ry i t n eed ed to o p erat e t he sch o o l s y s t em an d th en offered co n t ract s fo r

t h e 2 01 3 -2 0 1 4 s ch o o l y ear t o em p l o y ees wi t h t h e m o s t s en i o ri t y in each po s it i o n

. Th e

t eam d et erm i ned t h at i t co u l d op erat e t h e s ys t em wi t h 1 3 o f i t s 2 4 g u i d an ce

co u ns el o rs

. Becau s e Day ran ked 1 7 th i n t erm s o f s en io ri ty

, s h e was n o t offered o n e

o f t h e 1 3 p o si t i o n s.

By l et ter d at ed M arch 2 2

, 2 0 1 3

, t h e s ch oo l s up eri n t en d en t n o ti fi ed Day t h at h er

em pl o y m en t co nt ract was n o t b ei n g ren ewed an d

, ci t i n g OCGA § 2 0

- 2

- 9 4 0 o f t h e

FDA, ad v i sed h er t h at s h e was en t i t l ed t o a h eari n g b efo re t h e Lo cal Bo ard

. Co u n s el

3fo r t h e Lo cal B o a rd

, h owev er, t o o k t he p o s i t io n t hat ch art er s y s t em s are s t at u t o ri l y

ex em p t e d f ro m t h e FDA; nev ert h el es s

, t h e L o cal Bo ard g av e Day a h eari n g

, wh i ch

was h el d o n M ay 1 0

, 2 0 1 3

. Fo l l o w i n g th e h eari n g

, t h e L ocal Bo ard v o t ed t o u p h o ld

t h e d eci s i o n n o t t o ren ew Day ’ s em p l o y m en t co n t ract

.

Day ap p eal ed t o t h e St at e Bo ard

, wh i ch rev ers ed t h e Lo cal Bo ard

. T h e St at e

Bo ard ru l ed t h at t h e Lo cal Bo ard was n o t ex em pt fro m t h e FDA. It co n cl u d ed t h at t h e

Lo cal Bo ard h ad ad op t ed t h e pro ced u res of t h e FDA an d wai v ed an y ex em p t i o n fro m

t h e FDA b y g i v i ng D ay a h eari n g p u rs u an t t o t he FDA. Nex t

, t h e St at e Bo ard fo u n d

t h at t h e n eces s i t y o f t h e RIF was s u p p o rt ed by th e ev i d en ce an d t h at th e Lo cal Bo ard

i d en t i fi ed ap p ro p ri at e fact o rs (e.g

. p erfo rm an ce an d l en g t h o f s erv i ce) fo r

i m p l em en t i n g t h e RIF. Ho wev er, t h e St at e Bo ard co n cl u d ed t h at t he Lo cal Bo ard h ad

v i o l at ed i t s ch art er b y fai l i n g t o i n v o lv e t he L SGTs i n t h e s y s t em -wi d e RIF d eci s i o n

m ak i n g p ro ces s

. Becau s e o f th i s fai l u r e

, t h e St at e Bo ard ch aract eri zed t he Lo cal

Bo ard ’ s “ act i on s as b ei n g arb i t rary an d cap ri ci o u s b ecau se t h e d eci s i o n on wh o t o RIF

m ay h av e en d ed i n a d i fferen t res u l t i f t h e p ro p er p ro ced u res h ad b een fo ll o wed .”

Th e Lo cal Bo ard ap peal ed t o t h e s u p eri o r co u rt

, an d t h e su p eri o r co urt rev ers ed

t h e St at e Bo ard i n p art

. Al t h o u gh i t affi rm ed t h o s e po rt i o n s o f th e St at e Bo ard ’ s o rd er

h o l d i n g t h at t h e n eces s i t y o f th e RIF was s up p ort ed b y t h e ev i d en ce an d t h at t h e

4Lo cal Bo ard i d en t i fi ed ap p ro p ri at e fact o rs i n i m p l em en t in g t h e R I F

, the supe r ior c ou rt

rev ers ed t h at p o rt io n o f t he St at e Bo ard ’ s o rd er h ol d i ng t h at t he Lo cal Bo ard h ad

v i o l at ed i t s ch a rt er by fai l in g t o i n v o l ve t he LSGTs i n t h e RIF d eci s i o n -m ak i n g

p ro ces s

. T h e s u p eri o r co u rt al s o reject ed t h e Lo cal Bo ard ’ s arg u m en t t h at t h e St at e

Bo ard l ack ed ju ri sd i ct i o n t o h ear Day ’ s ad m i n i s t rat i v e ap p eal

. Ap p aren t l y as s u m i n g

t h at t h e FDA d i d n o t ap p l y t o ch art er sch o o l s an d ch art er sy s tem s, t h e s u p eri o r co u rt

h el d t h at Day was “ a p rev i o u s l y ten u red em p lo y ee” an d t h at a “ m ere l eg i s l at i v e

en act m en t ” an d t he s u b s eq u en t “ ex ecu t i o n o f a Ch art er Sch o o l Ag reem en t t o wh i ch

s h e [was ] n o t a p art y can no t t ak e t h o s e ri g h t s fro m h er[.] ” Co n s eq uen t l y

, t h e co u rt

h el d t h at Day was en t i t led t o “ s o m e fo rm o f d ue p ro ce s s ” b efo re h er em p l o y m en t

co u ld b e t erm i n at ed

. Th e s u p eri o r co urt co n cl u d ed t h at t h e St at e Bo ard h ad ap p el l at e

ju ri s d i ct i o n t o co n s id er wh et h er Day h ad b een affo rd ed t hat d u e p ro ces s

.

In Cas e No . A1 5 A0 4 0 1

, Day arg u es t h at (1 ) t h e Lo cal Bo ard i s b o un d b y t h e

FDA, ev en t h o u gh it i s a ch art er s y s t em ; an d (2 ) t h e St at e Bo ard had t h e au t h o ri t y to

ad d res s t he Lo cal Bo ard ’ s al leg ed v i o l at i o n o f i t s ch art er co n t ract (i

. e., i t s fai l u re to

i n v o l v e t h e LSGTs i n t h e RIF p ro ces s ). Th e Lo cal Bo ard arg u es

, i n ter al ia, t h at t h e

s u p eri o r co u rt erred i n fi nd i n g t h at t h e St at e Bo ard h ad s u b j ect m at t er ju ri s di ct i o n to

en t ert ai n Day ’ s ap p eal

. Th i s arg u m en t al s o fo rm s t h e fi rs t cl ai m o f erro r i n t h e Lo cal

5Bo ard ’ s cro s s -ap p eal i n Cas e N o

. A 1 5 A0 4 02

. Fo r t h e reas on s t h at fo ll o w, we h o ld

t h at

, u n d er t h e c ircu m s t an ces p res en t ed h ere, t h e Fl o y d Co u n t y ch art er s y s t em was

ex em p t fro m t h e FDA an d i t s ad m i n i s t rat i v e ap p eal s p ro ces s p u rs u an t t o t he g en eral

wai v er o f OCGA § 2 0 -2 -2 0 6 5 (a) an d t hat

, as a co n s eq uen ce, th e St at e Bo ard l ack ed

s u b j e c t m at t er ju ri sd i ct i o n t o en t ert ai n Day ’ s ap p eal

. W e t herefo re rev ers e t h e

d eci s i o n o f t he s u p eri o r co urt an d rem an d th i s cas e wi t h i n s t ru ct i o n t o rei n s t at e t h e

d eci s i o n o f t h e Lo cal Bo ard

.

Ca s e No . A1 5 A0 4 0 1

1 . Th i s Co u rt h as h el d t h at “ an ap pel l at e co urt o r tri b un al o n l y h as t h e p o wer

t o rev iew a ju d gm en t o r d eci s i o n o f a l o w er co u rt o r t ri b u n al i f i t has ju ri s d i ct i o n o v er

t h e ap p eal .” (Fo o t n o te o m i t t ed

. ) Cl a yt o n Co u n t

y Bd

. o f Ed

. v. W i l mer

, 3 2 5 G a. Ap p.

6 3 7

, 6 4 3 (1 ) (7 5 3 SE2 d 4 59 ) (2 0 1 4 ). See al s o Fu l l wo o d v. Si vl ey

, 2 7 1 Ga. 2 4 8,

2 5 0 -2 5 2 (5 1 7 SE2 d 5 1 1 ) (1 9 9 9 ) (Un l es s a n a p p el l at e co urt h as ju ri s d ict i o n o v er a

cas e, “ i t i s wi t h o u t p o wer o r au t h o ri t y t o ren d er a ju d g m en t up o n rev i ew.”) (ci t at i o n

an d p u n ct u at io n o m i t t ed ). As a t h res h o l d m at t er, we m us t ad dres s wh et her t h e St at e

Bo ard

, as an ap p el l at e t ri b u n al

, h ad ju ri s di ct i o n to en t ert ai n an ad m i n i s t rat i v e ap p eal

fro m t h e Lo cal Bo ard ’ s d eci s io n n ot t o ren ew Day ’ s em p l o y m en t co n t ract

. Th e St at e

Bo ard ’ s au t h o ri t y t o hear an ap p eal fro m t h e Lo cal Bo ard i s fo u n d i n OCGA § 2 0 -2

-

61 1 6 0 (b ) an d p ro v i d es t hat “ [a] n y p art y ag gri ev ed b y a d e c i s i o n o f th e l o cal b o ard

ren d ered o n a co n t es t ed i s su e aft er a h eari n g sh al l h av e t h e ri gh t t o ap p eal t h erefro m

t o t h e St at e Bo ard o f E d u cat i o n .” In t h i s cas e, D ay was n o t “ ag g ri ev ed b y a d eci s i o n

o f t h e l o cal b o ard ” b ecau s e t h e FDA d i d n o t ap pl y t o h er an d s he w as g i v en t h e

b en efi t o f a h eari n g an d an ad m i n i s t rat i v e p ro ces s t o wh i ch s h e was n o t en ti t l ed

.

Day p ro ceed ed i n t h i s cas e u n d er t h e a s su m p t i o n t h at t h e FDA p ro vi d ed h er

wi t h ad m i n i s t rat i v e rem ed i es fo l l o wi n g t h e n o nren ewal o f h er em p l o y m en t co n t ract

,

ev en t h o u g h h er co nt ract o f em p l o y m en t was wi t h a ch art er s y s t em

. Ch art er s ch o o l s

an d ch art er s y s t em s are g o v ern ed b y t h e Ch art er Sch o o l s Act o f 1 9 98

. See OCGA §

2 0 -2 -2 0 60 et s eq

. U nd er t h e Ch art er Sch o o l s Act

, ch art er s ch oo l s an d ch art er s y s t em s

are g ran t ed a g en eral w ai v er ex em p ti n g t h em fro m m o s t s t at e s t at u t o ry an d reg u l at o ry

s ch em es t h at ap p l y t o n o n-ch art er p u b l i c s ch o ol s u n d er Ti t l e 20

, “ Ed u cat i o n .” OCGA

§ 2 0-2 -2 0 6 5 (a) p ro v id es , i n rel ev an t p art :

Excep t a s p r o vi d

ed i n t h i s a r t i cl e o r i n a ch ar t er

, a ch art er s ch o o l

, o r fo r

ch art er s y s t em s

, each s ch o o l w i t h i n t he s y s t em

, s h a l l n o t b e s u b j ect t o

t h e p r o vi s i o n s of t h i s t i t l e o r a n y s t a t e o r l o ca l r u l e, r eg u l a ti o n

, p o l i cy,

o r p ro ced

u r e r el a t i n g t o s ch o o l

s wi t h i n an a

p p l i c a b l e s ch o ol s

ys t em

r e g a r d l es s o

f wh et h er s u ch r u l e, r eg ul a t i o n, p o li cy, o r p r o ced u r e i s

es t a bl i sh ed b

y t h e l o ca l b o a r d

, t he st at e b o a r d

, or t h e Dep a rt men t o

f

Ed u ca t i o n ; p ro v i d ed

, h o wev er, t h at t h e s t at e bo ard m ay es tab l is h ru l es

,

7reg u lat i o n s , p o l i ci es , o r p ro ced ures co n s i st en t wi t h t h i s art i cl e rel at i n g

t o ch art er s ch o o l s

. A wai v er g ran t ed p u rs u an t t o th i s Co de s ect i o n fo r a

ch art er sy s t em sh al l ap p l y t o each s y s t em ch art er s ch o o l wi t h i n th e

s y s t em

.

(Em p h as i s s u p pl i ed .) Becau s e FDA, OCGA § § 2 0 -2 -9 4 0 t hro u g h 20 -2 -9 4 8

, i s am o n g

t h e p ro vi s i o n s o f Ti t l e 20 g en eral l y wai v ed

, a ch art er s y s tem i s n ot s u b ject t o t h e FDA

u n l es s t h e s y s t em ’ s ch art er s o p ro v i d es o r u nl es s an ex cep t i o n t o t h e g en eral wai v er

co n tai n ed wi t h i n Ti t l e 2 0 ap p l i e s

. O CGA § 2 0 -2 -2 0 6 5 (a). Th i s is th e p l ai n an d

u n am b i g u o u s i m

p o rt o f t h e st at u t e. 3 Th e Fl o y d Co u n t y s ch oo l s s y s t em ’ s ch art er d o es

n o t i n co rp o rat e t h e FDA n or d o es i t ex p r e s s l y a ll o w fo r t h e p ro m ul g at i o n o f l o cal

ru l es or p o l i ci es em

b raci n g t h e FDA. An d n o n e o f t h e ex cep t i o n s t o OCGA § 2 0 -2

-

2 0 6 5 (a) li s t ed i n 2 0 -2 -2 0 6 5 (b ) ex p res sl y p ro v i d e t h at ch art er s ch o o l s s h al l be s u b ject

t o t he FDA. See OCGA § 2 0 -2 -2 0 6 5 (b ) (1 ) t h ro u gh (b ) (1 3 ).

3 “ W h ere t h e l an g u ag e of a s t at u t e i s pl ai n an d u n am b i g u o u s

, ju d i ci al co n s t ru ct i o n

i s no t on l y u n n eces s ary b u t fo rb i dd en .” (Ci t at i o n o m i t t ed .) S i x Fl a gs o ver Ga

. II, L.P. v.

Ku l l

, 2 7 6 Ga. 2 1 0

, 2 1 1 (5 7 6 SE2 d 8 8 0 ) (2 0 0 3 ). In t h i s reg ard

, “ u n d er o u r s y s t em o f

s ep arat i o n o f p owers [t h e ap p el lat e co u rt s d o ] n o t h av e th e au t h ori t y to rewri t e s t at u tes .”

S t a t e v. Fi el d

en

, 2 8 0 Ga. 4 44

, 4 4 8 (6 2 9 S E2 d 2 52 ) (2 0 0 6 ). A d d it i o n al l y

, th e ju d i ci al

b ran ch “ m ak e[s ] an i n d ep e n d e n t d et erm in at i on as t o wh et h er [an ] in t erp ret at i o n o f t h e

ad m i ni s trat i v e ag en cy co rrect l y refl ect s th e pl ai n l an g u ag e o f [a] s t at u te an d co m p o rt s w i t h

the l e g i s l at i v e i nt en t

. ” (Ci t at i o n o m i t t ed .) S awn ee El ect r i c Memb er

s h i p C o r p. v

. G a. P ublic

S vc. Co mm ., 2 7 3 Ga. 7 02 , 7 0 6 (5 4 4 SE2 d 1 5 8) (2 00 1 ).

8Day arg u es

, h o wev er, t h at t h e FDA i s i m pl i ci t l y i n cl u d ed wi t h in an ex cep t i o n

t o t h e bro ad wai v er of OCGA § 2 0

- 2

- 2 0 6 5 ( a ), ci t i ng OCGA § 2 0 -2 -2 0 6 5 (b ) (5 ).

Th at s u b s ect i o n p ro v i d es

, i n rel ev an t p art , t h at

,

[i ] n d et erm i n i n g wh et h er t o ap p ro ve a ch a rt er p et i ti o n o r ren ew an

ex i s ti n g ch art er, t h e l o cal b o ard an d s t at e b o ard s h al l en su re t h at a

c h art er s ch oo l

, or fo r ch art er s y s t em s

, each s ch o o l wi t h i n t h e s ys t e m

,

s h al l b e:

. . . [s ] u b

ject t o al l fed eral

, st at e, an d l o cal ru les

, reg u l at i o ns

,

co u rt o rd ers

, a n d s t at u t es rel at in g t o ci vi l ri g h t s ; i n s u ran ce; th e

p ro t ect i o n o f t h e p h y s i cal h eal t h an d safet y o f s ch o o l s tu d en t s

,

em p l o y ees

, an d vi s it o rs ; co n fl i ct i n g i n t eres t t ran s act i o n s ; an d th e

p rev en t i o n o f u n l awfu l co n d u ct [.]

Day co n t en d s t h at

, as a t en u red t each er, s h e i s en t i t l ed t o d u e p ro ces s b efo re

s h e i s d ep ri v ed o f h er t en ure, a v es t ed p ro p ert y ri g h t , an d t h at s u ch d u e p ro ces s i s a

“ ci v i l ri g h t .” Sh e arg ues

, t h erefo re, t h at FDA i s am on g t h e “ s t at u t es rel at i n g t o ci v i l

ri gh t s” referen ced i n OCGA § 20 -2 -2 0 6 5 (b ) (5 ) an d t h at ch art er s ch o ol s an d ch art er

s y s t em s are su b

ject t o t he FDA. Day ’ s arg u m en t

, h o wev er, i s fo u n ded o n a fau l t y

p rem i s e: Sh e as s u m es t h at

, h av i n g accep t ed em p lo y m en t wi th t h e Lo cal Bo ard aft er

i t s co n v ers i o n t o a ch art er s y s t em

, s h e ret ai n ed t h e t en u re t o wh i ch s h e w as prev i o u s l y

en t i t l ed wh i l e em

pl oy ed wi t h t he L o cal Bo ard w h en i t was a n o n -ch art er s y s t em

. Bu t

9a n y ri g ht Day h as t o co n t i nu ed em p l oy m en t d eri v es fro m t h e FDA o nl y

, 4 a n d t h e

Gen eral As s em

b l y h as p ro v i d ed t h at

, ab s en t a p ro v i s i o n i n t h e ch art er t o t h e co n t rary

,

ch art er s ch o o l s an d ch art er s y s t em s s h al l n o t b e s ub j ect t o t h e FDA. See OCGA § 2 0

-

2 -2 0 65 (a). Hav i n g accep t ed em p l o y m en t wi t h a ch art er sy s t em t h at was n o t s u b ject

t o t h e FDA, Day had n o t en ure o r ri g h t t o co n t i n u e d em p l oy m en t wi th t h at ch art er

s y s t em ; co n s eq u en t ly

, s h e was no t en t i t led t o an y o f th e p ro ced u ral ri g h t s affo rd ed to

t en u red em

p l o ye e s u n d er t h e FDA p ri o r t o t h e n o n ren ewal o f her em p l o y m en t

co n tract

. 5 Becau s e th e FDA’ s d u e p ro ces s p ro v i s io n s were i n ap p li cab le t o t h e Fl o y d

4 “ Th e em p l o y m en t ri g h t s o f p u b l i c s ch o o l em p l o y ees i n t h is s tat e are s t at u t o ry an d

are s et fo rt h i n t h e FDA.” (Ci tat i o n o m i t t ed .) DeKa l b Co un t y S ch o o l Di s t

. v. Bu t l er , 2 9 5

Ga. 67 2

, 6 73 (1 ) (7 6 3 SE2 d 47 3 ) (2 0 14 ). “ A t en u red t each er i s o ne wh o accep t s a s ch o o l

year co n t ract fo r t h e fo u rt h co n s ecu t i v e s ch o o l y ear fro m th e s am e l o cal b o a r d o f

ed u cat i o n

. OCGA § 2 0 -2 -9 4 2 (b ) (1 ).” Bo o n e v. At la nt a In d ep en d en t S ch o o l S ys t em

, 2 7 5

Ga. Ap p

. 1 31

, 1 32

, n

. 1 (6 1 9 SE2 d 7 0 8 ) (2 0 0 5 ). See al so W es t v. Do o l

y C o u n t y S c h o o l

Di s t

. , 3 16 Ga. Ap p

. 3 30 , 3 3 1 (1 ) (7 2 9 SE2 d 4 6 9) (2 01 2 ) (“ St at e l aw d et erm i nes wh et h er

a p u b l ic em

p l o y ee h as a p ro p ert y i n t eres t i n h i s o r h er jo b, an d d efi nes t h e d im en s i o n s o f

s u ch i n teres t .”) (ci t at i on s o m i t t ed ).

5 W h et h er OCGA § 2 0 -2 -2 0 6 5 (a) i s co n s t i t u t i o n al w as n o t d eci d ed b el o w, an d i t i s

n o t an is s u e t h at t h is Co urt m ay deci d e. W i t h res pect t o co n s t i t u ti on al is s ues

, th e Su p rem e

C o u r t o f Geo rg i a h as ex cl us i ve ju ri s d i ct i o n ov er al l cas es i n v ol v i n g co n s t ru ct i o n o f t h e

Co n s t i tu t i o n o f t h e St at e o f Geo rg i a an d o f t h e U n i t ed St at es an d al l cas es i n wh i ch t h e

co n s t i t ut i on al i t y o f a l aw, o rd i n an ce, o r co ns t i t u t i o nal p ro v i s io n h as b een c a l l e d in t o

q u es t i o n . Ga. Co ns t

. o f 1 98 3 , Art . VI, Sec. VI, Par. II (1 ).

10Co u n t y ch art er s y s tem

, it p lai n l y i s n o t o ne o f t h e “ s tat u t es rel at in g to ci v i l ri g h t s ”

referen ced i n OCGA § 2 0 -2 -2 0 6 5 (b ) (5 ). 6

Becau s e t h e Fl o y d Co u n t y ch art er s y s t em i s n o t s u b ject t o t h e FDA, Day was

n o t en ti t l ed to an y o f t he p ro ced u ral ri g h t s an d ad m i n i s t rat i ve r e m e d i e s affo rd ed to

t en u red

, n o n -ch art er p ub l i c s ch o o l em p lo y ees p urs u an t t o t h e FDA. See Pa t r i ck v.

Hu f f

, 2 96 Ga. Ap p

. 3 4 3, 34 5 -3 4 7 (1 ) (6 7 4 SE2 d 3 9 8 ) (2 0 0 9 ) (A p ub l ic s c h o ol

em pl o y ee i s n o t en t i t l ed t o t h e p ro ced u ral ri g h t s an d ad m i n is trat i v e rem ed ies affo rd ed

b y t h e FDA u n les s t h e em p l oy ee i s a co v ered em

p lo y ee wi t h i n th e am

b i t o f t h e Act .).

Becau s e D ay

, as an em

p lo y ee of a ch art er sy st em

, was n ot en t i t l ed t o t h e h eari n g an d

p ro ces s t h at t h e Lo cal Bo ard g r a t u i t ou s ly p ro v i d ed t o h er i n co n n ect i o n wi t h i t s

6 Had we fo u n d an y am

b i g u i t y i n O CGA § 20 -2 -2 0 6 5 (b ), we wo u l d hav e reco g n i zed

“ t h at l eg i s l at i v e ex ce p t i o n s i n s t at u t es are t o b e s t ri ct l y co n s t ru ed an d s ho u l d b e ap pl i ed

o n l y s o far as t h ei r l an gu ag e fai rl y warran t s.” (Ci t at i o n s an d p u n ct u at i on o m it t ed .) S a wn ee

El ect r i c M

e m b e r s h i p Co r p

. v. Ga

. Pu b l i c S

vc. Co m m

., 2 7 3 Ga. at 7 0 4

. Gi v en t h at t h e

Gen e r al A s s em

b l y ex p res s l y ex cep t ed cert ai n pro v i s i o n s o f Ti t l e 2 0 fro m t h e g en eral

wai v er, i t wo u l d hav e s im i larl y ex p res sl y ex cep t ed t h e FDA fro m t h e g en eral wai v er h ad

t h at b een i t s i n t en t

. See OCGA § § 2 0-2 -2 0 6 5 (b ) (9 ) t h ro ug h 20 -2 -2 06 5 (b ) (1 3 ). W e al s o

n o t e t h at

, d u ri n g t h e fl o o r d eb at e co n cern i n g t h e en act m en t o f t h i s Co d e s ect i o n

, a s en at o r

“ s t at ed a co n cern t h at t each ers wo u l d n o t h av e t h e p ro tect i o ns o f fai r d i s m i s s al u n d er Ti t l e

2 0 [.] ” See M eg an L. Io ri o r et al

., Peach Sh eet s

, E lem en t ary an d Seco n dary Ed u cat i o n

, 2 4

Ga. St

. U. L. Rev

. 12 1

, 1 2 9 (2 0 0 7 ). Fu rt h er, i n 2 0 11

, m em b ers o f t h e Gen eral As s em b l y

m ad e an effo rt t o am en d OCGA § 2 0 -2 -2 0 6 5 (b ) b y ad d i ng a s u b s ect i o n th at m ad e ch art er

s ch o o l s an d ch art er s y s t em s su b ject t o t he FDA; h o wev er, t h at l eg i s l at i on d i ed i n

co m m i t t ee. See Sen at e Bi l l 2 0 7

, 1 5 1 s t Gen

. As s em

. , Reg

. Ses s. (2 0 0 1 ).

11d eci s i o n n o t t o ren ew her em p l o y m en t co n t ract

, 7 s h e can n o t b e ag g ri ev ed b y a

d eci s i o n o f t h e Lo cal Bo ard affi rm i n g wh at i t al read y h ad a ri g h t t o d o . Un d er s u ch

ci rcu m s t an ces

, t h ere i s n o ri gh t t o an ap p eal t o th e St at e Bo ard . See OCGA § 2 0 -2

-

1 1 6 0 (b ) (“ An y p art y ag g ri ev ed b y a d e ci s i o n o f t he l o cal bo ard ren dered o n a

co n tes t ed i s s u e aft er a h eari n g s h al l h av e t he ri gh t t o a p p eal t h erefro m t o th e St at e

Bo ard o f Ed ucat i o n .”). See al s o Owen v. Lo n g Co un t y Bd . o f Ed

. , 2 4 5 Ga. 6 4 7

, 6 4 9

(2 ) (2 6 6 SE2 d 46 1 ) (1 9 8 0) (“ [O] n l y t h e d e ci s i o n s of t h e co u n t y b o ard m ad e o n

d i s p u t e d i s s u es are ap p eal ab l e. If t h ere h as b een no i s s u e h eard an d d eci d ed b y t h e

co u nt y b o ard

, t h ere can be n o p art i es an d n o t es t i m o n y w h i ch th e l aw au t h o ri zi n g an

ap p eal co n t em

p lat es .”) (ci tat i o n o m i t t ed ; d eci d ed u n d e r f o rm er Ga. Co d e An n

. §

3 2 -9 10 ).

Co n seq u en t l y

, we rev ers e t h e o rd er o f th e s u peri o r co u rt an d rem an d t h e cas e

t o t h e s u peri or co u rt w i t h i ns t ru ct io n t h at i t vacat e t h e o rd er o f t h e St at e Bo ard an d

rei n s tat e t h e d eci s i o n o f t h e Lo cal Bo ard

.

7 W e fi n d n o m eri t t o t h e arg u m en t t h at t h e Lo cal Bo ard

, i n i ts cap aci t y as a p art y

, wai v ed t h e i n ap p l i cab il i t y o f t h e FDA b y g i v i n g Day a h eari n g p u rs uan t t o t h e FDA. See

Ja cks on v. Ga mb l e

, 2 32 Ga. 14 9, 1 5 2 (2 0 5 SE2 d 2 5 6 ) (1 9 7 4 ) (wai v er o r co n s en t t o

ju ri s d ict i o n can n o t co n fer ju ri s di ct i o n o v er t he s u b ject m at ter u p o n a t ri b u nal ).

122

. Gi v en ou r h o l d in g i n Di v i s i o n 1 th at th e St at e Bo ard had n o au t h o ri t y t o h ear

Day ’ s ap p eal fro m t h e Lo cal Bo ard ’ s deci si on n o t t o ren ew h er em p l o y m en t co n t ract

,

h er rem ai n i n g cl ai m o f erro r co n cern in g wh et h er the S ta te Bo ard co rrect l y d et erm i n ed

t h at th e L o cal Bo ard fai l ed t o i n v o l ve t h e LGST s i n t h e RIF p ro ces s (an al l eg ed

v i o l at i o n o f i t s ch art er) i s m o o t.

Ca s e No . A1 5

A0 4 0 2

3

. Fo r t h e reas o n s s et fo rt h in Di v i s i o n 1 of t h is o pi n i o n

, t he Lo c a l Bo ard ’ s

cro s s -ap p eal i s m oo t

.

Ju d g men t r ever

s ed an d ca s e r ema n d

ed wi t h d i r ect io n

. M

cFa d d en

, J., co n cu rs

a n d Di l l a r d , J., co n cu r

s f u l l y a n d s peci al l y.

13A1 5 A0 40 1

. A1 5 A0 4 0 2. DAY v

. FLOYD COUNTY BOA R D OF

EDUCATION; an d v i s e v ers a.

D I LLA R D , J u dg e, co n cu rri n g fu ll y an d s p eci al l y

.

I ag ree wi t h t h e m ajo ri t y ’ s co n cl u s io n t h at D ay w as n o t en t i t l ed t o t h e

p ro ced ural ri g ht s an d rem ed i es affo rd ed b y t h e Fai r Di s m is sal A ct

, 1 an d I fu l l y co n cu r

wi t h th e reas o n i n g a n d an al y s i s u n derl y i n g t h at h ol d i n g

. Nev ert h el es s

, I wri t e

s ep arat el y t o ex pres s m

y d i s ag reem en t wi t h t h e i n cl u s i o n o f fo o t n o t e 6 i n th e m ajo ri t y

o p i n i o n

. In t h at fo o tn o t e, t h e m ajo ri t y d i s cu s ses w h at we m i g h t h av e co n s i d ered in

as cert ai n i n g t h e G en eral As s em b l y ’ s “ i n t en t ” if

w e h ad fo u n d an am

bi g u i t y i n OCGA

§ 2 0 -2 -2 0 6 5 (b ). Bu t b ecau s e we ex p res s l y h o l d th a t th i s s tat u t o ry p ro v i s io n i s n ot

am bi g uo u s , s u ch a d i s cu s si o n i s m ere d i ct a an d en t i rel y i rrel ev an t t o o u r h ol d i n g

. 2

1 S ee OCGA § 2 0 -2 -9 4 0 et

s eq

.

2 S ee McLeo d v. Cl emen t

s

,

_ __ Ga.

_ __ (_

_ _ SE2 d

_ _ _ )

, 2 0 1 5 WL 3 9 3 6 6 3 8

, * 3

(J u n e 2 9

, 2 0 1 5) (ex p l ai ni ng t h at s t at em en t s an d co m m en t s i n an o p i n i o n co n cern i n g a l eg al

p ro p o s i t i o n n o t n eces s ari l y i n v o l v ed wi t h n o r es s en ti al t o t he d et erm in at io n o f an ap p eal

are d i ct a an d lack t h e fo rce o f an ad ju d i cat i o n ); Li t t le v. Fl eet Fi n a n ce

, 2 2 4 Ga. Ap p

. 4 9 8

, 5 0 4 (4 8 1 SE2 d 5 5 2) (1 99 7 ) (s am e).M o reo v er, fo o t n o t e 6 of t h e m ajo ri t y o p i n i on rel i e s o n t h e l eg is l at i v e h i s t o ry

o f Ti t l e 2 0 o f t h e Offi ci al Co d e o f Geo rg i a, su ch as t h e f l o o r d e b a t es an d p ro p o s ed

l eg i s lat i o n t h at n ev er p as s ed

. Su ffi ce i t t o s ay

, I d o no t co n s i d er ex trat ex t u al s o u rces

o f t h i s n at u re i n i n terp r e t i ng s t at u t es

. As J u s t i ce An t o n i n Scal i a h as ap t l y n o t ed

,

“ l eg i s l at i v e h i s t ory [i s] t h e eq u i v a l e n t o f en t eri n g a cro wd ed co ck t ai l p art y an d

l o o k i n g o v er t h e h e a d s o f g u es t s fo r o n e’ s fri en d s .” 3 Th u s, wh i l e I co m p l et el y

u n d ers t an d t he m ajo ri t y ’ s des ire t o referen ce l eg i s l at i v e hi s t o ry i n th e cas e s u b j u d i ce

fo r co n t ex t u al reas o n s , I wi sh t o m ak e i t ab u nd an tl y cl ear t h at I cat eg o ri cal l y reject

rel y i n g o n l eg i s l at iv e h i s t o ry i n i n t erp ret i ng t h e s t at u tes p as s ed by o ur Ge n eral

As s em b l y

. In d eed

, l i k e J u s t i ce Scal i a (an d m an y ot h er t ex t u al i st s ), I am o f t h e v i ew

t h at t h e “ g reat es t defect o f leg i s l at i v e h i s t o ry i s i t s i l l eg i t i m acy

. ” 4 As Geo rg i an s (an d

Am eri can s ), we are “ go v ern ed b y l aws

, n o t by t h e i n t en t i o n s o f l eg i s l at o rs .” 5 An d as

3 Co n r o y v. An i s ko

f f

, 50 7 U .S. 5 1 1

, 5 1 9 ( 1 1 3 SCt 1 5 6 2

, 1 2 3 LEd 2 d 2 2 9 ) (1 9 9 3 )

(Scal i a, J ., co n cu rri n g ).

4 Id

.

5 Id

.

2ju d g es

, we s h o ul d o n l y b e co n cern ed wi t h wh at laws act u al l y s ay

, 6 “ n o t b y wh at t h e

p eo pl e wh o d raft ed t he l aws i n t en d ed .” 7

Th at h av i n g b e en s ai d

, I co m m en d t he m ajo ri t y fo r it s t h o u g h t fu l an d wel l

reas on ed o p in io n , an d I fu l ly co n cu r i n s am e.

6 S e e D e a l v

. Co l ema n

, 2 9 4 Ga. 1 7 0

, 1 7 2 (1 ) (a) (7 5 1 SE2 d 3 37 ) (2 0 1 3) (“ To t h at

en d

, we m

u s t affo rd t h e s t at u t o ry t ex t i t s p l ai n an d o rd i n ary m ean i n g .” (p u n ct u at i o n

o m i t t ed ); S t a t e v. Ab l e

, 3 2 1 Ga. Ap p

. 6 3 2

, 6 36 (7 4 2 SE2 d 1 4 9 ) (2 0 1 3 ) (“ A j u d ge i s ch arg ed

wi t h i nt erp ret i n g t h e l aw i n acco rd an ce wi t h t h e o ri g i n al an d / or pl ai n m ean i n g o f t h e t ex t

at i ss u e (an d al l t h at t h e tex t fai rl y i m p l i es ).

. . .”); A N T O N IN S C A LI A & B R Y A N A. G A R N E R

, R E A D I N G L A W : T H E I N T E R P R E T A T I O N O F L E G A L T E X T S 1 6 (1 s t ed

. 2 0 12 ) (“ Tex t u al i s m

, i n

i t s p u res t fo rm , b eg i n s an d en ds wi t h wh at t h e t ex t s ay s an d fai rl y i m p l i es .”).

7 S C A LI A & G A R N E R

, s u

p r a n o te 6 , at 3 7 5.

3