SECOND DI VI SI ON

A NDREWS, P. J.

, M cFA D DEN and M CM I LLI A N, 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 /

October 23, 2014



# I n th e Co u r t o f

A p p eals o f

G eo r g ia

A1 4 A0 76 2

. CITY OF BRO O KHAVEN, GEORGIA et al

. v

. CITY

OF CHAM BLEE, GEORGIA.

M C M ILLI A N , J u dg e.

Th i s ap p eal p res en t s an is s u e o f fi rs t i m p res s i o n : wh et h er a m

u n i ci p a l i t y h as

t h e au t h o ri t y p u rs uan t t o OCGA § 3 6 -3 6 -2 1 t o an n ex l an d t h at t h e Gen eral As s em b l y

h as d es i g n at ed fo r an n ex at io n t o an o t h er m u n i ci p al ity

, subj e c t to a referen d u m

, b efo re

t h e referen d u m t ak es p l ace. W e fi n d t hat m u n i ci p al i t i es d o n o t h av e s u ch au t h o ri t y

.

Th e fact s u n d erl y i n g t h i s ap p eal are un d i s p u t ed

, an d t h u s t h e ap p l i cat i o n o f l aw

t o t hes e fact s i s su b

ject t o d e no v o rev i ew. Fa yet t e Co u n t

y v. S t eel e

, 2 6 8 Ga. Ap p

. 1 3

(6 0 1 SE2 d 4 0 3) (2 0 0 4 ). In 2 0 1 3

, t he Gen eral As s em bl y p as s ed Lo cal Act 2 0 5 (t h e

“ Act ”), wh ich es t ab l i sh ed b o u nd ari es fo r an area o f l an d (t h e “ An n ex at i o n Area”) fo ran n ex at io n b y t h e Ci t y o f Ch am b l ee, Geo rg i a (“ Ch am

b l ee”). 1 Ga. L. 2 01 3

, Vo l

. 2

, p.

4 3 2 0 -4 3 2 2

. Th e An n ex at i o n Area i n cl u d ed “ Cen t u ry Cen t er,” a co m m e r c i al

d ev el o p m en t o wn ed by Hi g hwo o d s Pro p ert ies

, In c. 2 (“ Hi g h wo o d s”). Sect i o n 1 o f t h e

Act pro vi d ed a l e g a l des cri pt i o n o f t h e An n ex at i o n Area an d s tat ed th at i t was

creat i n g a n ew ch art er fo r Ch am b l ee “ b y an n ex in g [t h e area] t o t h e ex i s t i n g co rp o rat e

l i m i ts ” o f Ch am

b l ee. Ga. L

. 2 0 13

, Vo l

. 2

, at 4 32 0

. Sect io n 2 o f t h e Act p ro v i d ed t h at

“ t h e el ect i o n s u p eri nt en d en t o f DeKal b Co u n t y s h al l cal l an d co n d u ct an el ect i o n as

p ro v id ed i n t h i s s ect i o n fo r t he p u rp o s e o f s u b m i t t i n g t h is Act t o t h e el ect ors o f t h e

[An nex at i o n Area] fo r ap p ro v al o r r e ject i o n.” Id

. at 4 3 2 1

. T h e l eg is l at i o n fu rt h er

p ro v id ed t h at t h e s up eri n t en den t was t o co n d uct t h i s referen d u m “ o n t h e Tu es d ay

aft er t h e fi rs t M o n d ay

i n No v em

b er, 2 0 1 3,” an d t h at “ [i ] f m o re t h an o n e-h al f o f t h e

v o t es cas t o n su ch q u es t i on are fo r ap p ro val of t h e an n ex at i o n

, t h e n t hi s Act s h al l

b e c o m e e f

f e ct iv e o n Decem

b er 3 0

, 2 0 1 3.” Id

. Bu t “ [i ] f m o re t h an o n e-h al f o f t h e

v o t es cas t o n su ch q u es t i o n a r e f o r reject i o n o f t h e an n ex at i o n

, t hi s Act s h al l n ot

1 As Hi g h wo o d s n o t es

, t he Act ori g i n at ed i n t h e l eg i sl at u re as Ho u s e Bi l l 6 1 9.

G a

. H o u s e J o u r n a l 2 0 1 3

, p p

. 2 8 4 5

, 4 0 6 6

, 4 0 7 0

, a v a i l a b l e a t

h t t p : // www.h o u s e.g a.g o v/ cl erk / en -US/ Ho u s eJ o u rn al s .as p x

.

2 T h e Ci t y of Bro o k h av en

, G eo rg i a jo i n ed Hi g h wo o ds i n fi l i ng th e n o t i c e o f

ap p eal i n t h i s cas e b ut n ev er fi l ed an y ap p el l at e b ri efi n g

. Acco rd i n g l y

, Bro o k h av en ’ s

ap p eal i s d eem ed ab an do n ed

, l eav i n g Hi g hwo o d s as t h e s o l e ap p el l an t

.

2b eco m e eff

ect i v e an d s h al l b e au t o m at i cal l y rep eal ed o n t h e fi rs t d ay o f J an u ary

i m m ed i at el y fo l lo wi n g s u ch el ect i o n d at e.” Id

. Th e Act w as s i g n ed b y t h e Go v ern o r

o n M ay 6 , 2 01 3. Ga. L. 2 01 3 , Vo l . 2 , at 4 3 2 2

.

Th ereaft er, o n J ul y 1

, 2 0 1 3

, Hi g h wo o d s ap p l i ed t o t he Ci t y o f Bro o k h av en

,

Geo rg i a (“ Bro ok h av en ”) fo r an n ex at i o n of Cen tu ry Cen t er i nt o th at ci t y ’ s co rp o rat e

l i m i ts u n der t h e “ 1 0 0 p ercen t m et h o d ” o f an n ex at i o n o u tl i n ed i n OCGA § 36 -3 6 -2 1

. 3

Aft er Bro o k h av e n ’s c i t y co u n ci l s ch ed u l ed a v o t e o n th e i s su e, Ch am b l ee fi l ed a

p et i t i o n s eek i n g a d ecl arat o ry ju d g m en t an d i n j u n c t i v e rel i ef ag ai n s t Bro o k h av en

.

Ch am b l ee i n i t i al l y o b t ai n ed a tem p o rary res t rai n i n g o rd er en jo i n i n g t h e Bro o k h av en

ci t y co u n ci l fro m vo ti n g o n t h e an n ex at i o n

. Su b seq u en t l y

, t h e t ri al co u rt al l o wed

Hi g hwo o d s to i n t erv en e i n t h e act i o n as a d efen d an t

, w i t ho u t o b ject i o n b y Ch am

b l ee

o r B r o o k wo o d

. An d on Au gu s t 1 9

, 2 01 3

, t h e t ri al co u rt i ss u ed an i n t erl o cu t o ry

i n ju n ct i o n b arri n g t h e Ci t y o f Bro o k h av en “ fro m

act i n g t o an n ex an y p o rt i o n o f t h e

[An nex at i o n A rea] u n t il fu rt h er o rd er o f t h i s Co u rt

. ” In Sep t em b er 2 0 1 3

, t h e p art i es

fi led cro ss -m ot i o n s fo r s u m m ary ju d g m en t

.

3 Th at s t at u te al l o ws m

u n i ci p al co rp o rat i o n s “ t o an n ex t o t h e ex i s ti n g co rp o rat e

l i m i ts th ereo f u n i n co rp o rat ed areas co n t i g u o u s t o t h e ex i st in g co rp orat e l i m i t s at t h e

t i m e o f su ch an nex at i o n

. . . u p o n t h e wri t t en an d s i g n ed ap p l icat i o n s o f a l l o f t h e

o wn ers o f al l o f t he l an d .” OCGA § 3 6 -3 6-2 1

.

3In t h e i n t eri m

, Bro o k h av en an d Hi g hwo o d s fi l ed an em erg en cy m ot i o n i n t h e

Su p rem e Co u rt o f Geo rg i a s eek i n g rel i ef fro m t h e Au g u s t 1 9 i n j u n ct io n

. On Oct o b er

3

, 2 0 1 3

, th e Su p rem e Co urt g ran t ed t he m o t i o n

, s tay i ng t he t ri al co u rt ’ s i n t erl o cu t o ry

i n ju n ct i o n “ t o t h e ex t en t t h at i t p ro h i b i ts a v o t e b y t h e Ci t y Co u n ci l o f Bro o k h a v en

o n th e an nex at i o n o f Cen t u ry Cen t er o r o t h erwi s e i n t erferes w i t h act s of a l eg i s l at i v e

ch aract er.” Th ereaft er, o n Oct o b er 1 1

, 2 0 13

, Bro o k h av e n a n d H i g h wo o d s fi l ed a

d o cu m en t en t it l ed “

No t i ce o f An n ex at i o n ” i n t h e t ri al co u r t

, w h i c h s t at ed t h at “ o n

Tu es d ay

, Oct o b er 8

, 2 01 3

, t h e Ci t y of Bro o k h av en an n e x e d t h e t erri to ry k n o wn as

Cen tu ry Cen t er,” b u t wh i ch d i d n o t i ncl u d e an y s u p p ort i n g d o cu m en t at io n

.

Bas ed o n t hat fi l i n g

, Bro o k h a v e n a n d Hi g h wo o d s as s ert ed i n s u p pl em en t al

b ri efi n g o n t he cro s s -m o t i o n s fo r s u m m ary ju d g m en t t h at Bro o k h av en ’ s an n ex at i o n

o f t h e C e n t u r y Cen ter p ro p ert y was a fai t acco m pl i

. An d t hey arg u ed t h at al l o wi n g

Ch am b l ee’ s an n ex at i o n t o pro ceed b y en fo rci n g t h e Act w o u l d m ean t h at t h e Act

wo u l d s erv e b o t h t o d ean n ex t h e Cen t u ry Cen t er p ro p ert y fro m

t h e co rp o rat e l i m i t s

o f Bro o k h av en an d t o an n ex it t o t h e co rp o rat e l i m i t s o f Ch am bl ee. As a res u l t

, t h ey

co n ten d ed t h at t h e Act wo u l d v i o l at e t h is s t at e’ s co n s t it u t i o nal req u i rem en t t h at al l

l eg i s lat i o n h av e a s in gl e s u b ject m at t er. See Ga. Co n s t. of 19 8 3

, Art

. III, Sec. V, Par.

III. On O ct o b er 28

, 2 0 1 3, th e t r i a l co u rt i ss u ed an o rd er g ran ti n g Ch am b l ee’ s

4s u m

m ary ju d g m en t m o t i o n an d al l o wi n g Ch am b l ee t o p ro ceed wi t h i t s an n e x a t i o n

.

Th e Ord er al s o d en i ed Hi g h wo od s ’ s an d Bro ok h av en ’ s s u m m ary ju d g m en t m o t i o n s

,

wi t h o u t ad d res s i n g t h ei r co n s t i t u t i on al arg u m en t

. Hi g h wo o d s ap p eal ed t h at ord er t h e

s am e d ay

.

Su b s eq uen t l y

, o n N o vem b er 5

, 2 01 3

, v o t ers ap p ro v ed th e a n n ex at i o n by

referen du m

. Un der th e t erm s o f t h e Act

, Ch am b lee’ s an n ex at i o n b ecam e effect i v e o n

Decem b er 3 0

, 2 0 1 3

, b u t in res p o n s e t o an em erg en cy m o t io n fi l ed by Hi g hwo o d s

, t h i s

Co u rt i s s ued an o rd er o n D ecem b er 1 9

, 2 01 3

, en

jo i n i n g Ch am

b l ee fro m pro ceed i n g

wi t h th e an n ex at i o n o f t h e Cen t u ry Cen t er p ro p ert y p en d i n g res o l ut i o n of t h i s ap p eal

.

1

. Th e i s s u es i n t h i s cas e req u i re u s t o co n s i d e r t h e rel at i v e p o wers o f

an n ex at io n g ran t ed t o t he Gen eral A ss em bl y an d t o m

u n i ci pal i t i es u nd er Geo rg i a l aw.

Th e s t art i n g po i n t o f o u r an al y s i s i s t h e p ro v i s i o n o f t h e G eo rg i a Co ns t i t u t i o n v es t i n g

al l l eg i s l at i v e p o wer i n t h e Gen eral As s em b l y

. Ga. Co n st

. of 1 9 8 3

, Art

. III, Sec. I, Par.

I. H i s t o ri cal l y

, o u r Su prem e Co u rt d et erm i n ed t h at t h e p o wer o f an nex at i o n i s

l eg i s lat i v e i n nat u re an d t h at t h e l eg i s l at u re co u l d n o t del eg at e s u ch p o w e r t o

m u ni ci p al i ti es b ecau s e t h e Geo rg i a Co n s t i tu t i o n di d no t au t h o ri ze i t t o do s o. See Du

Pr e v. Ci t y o f Ma r i et t a

, 21 3 Ga. 4 0 3 , 4 0 5 -4 06 (2 ) (9 9 SE2 d 15 6 ) (1 9 5 7 ); Ph i l l i ps v.

Ci t y o f At la n t a

, 2 1 0 Ga. 7 2

, 7 5 (7 7 S E 2 d 7 2 3 ) (1 9 5 3). See al s o Ba l l en t i n e v.

5W

i l l in g h a m

, 2 3 7 G a. 6 0

, 6 1 (1 ) (2 2 6 SE2 d 5 9 3 ) (1 9 7 6) (“ It h as al way s b een wi t h in

t h e p o wer of t h e Gen e r al As s em b l y t o ex ten d o r d im i n i s h th e co rp o rat e l i m i t s o f a

m u ni ci p al i ty .”). Th erefo re, an nex at i o n b y a m un i ci p al i ty

req u i red a l o cal act b y

t h e

Gen eral As s em

b l y

. See Br u ck v. Ci t

y o f Temp l e

, 2 4 0 Ga. 4 11

, 4 1 3 (3 ), n

. 3 (2 4 0 SE2 d

8 7 6 ) (1 9 7 7 ).

Bu t i n 19 5 4

, t h e Geo rg i a Co n s ti t u t i o n was am en d ed t o al l ow t h e Gen eral

As s em b l y “ [t o p ro v i d e] b y l aw fo r t h e s el f-g o v ern m en t of m u n i ci pal i t i es an d t o t h at

en d [i t w a s ] ex pres s l y g i v en t h e au t h o ri ty t o del eg at e i t s p o wer so t h at m at t ers

p ert ai n i n g t o m

u n i ci p al i t i es m ay b e d eal t wi t h wi t h o u t t h e n eces s i t y o f act i o n b y t h e

Gen eral As s em

b l y .” Ga. Co n s t

. o f 1 9 83

, Art

. IX, Sec. II, Par. II. T h i s Am en d m en t

t h u s g ran t ed t h e Gen eral As sem b l y t h e au t ho ri t y t o del eg at e t h e p o wer o f an n ex at i o n

t o m u n ici p al i t i es

. See Ni s key La ke W a t er W o r ks

, In c. v. G a r n er

, 2 2 8 Ga. 8 6 4

, 8 6 6

(1 8 8 SE2 d 8 6 4 ) (1 9 7 2 ).

Th e Gen eral As s em

bl y s u b s e q u en t l y p as s ed l eg is l at io n d el eg at i n g to

m u ni ci p al i ti es t h e au t h o ri t y t o an n ex ad jo i ni n g l an d u n d er t hree al t ern at iv e m et h o d s :

(1 ) t h e “ 1 0 0 % m et h o d

, ” b y w h i ch a m u n i ci p al i t y m ay an n ex ad j o i n i n g l an d u p o n

ap p li cat io n b y al l t h e o wn ers of t h e l an d, w i th cert ai n ex cep t i o n s

, OCGA § § 3 6 -3 6 -2 0

t o 3 6 -3 6 -2 3 ; (2 ) th e “ 6 0 % m e t h o d

, ” b y wh i ch a m u n i ci pal i t y m ay an n ex ad jo i n i n g

6l an d u p o n ap p l i cat i on b y a m i n i m u m o f 6 0 % o f ad

jo i n i ng l an d o wn ers

, OCGA § § 3 6

-

3 6 -3 0 t o 3 6-3 6 -4 0 ; an d (3 ) t h e “ Res o l u t io n an d Referen d u m m et h o d ,” b y wh i ch a

m u ni ci p al i ty m ay

, o n i t s o wn i n i ti at i v e, an n ex co n t ig u ou s l an d s m eet i n g cert ai n

req u i rem en t s

, b y res o l u t i o n an d referen du m

, OCGA § § 36 -3 6 -5 1 to 3 6 -3 6 -6 1.

Nev ert h el es s

, t h e Gen eral As s em b l y h as ex p res s l y ret ai n ed i ts au t h o ri t y t o an n ex o r

d ean nex b y l o cal act an d has cl ari fi ed t h at n o ne o f t h e al t ern at iv e an n ex at i o n m et h od s

“ i s i n t en d ed t o or s h al l b e co n s t ru ed t o i n an y way to res t ri ct

, l i m i t

, or o t h erwi s e

i m p ai r t h e au t h o ri t y o f th e Gen eral As s em b l y t o an n e x o r d e a n n ex by l o cal Act .”

OCGA § 3 6 -3 6 -1 0

. 4 See al s o OCGA § 3 6 -3 6 -1 6

.

2

. In t hi s cas e, t h e Gen eral As s em b l y ex erci s ed i ts au th o ri t y to an n ex b y l o cal

act b y d es i g n at i n g a p art i cu l ar t ract of l an d fo r an n ex at i o n b y Ch am b lee an d by

4 OCGA § 3 6 -3 6-1 0 p ro v i d es i n fu l l :

It i s th e ex p res s i n t en t o f t h e Ge n e r a l As s em b l y i n en act i ng th e

p ro v i s i o n s o f t h i s ch ap t er t o p ro v id e fo r a l t e r n at i v e m et h o d s fo r

an n e x i n g o r d ean n ex i n g an area o r areas i n t o or fro m th e co rp o rat e

l i m i t s o f a m

un i ci p al it y

. Ex cep t as o t h erwi s e ex p res s l y pro v i d ed i n t h i s

ch ap t er, n o p ro v i s i on o f t h i s ch ap ter rel at i n g to an n e x a t i o n o r

d ean n ex at i o n b y an y s u ch al t ern at e m et h o d is i nt en d ed t o o r s h al l be

co n s t ru ed t o i n an y way res t ri ct

, li m i t

, o r o t h erwi s e i m p ai r t h e au t h o ri t y

o f t h e Gen eral As s em

b l y t o an n ex o r d ean n ex b y

l o cal Act

.

7p ro v id i n g th at t h e el ect o rs i n t h e An n ex at i o n Area wo u ld v o t e o n t h e i s s u e i n a

referen du m

. 5 Bu t b efo re t h e referen d u m c o u l d t ak e p l ace, Hi g h wo o d s pet i t i o n ed

Bro ok h av en to an n ex th e Cen t ury Cen t er p ro p ert y

u n d er t h e 1 0 0 % m et h o d, an d t h e

B r o o k h av en ci t y co u n ci l v o t ed t o ap p ro v e th e an n ex at i o n

. Hi g h wo o d s arg u es o n

ap p eal t h at t h e t ri al co u rt erred i n rel y i n g o n t h e Act to gran t s u m m ary ju d g m en t to

Ch am b l ee b ecau s e u nd er i t s term s

, th e Act wo u l d n o t b eco m e effec t i ve u n t i l l at er,

aft er referen d u m ap p ro v al

, wh i c h o c c u rred ap p ro x i m at el y o n e m o n th aft er t h e

Bro ok h av en co un ci l ’ s v o te.

Th u s

, we m

u s t det erm i n e t h e Act ’ s s t at u s at t h e ti m e th e B r o o k h av en ci t y

co u nci l v o t ed t o an nex Cen tu ry Cen t er. Un d er Geo rg i a l aw, t he b as el i n e ru l e i s t h at

l o cal l eg i s l at i o n i s i n ten d ed t o h av e t h e effect o f l aw “ i m m ed i at el y u p o n ap p ro v al by

t h e G o v ern o r o r u po n [i t s ] b eco m in g l aw wi t h o u t h i s ap p ro val

, un l e s s a d i fferen t

effect i v e d at e i s s peci fi ed i n t h e Act . . . .” OCGA § 1 -3 -4 (b ). Am on g o t h er t h i n g s

,

5 Geo rg i a law req u i res s u ch a referen d um “ i f t h e n u m b er o f res i d en t s i n t h e area

t o b e an n ex ed ex ceed s 3 p ercen t o f t h e p o p ul at i o n of t he m u n ici p al co rp o rat i o n o r

5 0 0 p eo p l e, wh i ch ev er is l es s .” OCGA § 3 6

- 3 6

- 1 6 (b ). Al t h o u g h Ch am b l ee’ s

arg u m en t b el o w su g g es t s t h a t t h e p o p u lat i o n o f t h e An n ex at i o n Area m et t h i s

req u i rem en t

, t h e ap p el lat e reco rd d o es n o t p ro v i d e cl ear ev id en ce o n t h i s i s s ue. In an y

e v en t

, OCGA § 36 -3 6 -1 6 (b ) em p o wers th e leg i sl at u re t o p ro v i d e fo r a referen d u m

wi t h o u t reg ard t o t h e p o p ul at i o n req u i rem en t s

. See al s o W al l v. Bd

. o f El ect i o n s of

Ch a t ha m Co u n t

y

, 2 4 2 Ga. 5 6 6

, 57 2 (6 ) (2 5 0 S E2 d 4 0 8 ) (1 9 7 8) (h o l d i n g t h at t h e

Gen eral As s em

b l y h ad s uch au t h o ri t y

p ri o r t o s t at u t o ry

g ran t o f s u ch p o wer).

8t h e Act b o t h id en t i fi ed t h e An n ex at i o n Area fo r i n cl us i o n wi t h in t h e C h a m b l e e

co rp o rat e l im i t s an d d i rect ed t h e el ect i o n s s u p eri n t en d en t i n DeKal b Co u n ty t o h o ld

a referen du m t o al l o w a v o te o n wh et h er t h at d es i g n at ed area s h o u l d b e an n ex ed . If

t h e v o t ers ap p ro v ed t he an n ex at i o n

, t h e Act t h en s tat ed t h at i t wo u l d b eco m e effect i v e

o n Decem

b er 3 0

, 20 1 3

. T h u s

, we fi n d t h at t h e Act was in effect wh en s i g ned b y t h e

Go v ern o r wi t h reg ard t o s et t i n g t h e referen d u m fo r a v o t e o n t h e d es i g n at ed

An n ex at i o n Area. 6 See Smi th v. Ci t y Co un ci l o

f Au g u s t a

, 2 0 3 G a

. 5 1 1

, 51 9 (2 ) (4 7

SE2 d 5 8 2 ) (1 9 4 8 ) (“ It is o b v i o us

. . . t h at t h e l eg i s l at u re i n t en ded t he p o rt i o n s o f t h e

[Act ] pro v i d in g fo r a referen d u m t o b eco m e effect i ve i m m ed i at el y u p o n it s ap p ro v al

b y t h e Go v ern o r.”).

H i g h wo o d s arg u es

, h o wev er, t h at t he Act was n ot y et i n effec t w h e n

Bro ok h av en v o t ed to an n ex Cen t u ry Cen t er b as ed o n t he l an g uag e t h at t h e Act wo u ld

o n l y b eco m e effect i v e o n Decem b er 3 0

, aft er a p o si t iv e referen d u m v ot e. Bu t t h i s

arg u m en t i gn o res t h e l an gu ag e o f t h e Act p ro v i d i n g t hat i f t h e v o t ers d i s ap p ro v ed t h e

an n ex at io n

, th e Act n o t o n l y wo u l d “ n o t b eco m e e f f e c t i v e ,” i t wo u l d al s o b e

“ au t o m at i cal l y r ep ea l e d

. ” (Em p h as i s su p pl i ed .) Ga. L. 2 0 1 3

, Vo l

. 2

, at 4 3 2 1.

6 W e n o te t h at Hi g h wo o d s co n ced ed i n t h e tri al co u rt t h at at t h e v e r y l eas t

“ H[o u se] B[i l l ] 6 1 9 [Lo cal Act 2 0 5 ] [was ] effect i v e f o r t h e pu rp o s e o f ho l d i n g t h e

Referen d u m

. ”

9Hi g hwo o d s’ s ar g u m e n t t h at t h e Act was n ot i n effect wh en t h e Bro o k h av en ci t y

co u nci l v o t ed wo u l d ren d er t h e wo rd “ rep eal ed ” m ere s urp l u s ag e, b ecau s e t h e

Gen eral A s s em

b l y wo u l d h av e h ad n o n eed t o rep eal an Act t hat was nev er i n effect

.

“ In co n s t ru i n g s t at u t es , a co urt m u st g i v e m ean i n g t o an d h arm o n i ze al l p art s

o f t h e s t a t u t e t o g i ve t hem s en s i b l e an d i n t el li gen t effect

, w h i l e av o i d i n g

co n st ru ct i o n s t h at m ak e an y p art o f t h e s t at u t e m ere s u rp l u s a g e .” (Ci t at i o n an d

p u n ct u at i o n om i tt ed .) Ch er o kee W a r eh ou s es

, In c. v. Ba b b Lu mb er Co

. , 2 4 4 Ga. Ap p.

1 9 7

, 1 9 8 (5 3 5 SE2 d 2 5 4 ) (2 0 00 ). Al t h o u g h th e l an g u ag e p ro v i d in g t h at t h e Act wo u ld

n o t b eco m e effect iv e u nt i l Decem b er 3 0

, 20 1 3 was i n art fu l l y wo rd ed

, wh en we ap p l y

t h e p ri nci p l es of s t at u t ory co n s tru ct i o n

, we fi n d th at th e Act wen t in t o effect u p o n t h e

Go v ern o r’ s si gn at u re o n M ay 6

, 2 0 1 3

, to i n i t i at e t h e referen d u m p ro ces s o n t h e

d efi n ed A n n ex at i o n Area, a n d t h e referen d u m was a co n d i t i o n p reced en t fo r

an n ex at io n

. S

mi t h

, 2 0 3 Ga. at 5 1 9 (2 ). H o wev er, t h e a n n e x at i o n i t s el f was n ot

i n t en d ed t o b eco m e effect iv e u n t i l Decem b er 3 0, 2 0 1 3, if i t recei v ed v o t er ap p ro v al

.

Th u s, we reject Hi g h wo o d s ’ s co n t en t i o n t hat t h e Act w as n o t i n effect u n ti l aft er t h e

referen du m an d t h at t h e t ri al co u rt i m p ro p erl y rel ied o n t h e Act i n gran t i n g s u m m ary

ju d g m en t t o Ch am

b l ee.

103

. W e nex t co n s i d er w h et h e r B r o o k h av en co u ld ex erci s e i t s p ower t o an n ex

Cen tu ry Cen t er ou t o f t he d es i g nat ed An n ex at i o n Area wh i l e t h e referen d um p ro ces s

was p en d i n g , an d we co n cl u de t h at i t co u ld n o t.

As a s t art in g p o i n t, we co n s i d er t he i n t en t o f t h e Gen eral As sem bl y i n en act i n g

t h e al t ern at i v e an n ex at i o n m et h o d s v i s

- a Ì -v i s th e Gen eral As s em

b l y ’ s au th o ri t y to

an n ex b y l o cal act

. Al t h o u gh a m un i ci p al i t y ’ s ex erci se of i t s d e l e g at ed p o wer fo r

an n ex at io n h as b e e n de e m e d a n e x erci se o f t he Gen eral As s em b l y ’ s l eg i s l at i v e p o wer,

o u r Su p rem e Co u rt h as al s o reco g n i zed t h at “ m u n i ci p al it i es can recei v e an d ret ai n

o n l y s u ch leg i s l at i v e p ower o f t h e Gen eral As s e m b l y as t hat bo d y d et erm i n es fro m

t i m e t o t im e th ey s h o u l d ex erci s e.” (Ci t at io n an d p u n ct uat i o n o m it t ed .) Hi gd o n v. Ci t y

o f S en o i a

, 2 7 3 G a. 8 3

, 8 6 (3 ) (5 3 8 SE2 d 3 9 ) (2 0 0 0 ) (q u o ti n g Pl a n t a t i o n Pi p e Li n e Co

.

v. Ci t y o f Br emen

, 22 7 Ga. 1

, 7 (1 ) (1 7 8 S E 2 d 8 6 8 ) (1 9 70 )). A n d we m u s t k eep in

m i n d th at “ al l o cat i o n s o f po wer fro m t h e s t at e are s t ri ct l y co n s t ru ed

. ” Kemp v. Ci t y

o f Cl a xt o n , 2 6 9 Ga. 1 7 3 , 1 7 6 (1 ) (4 9 6 SE2 d 7 1 2) (1 99 8 ).

Th e p i v o tal q u es t io n

, t h erefo re, fo cu s es on t h e s co p e o f t h e Gen eral

As s em b l y ’ s d el eg at i o n o f an n ex at i o n au t h o ri t y t o m u n i ci p al i t i es

, an d w e fi n d OCGA

§ 3 6 -1 0-1 0 p art i cu l arl y i n s t ru ct i v e on t h at is s u e. O CGA § 3 6 -3 6 -2 1 p ro v i d es t h at t h e

1 0 0 % m et h o d o f an n ex a t i o n r el i ed u p on by Hi g h wo o d s m u st b e ex erci s ed in

11acco rd an ce w i t h Art icl e 1 o f t h e Geo rg i a Co d e’ s an n ex at i o n ch ap t er. T h at art i cl e

i n cl u d es OCGA § 3 6 -3 6 -1 0

, i n wh i ch th e Gen er a l As s em b l y s p eci fi cal l y s et o u t i t s

i n t en t t hat t h e al tern at i v e a n n e x at i o n m et h o ds were n ot in t en d ed an d s h o u l d n o t b e

co n st ru ed “ t o in an y way res t ri ct

, li m i t, o r o t h erwi s e i m p ai r” t h e ex erci s e o f i t s

co n st i t u t io n al l y

g ran ted an n ex at i on p o wers

.

Becau s e th e wo rd s “ res tri ct

, l i m it

, o r o th erwi se i m p ai r” are n o t d efi n ed

, we

“ m u s t affo rd [t h is ] s t at u to ry t ex t i t s ‘ p l ai n an d o rd i n ary m ea n i n g .’ ” (Ci tat i o n s an d

p u n ct u at i o n om i t t ed .) Dea l v. Co l ema n

, 2 9 4 Ga. 1 7 0

, 1 7 2 (1 ) (7 5 1 SE2 d 3 37 ) (2 0 1 3 ).

See al s o C l e m e n t v

. S ta t e

, 3 0 9 Ga. Ap p

. 3 7 6

, 3 7 9 (1 ) (a) (7 1 0 SE2 d 59 0 ) (2 0 1 1 ).

Bl ack ’ s Law Di ct i o n ary

d efi n es t h e t erm “ res t ri ct i o n ” as m ean i n g “ [a] l i m i t at i o n o r

q u al i f i c a t i o n ,” Bl ack ’ s Law Di ct i o n ary (9 t h ed

. 2 0 0 9 ); t h e t erm “ l i m i t” as m ean i n g

t o res t ri ct

, res t rai n

, o r t o s et a b o u n d ary

, s uch as o n p o wer, ri g ht or au t h o ri t y

, i d .; an d

t h e t erm “ i m

p ai r” as m ean i ng “ [t ] o d i m i n i s h t h e v al u e o f.” Id

. Acco rd i n g ly

, u n d er

OCGA § 3 6 -1 0-1 0, t h e al t ern at i v e an n e x a t i o n m et h o ds were n o t i n t en d ed t o l i m i t

,

res t ri c t

, r e s t rai n

, s et a bo u n d ary o n

, o r o t h erwi s e d i m i n i s h t h e v al u e o f t h e Gen eral

As s em b l y ’ s an nex at i on p owers

.

Ap p ly i n g t hes e p l ai n m ean i n g s

, we fi n d t h at p erm i t t i n g Bro o k h av en t o an n ex

t h e Cen t u ry Cen t er p ro p ert y w o u l d cl earl y res t ri ct

, l i m i t

, an d / o r i m

pai r t h e Gen eral

12As s em

b l y ’ s au t h o ri t y t o an nex i n t h i s cas e. Sect io n 1 o f th e Act defi n ed t he t erri t o ry

t o b e an n ex ed b y Ch am

b l ee t o in cl u d e t h e Cen t u ry Cen t er p ro pert y

, an d Sect i o n 2 o f

t h e Act set s t h e d at e o f t h e refe r e n d u m o n t h e an n ex at i o n of t h at t erri t o ry

, req u i red

p u b l i cat i on o f t h e el ect i o n

, a n d s p el l ed o u t t h e wo rd s t o b e u s ed in t h e referen d u m

b al l o t

. Al l o w i n g Bro ok h av en t o an n ex a p o rt io n o f th i s t erri to ry befo re t h e

referen du m co u l d t ak e p l ace w o u l d

, i n es s en ce, al l ow i t t o u n il at eral l y effect u at e an

am en d m en t t o t h e Act d uri ng a p eri o d o f t i m e wh en t h e Gen eral As s em b l y was n ot

ev en i n s es s i o n

. 7 Su ch act i o n cl earl y wo u l d l i m i t

, res t rai n

, s et a b o u n d ary o n

, an d

o t h erwi s e di m in i s h t h e val u e o f t h e Gen eral A s s em b ly ’ s ex erci s e of i t s an nex a t i o n

p o wers t hro u g h l o cal act

.

M o reo v er, t h e referen du m i ni t i at ed b y t h e Act h ad t o p ro ce e d i n acco rd an ce

wi t h G eo rg i a l aw. An d i n od d y ears s u ch as 2 0 1 3

, su ch referen d u m s m ay o n ly b e h el d

o n th e t h ird Tu es d a y i n M a r ch o r t h e Tu es d ay aft er t h e fi rs t M o n d ay i n No v em b er.

See O CGA § 2 1 -2 -5 4 0 (c) (2 ) (A) (s et t i ng t i m es fo r s p eci al el ect io n s ); OCGA § 2 1 -2

-

2 (3 3 ) (d efi n i ng s peci al el ect i o n s ); S t i l es v. Ea r n es t

, 2 5 2 Ga. 2 6 0

, 2 61 (1 ) (3 1 2 SE2 d

3 3 7 ) (1 9 84 ) (a referen d u m i s a s p eci al el ect i on u n d er Geo rg ia l aw). Acco rd i n g l y

, t h e

7 In 2 0 1 3

, t h e G en eral As s em b l y was i n ses s i o n d u ri ng t h e p eri o d J an u ary 1 4

t o M arch 2 8

, 2 0 1 3

. Ga. Ho u s e J o u rn al 2 0 1 3

, p p

. 1

, 48 -4 9

, 1 0 0

, 2 8 0 6 -2 8 0 8

, 2 8 6 1,

4 8 7 7

.

13referen du m i n t h i s cas e co u l d n o t hav e o ccu rred b efo re N o v em b er 5

, 2 0 1 3

. Th e

r e quir ed t i m i n g fo r t h e referen d u m fu rt h er s up p o rt s o u r co n cl us i o n th at a m un ic ipa lity

m ay n o t carv e o u t a p ort i o n o f t h e l eg i s l at u re’ s d es i g n at ed An n ex at i o n A rea b efo re

t h e referen d u m

co u l d l awfu l ly

p ro ceed

. 8

Th u s

, we fi n d t h at t h e Gen eral As s em b l y d i d n o t i n t en d t h e al t ern at i v e m et h od s

o f an n ex at i o n t o es t ab l is h a s y s t em fo r m u n i ci p al i t ies t o race t h e leg i s l at ure t o an n ex

l an d th at it al read y h as d es i g n at ed fo r an n ex at io n u n d er l o cal l aw. To t h e co n t rary

, we

fi nd t h a t O C G A § 36- 3 6- 1 0 p ro h i b it ed Bro ok h av en fro m at t em pt i n g t o an n ex Cen t u ry

Cen ter d uri n g t h e Act ’ s referen d u m p ro ces s

. 9

8 W e n o t e t h at Geo rg i a l aw p ro v i d es th at an nex at i o n

, b y l ocal act o r ot h erwi s e,

d o es n o t b eco m e effect i v e fo r al l p u rp o s es un t i l Decem b er 31 o f t h e y ear i n wh i ch i t

o ccu rs

. No an n ex at i o n beco m es l awfu l fo r ad v al o rem t ax p u rp o s es o n an earl i er d at e.

OCGA § 3 6 -3 6 -2 (a) an d ( b )

. H o wev er, i n t h e cas e of a l o cal act

, t he act i t s el f m ay

p ro v id e t h at t h e an n ex at i o n b eco m es effect i v e fo r o th er p u rp o s es o n an earl i er d at e,

OCGA § 3 6 -3 6 -2 (a), an d i n t h e ca s e o f a n n ex at i o n b y al t ern at iv e m et h o d

, t h e

an n ex at io n b eco m es effect i v e fo r al l o t h er p u rp o ses o n t h e fi rs t d ay o f t h e m o n th

fo l l o w i n g t h e m on t h i n wh i ch t he req ui rem en t s fo r an n ex at i o n are m et

. O CGA § 3 6

-

3 6 -2 (b ).

9 Th erefo re, t h e Act di d no t n eed t o co nt ai n an ex p res s p ro vi s i o n p ro h i b i t i n g

m u ni ci p al i ti es fro m s eek i n g t o an nex an y p o rt i o n o f t h e d es i g n at ed An n ex at i o n Area

i n th e in t eri m

, b ecau s e i t h ad al read y p rev en t ed an y s u ch act i on un d er OCGA § 3 6

-

3 6 -1 0.

14Hi g h wo od s al so co n ten d s t h at a l o cal l aw s u ch as t h e Act can n o t p rev en t

Bro ok h av en ’ s ex erci s e o f i t s au t h o ri t y t o an n ex

, wh i ch was del eg at ed b y g en eral l aw,

b ecau s e t h e Geo rg i a Co n s t i t ut io n p ro vi d es t h at “ n o l o cal

. . . l aw s h al l b e en act ed in

an y cas e fo r wh i ch p ro v is i o n h as b een m ad e b y an ex i s t in g g en eral l aw.” G a. Co ns t

.

1 9 8 3 , Art

. III, Sec. 6

, Par. IV. W e fi n d no m eri t t o t h is arg u m en t b ecau s e i t i g n o res

t h e ex p res s l i m i t a t i o n s i m p o s ed b y g en eral l aw o n t h e d el eg at i on o f an n ex at i o n

au t h o ri t y t o m

u n i c i p al it i es

. Ev en t h o u g h t h e Gen eral As sem bl y m ay o n ly an n ex by

l o cal act

, i t s en act m en t o f OCGA § 3 6 -1 0 -1 0 res erv ed t o i t s el f p ri o ri t y i n ex erci s i n g

t h e l eg i s l at i v e p o wer of an n ex at i o n an d l i m i t ed th e m u n i ci p al i t ies ’ an nex at i o n p o wer

acco rd i n g l y

.

W e fi n d

, t h erefo re, t h at t h e t ri al co u rt p ro p erl y g ran ted Ch am b lee’ s m o t i o n fo r

s u m m ary ju d g m en t an d d en i ed Hi g h wo o d s ’ s m o t i o n

. 1 0

4

. Hi g h wo o d s al so co n t en d s th at en fo rcem en t o f t h e Act fo l l o wi n g

Bro o k h a v e n ’s v o t e to an n ex t h e p ro p ert y wo ul d b e i n vi o l at i o n o f th e Geo rg i a

Co n s t i t u t i o n ’ s on e-s u bject -m at t er ru l e, b ecau s e t h e A ct wo u l d s i m u l t an eo u s l y

1 0 In ord er t o m ai n tai n t h e s t at u s q uo p en d i n g an y fu rt h er ap p el l at e pro ceed i n g s

,

o u r Decem

b er 19

, 2 0 1 3 o rd er en

jo i n i n g Ch am

b l ee fro m p ro ceed i n g wi t h t h e

an n ex at io n o f t h e Cen t u ry Cen t er p ro p ert y o wn ed b y Hi g h wo o d s i s t o rem ai n i n effect

u n t i l rem i t t i t u r i s fi l ed in t h e tri al c o u r t o r u nt i l fu rt h er o rd er o f th i s Co u rt o r t h e

Su p rem e Co u rt o f Geo rg i a.

15d ean nex t h e Cen t u ry Cen ter pro p ert y fro m Bro o k hav en an d an n ex i t t o Ch am b l ee.

See Ga. Co n s t . o f 1 9 8 3 , Art . III, Sec. V, Par. III. 1 1 Th i s arg u m en t fai l s

.

Hi g h wo od s rai s ed t h i s co n s t it u t i o n al i s su e b efo re t h e t ri al co u rt fo l lo wi n g t h e

v o t e b y t h e Bro o k h av en ci t y co u n ci l, b ut t h e t ri al co u rt d id n o t is s u e a ru l i n g o n t h e

i s su e. “ A f

t er [a] co n s t i t u t i o n al i s s u e h as been p ro p erl y rai s ed in t h e t ri al co u rt

, t h e

t ri al co u rt m

u s t r u l e u p o n t h e i s s u e; t h e ap p el l at e co urt l ack s s ub ject m at t er

ju ri s d i ct i o n t o d eci d e i s su es n ev er ru l ed u p o n b y t h e t ri al co urt .” In r e Ju l

y-Au g us t

,

2 0 0 3 DeKa l b Co u n t

y Gr a n d Ju r

y

, 2 6 5 Ga. A pp

. 8 7 0

, 87 1 -8 7 2 (2 ) (5 9 5 SE2 d 6 7 4 )

(2 0 0 4). Geo rg i a co urt s p rev i ou s l y h av e h el d t h at a co n s t i t u ti on al i ss u e i s wai v ed fo r

ap p el l at e rev iew wh ere th e t ri al co u rt fai l s t o ru l e u p o n i t

. Ha yn es v. W el l s

, 2 7 3 Ga.

1 0 6

, 1 0 8 (3 ) (5 3 8 SE2 d 4 3 0 ) (2 0 0 0 ); De K a l b Co u n t y G r a n d Ju r

y

, 2 6 5 Ga. Ap p

. at

8 7 2 (2 ). Ho wev er, t he Su p rem e Co u rt o f Geo rg ia m o re recen t l y h as d i rect ed t h at t h i s

Co u rt rem an d a cas e fo r t h e t ri al co u rt ’ s co n s i d erat i o n o f a co n s t i t u t i o n al i s s u e, ev en

i f t h is Co u rt h as d et erm i n ed t hat s u m m ary ju d g m en t w as o t h erwi s e ap p ro p ri at e. Ci t y

o f Deca t ur v. DeKa l b Co u n t

y , 2 8 4 Ga. 4 3 4, 4 3 8 (2 ) (6 68 SE2 d 2 4 7 ) (2 0 0 8 ).

1 1 T h at pro v i si o n read s, i n rel ev an t p a r t

, “ No b i l l s h al l p as s w hi ch refers to

m o re t h an o ne s u b

ject m at t er . . . .” Ga. Co ns t . o f 1 9 8 3 , Art . III, Sec. V, Par. III.

16Al t h ou g h

, h ere, we h av e fo u n d t h at th e tri al co u rt p ro p erl y g ran t ed s u m m ary

ju d g m en t t o Ch am

b l ee, w e do n o t b el iev e a rem an d i s n eces s ary fo r co ns i d erat i o n o f

Hi g hwo o d s’ s co n s t it u t i o n al arg u m en t b ecau s e i t i s b a s e d o n t h e fal se p rem i s e t h at

Bro ok h av en an n ex ed th e Cen t u ry Cen t er p ro pert y wh en i ts ci t y co u n ci l v o t ed o n t h e

i s su e. As we h av e fo u n d t h at Bro o k h av en l ack ed t he au t h o ri t y t o an n ex t h at p ro p ert y

d u ri n g t h e p en d en cy o f Ch am b l ee’ s refere n d u m p ro ces s, n o an n ex at i o n by

Bro ok h av en h as o c c u rred

. 1 2 Th u s

, n o i s su e ari s es as t o wh et h er en fo rcem en t o f t h e

Act wi l l v i ol at e Art . III, Sec. V, Par. III o f t h e Geo rg i a Co n st i tu t i o n

.

Ju d g men t a f f i r m ed . An d

r ews , P. J., a n d

McFa d d en , J., co ncu r

.

1 2 M o reo v er, we n o t e t hat Bro o k h av en t o o k n o fu rt h er act i o n aft er i t s ci t y

co u nci l ’ s v o t e, b ecau s e i t was en jo i n ed fro m d o i n g s o

. Th e t ri al co u rt en jo i n ed

Bro ok h av en fro m t a k i n g a n y act i o n t o an n ex Cen tu ry Cen t er, an d t h e Su p rem e

Co u rt ’ s o rd e r o n e m e rg en cy m o t i o n s t ay ed o n ly t h at p o rt io n o f t h e i n ju n ct i o n t h at

p ro h ib i t ed a v o t e b y t h e ci t y co u n ci l o r o t her act i o n s o f a l eg is l at i v e nat u re. Th e o rd er

ex p res s l y s t at ed th at t h e i nju nct i o n rem ai n ed “ i n f u l l f orce an d effect ” as t o an y

ex ecu t i v e o r o t h er n o n -l eg i sl at i v e act s i n fu rt h eran ce o f an nex at i o n

.

17