FOURTH D I VI SI ON

ELLI NGTON, P. J.

, BRA N CH and M ERCI ER, 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 l s .us /r ule s

Jul y 1, 2016



# I n th e Co u r t o f

A p p eals o f

G eo r g ia

A1 6 A0 24 5

. EVANS v

. GW INNETT COUNTY PUBLIC

SCHOOLS.

M E R C I E R , J u dg e.

Ph i l li p E v an s ap p eal s an o rd er o f t h e Su p eri o r Co u rt o f Gwi n n et t Co u n t y

d i s m i s s i n g h i s co m

p lai n t ag ai n s t t h e Gwi nn et t Co un t y Pu b l i c Sch o o ls (t h e “ Sch o ol

Sy s t em ”). Ev an s co n ten d s t h at t h e t ri al co urt erred b y r u l i n g t hat a d ecl arat o ry

ju d g m en t m ay n o t i s s u e t o ad dres s t h e v al i di t y o f a p ro p os ed fu t u re act i on

, b y ru l i n g

t h at t h e Sch o o l Sy s t em h as s ov erei g n i m m u n i t y ag ai ns t s t at e l a w c l a im s, b y ru l i n g

t h a t t h e t h reat o f arres t can n o t co n s t i t u t e a Fo u rt h Am en d m en t vi o l at i o n, an d b y

fai l i n g t o co n s i der t h e av ai l ab i l i t y of d a m a g e s a s a rem ed y

. Fi n d i n g n o erro r, we

affi rm

.Ev an s i s a res i d en t of Gwi n n et t Co un t y

, an d i n 2 0 14 h i s ch i l d at t en d ed p u b l i c

s ch o ol i n Gwi n n et t Co u n t y

. T h e s ch o o l h i s ch i l d at t en ded i s o wn ed an d op erat ed by

t h e Sch o o l S ys t e m

. E v an s p o s s es s es a Geo rg i a W eap o n s Carry Li cen s e (“ GW L”)

p u rs u an t t o OCGA§ 1 6-1 1-1 2 9

. Un d er OCGA § 1 6 -1 1 -1 2 7 .1 (b ) (1 ), i t i s a cri m e to

c a r r y a fi rearm in a “ s ch o o l s afet y zo n e.” T h e s ch o o l wh i ch Ev an s ’ s ch i l d at t en d ed

i s a “ s ch o o l s afet y

zo n e” as d efi n ed b y

OCGA § 1 6 -1 1-1 2 7 .1 (3 ).

Du ri n g t h e 2 01 4 l eg i s l at i v e s es s i o n t h e Gen eral As s em b l y p as s ed Ho u s e Bi l l

No

. 8 2 6 an d Ho u s e Bi l l No

. 60

. Ho u s e Bi l l No

. 6 0 (“ HB 60 ”) p ro h i b i t ed an y o n e fro m

carry i n g an y weap o n (i n cl u d i n g a p i s t o l o r rev ol v er) i n a s ch o o l s afet y zo ne, wi t h t h e

ex cep t i o n t h at a GW L h o l d e r i s p e r m i t t ed t o d o s o wh en he “ carri es o r pi ck s u p ” a

s t ud en t

. See H B 6 0

, Act 6 0 4

, Ga. L. 2 0 1 4

. In co n t ras t

, Ho us e Bi l l No

. 8 26 (“ HB

8 2 6 ”) co n t ai n ed p ro vi s i o n s th at ex p res s l y co nfl i ct ed wi t h HB 6 0

. Un d er HB 8 2 6,

GW L h o l d ers were perm i t ted t o p o s s es s t h ei r l i cen s ed fi rearm s wi t h i n a s ch o o l s afet y

zo n e (a t erm red efi ned i n H B 8 2 6 ). See HB 82 6

, Act 5 7 5

, Ga. L. 2 0 1 4

. T h e t wo b i l l s

co n tai n ed co n fl i ct i n g v ers i o n s o f O CGA § 1 6 -1 1 -1 2 7

. 1

. Wh ere H B 6 0 p ro h i b i t ed

p o s s es s i o n o f a fi rearm i n a s ch o o l s afet y zo n e (ex cep t th at a GW L ho l d er co u l d wh en

carry i n g o r p i ck in g u p a s t ud en t ), H B 8 2 6 ex pres s l y au t h ori zed a G WL h o l d e r to

2p o s s es s a fi rearm i n a s ch o o l s afet y zo n e wi t h o u t t h e afo rem en t i o n ed q u al i fy i n g

l an g u ag e.

HB 8 2 6 was s ig n ed i n t o l aw b y G o v e r n o r Deal o n Ap ri l 2 2

, 20 1 4, wh i l e HB

6 0 was si g n ed in t o l aw o n Ap ri l 2 3

, 2 0 1 4

. See HB 6 0 an d HB 8 2 6 s u p ra. Th e v ers i o n

o f OCGA § 1 6 -1 1 -1 2 7.1 t hat was p u b l i s h ed i n t h e Offi ci al Co d e of Geo rg i a

An n o t at ed was t h e o n e co n t ai ned i n HB 6 0 . See OCGA § 1 6-1 1 -1 2 7

. 1 (2 01 4 ).

Aft er t h e l aws were p as s ed

, E v a n s c o n t act ed t he Sch o o l Sy st em t o as k i f, as

GW L h o l d er, he wo u ld b e p erm i t t ed t o carry a l i cen sed fi rearm i n t h e s ch oo l s o wn ed

an d o p erat ed b y th e Sch o o l Sy s t em

. On J u l y 2 8

, 2 0 1 4

, an o ffi ci al fro m t h e Sch o ol

Sy s t em rep l i ed t o Ev an s

. Th e o ffi ci al ex p l ai n ed t hat i t was s t i ll a cri m e fo r Ev an s to

carry a fi rearm i n t h e Sch o o l Sy s t em ’ s s ch o o l s u n les s he was p i ck i n g u p o r d ro p p i n g

o ff a s t u d en t

. He ex p l ai n ed th at i f Ev an s ch o s e t o carry a fi rearm i n a Sch o o l Sy s t em

s ch o ol

, th e Sch o o l Sy s t em wo u l d s eek t o h av e h i m p ro s ecu t ed

, an d th at t h ey m i g ht

i s su e h i m a c r i m i nal t res p as s warn i n g

. Ev an s d i d n o t carry a fi rearm in to a s ch o ol

s y s t em s ch oo l , an d was n o t arres t ed o r p ro secu t ed

.

On Sep t em

ber 2

, 2 0 1 4

, Ev an s fi l ed a co m p l ai n t s eek i n g d am ag es

, al o n g wi th

d ecl arat ory an d i n

ju n ct i v e rel i ef. Ev an s ’ s co m p l ai nt al l eg es t h at t h e Sch oo l Sy s t em

v i o l at ed h i s ri g h ts u n der O CGA § § 1 6 -1 1-1 2 7

. 1 an d OCGA 1 6 -1 1-1 7 3. Fu rt h erm o re,

3h e s o ug h t a d ecl arat i o n t h at O CGA § 1 6 -1 1 -1 2 7

. 1 g av e GW L h o l d ers t h e r i g h t t o

carry t h ei r fi rearm s i n a s ch o o l s afet y zo n e. E van s l at er am en d ed h i s co m p l ai n t t o

i n cl u d e a cl ai m un d er 42 U.S.C. § 1 9 8 3 al l eg i n g t h at t h e Sch o o l Sy s tem v i o l at ed h i s

ri gh t ag ai n s t u n l a w f

u l sei zu re u n d er t he Fo u rt h Am en d m en t o f t h e Un i t ed St at es

Co n s t i t u t i o n

.

Th e Sch o o l Sy s t em fi l ed an an s wer al on g w i t h a m o t i o n t o di s m i s s Ev an s ’ s

co m p l ai n t o n O ct ob er 9

, 2 01 4

. Aft er a h eari n g

, th e t ri al c o u r t e n t e red an o rd er o n

Feb ru ary 5

, 2 0 1 5

, g ran t i n g t he Sch o o l Sy s tem ’ s m o t i o n t o d i s m i s s

, d i s m i s s i n g al l

Ev an s ’ s cl ai m s wi t ho u t p reju d i ce. Th i s ap p eal fo l l o wed

.

1

. Ev an s arg u es t h at t h e t ri al co u rt erred b y ru l in g t hat t h e Sch o ol Sy s t em h as

s o v erei g n i m

m u n i t y ag ai n st s t at e l aw cl ai m s

. “ W e rev i ew d e n o v o a tri al co u rt ’ s g ran t

o f a m o t io n t o di s m is s o n s o v erei g n i m m u n i t y g ro u n d s, b eari n g i n m i n d t hat t h e p art y

s eek i n g t o ben efi t fro m t h e wai v er of s o v erei g n i m m u n i t y h as t h e bu rd en of p ro of to

es t ab l i s h wai v er.” Pel h a m v. Bo a r d of Reg en t s o f t h e Un i ver

s i t y Sys t em o

f G eo r g i a

,

3 2 1 Ga. Ap p

. 7 9 1 (7 4 3 SE2 d 4 6 9 ) (2 0 1 3) (ci t a t i o n a n d p u n ct u at i on o m i t t ed ).

M o reo v er, “ [a] m ot i o n t o d i s m i s s as s ert i ng s ov erei g n im m un i t y

. . . i s b as ed u p o n t h e

t ri al co u rt ’ s l ack o f su b

j ect m at t er ju ri sd i ct i o n

, rat h er t h an t he m eri t s o f t h e p l ai n t i ff’ s

cl ai m .” Bo n n er v. Pet er

s o n , 3 0 1 Ga. 4 4 3 (6 8 7 SE2 d 6 7 6 ) (2 0 09 ) (ci t at i o n o m i t t ed ).

4Th e Geo rg ia Co n s t i t u t i on p ro v id es t h at

, “ so v erei g n i m m u n i ty ex t en d s t o t h e

s t at e an d al l o f i t s dep art m en t s an d ag en ci es

. Th e s o v erei g n i m m u n it y o f t h e st at e an d

i t s d ep art m en t s an d ag en ci es can o n l y b e wai v ed b y an A ct o f t h e Gen eral As s em b l y

wh i ch s p eci fi cal l y pro v i des th at s o v erei g n i m m u n i t y i s t h ereb y wai v ed an d t h e ex t en t

o f s u ch w ai v er.” Ga. Co n st

. A rt

. I, § II Para. IX (e). W e h av e s t at ed p rev i o u s l y t h at

t h i s p ro v is i o n “ i n cl ud es co u nt y -wi d e s ch o o l d i s t ri ct s

. . . creat ed p u rs u an t to Art

. VIII,

Sec. V, Par. I o f th e 1 9 8 3 Geo rg i a Co n s t i t u t i on an d OCGA § 2 0

– 2

– 5 0

. Li k e t h e

co u nt i es wi t h i n wh i ch th ey are creat ed

, s u ch s ch o o l di s t ri ct s are p ol i t i cal s u bd i v i s i on s

o f t h e s t at e en t i t led t o th e so v erei gn i m m u n i t y ex t en d ed t o t he s t at e.” Co f f ee Co u n t y

S ch oo l Di s t

. v. S n i p es

, 2 1 6 G a. Ap p

. 2 93

, 2 94 (4 5 4 SE2 d 1 4 9 ) (1 99 5 ) (ci t at i o n an d

p u n ct u at i o n o m i t t e d )

. Acco rd i n g l y

, Ev an s m u st s h o w t h at t h e Gen eral As s em b l y

s p ec i f i cal l y wai v ed th e Sch o o l Sy s t em ’ s s o v erei g n i m m u ni t y wi t h reg ard t o h i s

cl ai m s

.

Ev an s arg u es t h at s u ch a s p eci fi c w ai v er can be fo u n d i n OCGA § 1 6 -1 1 -1 7 3

(b ) (1 ) wh i ch p ro v i d es :

Ex cep t as p ro v i ded i n s u b s ect i o n (c) o f t h is Co d e s ect io n

, n o co u n t y o r

m u n i ci p al co rp o rat io n, b y zo n i n g

, b y o rd i nan ce o r res o l u t i on

, o r b y an y

o t h er m ean s

, n o r an y ag en cy

, b o ard

, d ep art m en t, co m m i s s i o n

, po l i t i cal

s u b d i v i s i o n

, s ch o o l d i s t ri ct

, o r au t h o ri t y o f t h i s s t at e, o t h er t h an th e

5Gen eral As s em b l y

, by ru l e o r reg u l a t i o n o r by an y ot her m ean s sh al l

reg u lat e i n an y

m an n er:

. . .

(B) Th e p o ss es s i o n

, o w n ers h i p, t ran s p o rt

, carry i n g

, t ran s fer, s al e,

p u rch as e, l i cen s i ng

, o r reg i s t rat i o n o f fi rearm s o r o t h e r weap o n s o r

co m p on en t s o f fi rearm s o r o t h er weap o n s[.]

Th e s t at u t e g o es o n t o es t ab li s h a p ri v at e ri g h t o f act i o n wh i ch i n cl ud es t h e p o t en t i al

fo r t h e reco v ery o f act u al d am ag es

, eq u i t ab l e rel i ef, an d an y ot h er rel i ef a co u rt m ay

d eem p ro p er. OCGA § 1 6 -1 1 -1 7 3 (g ). W h il e t h i s s tat u t e m ay co n s t i tu t e a wai v er by

t h e Gen eral As s em

b l y o f t h e Sch o o l Sy s t em ’ s s o v erei g n i m m u n i ty in s o m e i n s t an ces

,

i t do es n o t wai v e t h e Sch o o l Sy s t em ’ s s o verei gn i m m u n i t y as t o Ev an s ’ s cl ai m s

.

Th e v ers i on o f OCGA § 1 6 -1 1 -1 7 3 o n wh i ch Ev an s rel i es di d n ot b eco m e

effect i v e u n t i l Ju l y 1

, 2 0 1 5, an d s o was n o t ap p l i cab l e at t h e t i m e h e fi l ed t h is act i o n.

Th e v ers i o n o f OCGA § 1 6 -1 1 -1 7 3 (b ) (1 ) i n effect i n 2 0 14 pro v i d ed : “ [e] x cep t as

p ro v id ed i n s u b sect i o n (c) o f th i s Co d e s ect io n

, n o co u n t y o r m u n i ci p al co rp o rat i o n,

b y zo n i n g o r b y o rd i n an ce o r res o l u t i o n

, n o r an y ag en c y, b o a r d

, d ep art m en t

,

co m m i s s io n

, o r au t h ori ty o f t h i s s t at e, o th er t han th e Gen e r al As s em b ly

, b y ru le o r

reg u l at i o n s h al l reg u l a t e i n an y m an n er: (B) Th e p os s es s i o n

, . . . carry i n g

, . . . o f

6fi rearm s .” Th i s v ers i o n of t h e s t at u t e, wh i ch was ap p l i cab l e at t h e ti m e Ev an s fi l ed

t h i s act i o n

, d i d n ot s p eci fi cal l y i n cl u d e s ch oo l d i s tri ct s as d i d t h e o n e t h at b ecam e

effect i v e o n J u l y

1 , 2 0 15

.

“ Al l s t at u t es are p res u m ed t o b e en act ed b y t h e l eg i s l at u re wi t h fu l l k n o wl ed g e

o f t h e ex i s t i n g co n d i ti o n o f th e l aw an d w i t h referen ce t o i t .” Bo tt s v. S ou t h ea s t er n

Pi p e-Li n e Co

. , 1 9 0 Ga. 6 8 9

, 7 0 0 -7 0 1 (1 0 SE2 d 3 7 5) (1 9 4 0 ) ( p u n c t u at i o n o m i t t ed ).

M o reo v er, “ fro m t h e a d d i t i o n o f wo rd s i t m ay b e p res um ed t h at t h e l eg i s l at u re

i n t en d ed s o m e ch an g e i n t h e ex i s t i n g l aw.” Bo a r d o f As s es so r

s o f Jef f er s on Co u n t

y

v. McC o y G r a i n Exch a n g e, In c.

, 2 3 4 Ga. Ap p

. 9 8, 1 0 0 (5 0 5 SE2 d 8 3 2) (1 9 9 8 )

(ci t at i o n an d p u nct u at i o n o m i t t ed ). Ap p ly i n g t h es e p ri n ci p l es

, i f t h e v ers i o n o f O C G A

§ 1 6 -1 1 -1 7 3 (b ) (1 ) ap p l i cab l e at t h e t i m e Ev an s fi l ed th i s a c t i o n h ad wai v ed t h e

s o v erei g n i m

m u n i t y o f s ch o o l d i s t ri ct s

, i t w o u l d ren d er t h e ad d i t i on o f “ s ch o ol

d i s t ri ct [s ] ” t o t he s t at u te m ean i n g l es s

. Gi v en t h e ad d it i on o f t h es e wo rd s t o OCGA §

1 6 -1 1-1 7 3 (b ) (1 ), we m

u s t pres u m e t h at t h e 2 0 1 5 am en d m en t was i n t en d ed as a

ch an ge t o t h e l aw. Si n ce t h e l eg i s l at u re ex p res s l y ad d ed “ s ch oo l di s t ri ct s ” t o t h e

o rg an i zat i o n s reg ul at ed b y t he s t at u t e, i t fo ll o ws t h at u n d er t he p ri o r law s ch o ol

d i s t ri ct s were n o t i n cl u d ed . Acco rd i ng l y , t he v ers io n o f OCGA § 1 6 -1 1 -1 7 3 (b ) (1 )

ap p li cab l e at t h e t i m e t h i s cas e was fi l ed d id n o t act as a s p eci fi c wai v er o f so v erei g n

7i m

m u ni t y as t o t h e Sch o o l Sy s t em

. T h u s

, t h e t ri al co u rt l ack ed s u b ject m at t er

ju ri s d i ct i o n o v er Ev an s ’ s st at e l aw cl ai m s at t h e t i m e t h e s u i t was fi l ed an d d i s m i s s al

was ap p ro p ri at e. See g en eral l y Bo n n er

, s up ra.

2

. M o reo v er, Ev an s ’ s cl ai m s are m o o t d u e t o t h e Gen eral As s em b ly ’ s ad o p t i o n

o f Ho us e Bi l l No . 9 0 (“ HB 9 0 ”). HB 9 0 was ap p ro v ed b y Go v ern o r Deal o n M arch

1 3 , 2 0 1 5 , an d st at es s p eci fi cal l y t h at :

t h e t ex t o f Co d e s ect i o n s an d t i t l e, ch ap t er, art i cl e, part

, s u b p art

, Co d e

s ect i o n

, su b s ect i o n

, p arag rap h

, s u b parag rap h

, d i v i s io n

, an d s u b d iv i s i o n

n u m b ers an d d es i g n at i o n s as co n t ai n ed i n t h e Offi ci al Co d e o f Geo rg i a

An n ot at e d

. . . as am en d ed b y t h e t ex t an d n u m b eri n g of Co d e s ect i o n s

as co n t ai n ed i n th e 2 0 1 4 s u p p l em en t s t o t h e Offi ci a l C o d e o f Geo rg i a

An n ot at ed

. . . are h ereb y

reen act ed

.

Ho u s e Bi l l 9 0, A ct 9

, Sec. 5 4

, Ga. L. 2 0 1 5

. Th e v ers i o n o f OCGA § 1 6-1 1 -1 2 7

. 1

p ri n t ed i n t h e Offi ci al Co d e o f Geo rg i a A n n o t at ed w as t h e o n e ad o p t ed i n HB 6 0

, an d

an y co n fl i ct b et w een t h e t wo v ers i on s was res o l v ed by HB 9 0

. O C GA § 2 8 -9 -5 (c)

p ro v id es t h at :

[t ] h e Co d e Rev i s i o n Co m m i s s i o n s hal l p rep are an d hav e i n t ro d u ced at

each reg u l ar s es s i o n o f t h e G en eral As s em b ly o ne o r m o re b i l ls t o

reen act an d m ak e co rrect i o n s i n t h e Offi ci al Co d e o f Geo rg ia A n n o t at ed

,

p o rt io n s t h ereo f, an d t h e l aws as co nt ai ned in t he Co d e an d an y p o ck et

p art

, s u pp l em en t s

, an d rev is ed v o l u m es t h e r eo f. Ex cep t as o t h erwi s e

8p ro v i d ed b y g en eral l aw, s u ch reen act m en t o f t h e Offi ci al Co de o f

Geo rg i a An n ot at ed s h al l h av e t h e effect o f ad o p t i ng an d g iv i n g fo rce

an d effect o f l aw to al l t h e s t at u t o ry t ex t an d n u m b eri n g as co n t ai n ed i n

s u ch v o lu m es

, p ock et p art s

, an d s u p p lem en t s

, i ncl u d in g b u t n ot li m i ted

t o p ro v i s io ns as p u b li s h ed t h erei n in acco rd an ce wi t h su b sect i o n s (a)

an d (b ) o f t h is Co d e s ect i o n

.

Th u s, b y p a s s i n g HB 9 0 an d ex p res s l y reen act i n g t h e l an g uag e of OCGA § 1 6 -1 1

-

1 2 7 .1 t ak en fr om H B 60

, t h e Gen eral As s em b l y affi rm at i v el y re-ad o p t ed t h e l an g u ag e

o f HB 6 0

.

“ A cas e i s m o o t wh en i t s res o l ut i on w o u ld am o u n t t o t h e d et erm i n at i o n o f an

ab s t ract q u es t i o n no t ari si n g u p o n ex i s t i ng fact s o r ri g h ts .” Br o wn v. S p a n n

, 2 7 1 Ga.

4 9 5 (5 2 0 SE2 d 9 0 9 ) (1 99 9 ) (ci t at i o n o m i t t ed ). Here, Ev an s ’ s en t i re cas e i s p red i cat ed

o n t he co n fl ict b et w een HB 6 0 an d H B 8 2 6

. B u t HB 9 0 res o l v ed t h at co n fl i ct by

es t ab l i s h in g t h at t h e lan g u ag e u s ed i n OCGA § 1 6 -1 1 -1 2 7 .1 was t h e l an g u ag e fro m

HB 6 0. Acco rd i n g ly

, b ecau s e t h e l eg i s l at u re h as n o w affi rm at iv el y ex p re s s e d i t s

i n t en t b y ad o p t i n g t h e l an g u ag e co n t ai ned i n HB 6 0

, wh et h er t h e l an g u ag e o f HB 8 2 6

s h o u ld hav e b een ap p l i cab l e at t h e t i m e Ev an s co n t act ed t h e Sch o o l Sy st em i s n o w

a m ere ab s t ract q u es t i o n

. W e h o l d t h at HB 9 0 es t ab l i s h es u n eq u i vo cal l y t h at t h e

v ers i on o f OCGA §1 6-1 1-1 2 7 .1 p ri n t ed i n t h e Offi ci al Co d e of G e o r g i a An n o t at ed

9i s t he v ers i o n t h e Gen eral As sem b l y i n t e n d ed t o p as s an d be g iv en t h e fu l l fo rce o f

t h e l aw, s u ch t hat a p ers on p os s es s i n g a GW L is p ro h ib i t ed fro m carry i ng a fi rearm

i n a s ch o o l s afet y zo n e e x c e p t as p ro v i d ed i n OCGA § 1 6 -1 1 -1 2 7.1 (c). Th u s

, t h e

i s su es rai s ed i n Ev an s’ s d ecl arat o ry ju d g m en t act i o n are m o o t

.

Fo r t h i s Co u rt t o s t ri k e do wn t w o s ep arat e l a ws d u l y p as s ed b y t h e Gen eral

As s em b l y an d s i g n ed b y th e G ove r nor sim pl y b ecau se Ev an s wi s h es h i s i n t erp ret at i o n

o f HB 82 6 t o carry t h e d ay w o u l d b e an ex am pl e o f t h e “

j u d ici al act i vi s m o f t h e

h i g h e s t o r d er” t hat Ev an s s o v o ci fero u s ly warn s t hi s Co u rt ab o u t i n h i s rep l y b ri ef.

Ad d it i on al l y

, Ev an s ’ s co n t en t i o n t h at t h e Sch o o l Sy st em ’ s arg u m en t as t o HB

9 0 i s i m p r o p e rl y bei n g rai s ed fo r t h e fi rs t t i m e o n ap peal i s un av ai l i n g

. HB 9 0 was

s i gn ed i n t o l aw o n M a r c h 1 3

, 2 0 1 5

, an d th e ord er d i s m i s s i n g Ev an s ’ s cas e was

en t ered o n Feb ru ary 5

, 2 01 5

. Th u s

, HB 90 was n o t l aw at th e t i m e t h i s cas e was

b efo re th e t ri al co u rt an d t he Sch o o l Sy st em co u l d no t h av e r a is ed t h at p art i cu l ar

arg u m en t b el ow. In an y

ev en t , i t s s u b s eq u en t p as s ag e ren ders Ev an s ’ s cas e m o o t

.

3

. Ho wev er, ev en if we were t o fi n d t h at b o t h t he p rev i o u s an d cu rren t v ers i on s

o f OCGA § 1 6 -1 1-1 7 3 (b ) (1 ) act ed as a wai v er o f s o v erei g n i m m u n i ty as t o s ch o ol

d i s t ri ct s

, an d t h at E v an s ’ s cas e i s n ot m o o t

, E v an s ’ s cl ai m s t i l l fai l s

. OCGA § 1 6 -1 1

-

1 7 3 pro vi d es t h at no au t h o ri t y en u m erat ed i n th e s tat u t e s h al l by way o f “ ru l e o r

10reg u l at i o n o r b y an y ot h er m ean s

. . . reg u l at e i n an y m an n er” t h e “ p o s s es s i o n,

o wn ers hi p

, t ran s p o rt

, carry i n g

, t ran s fer, s al e, p u rch as e, l i cen s i ng

, or reg i s t rat i o n o f

fi rearm s o r o t h er weap on s o r co m p o nen t s o f fi rearm s o r o t her weap o n s .” OCGA § 1 6

-

1 1 -1 73

. Th e o n l y au th o ri t y wh i ch m ay reg ul at e s u ch act i v i ty i s t h e Gen eral As s em bl y

.

Id

.

Here, th ere is n o ev i d en ce t h at t h e Sch o ol Sy st em h as at t em p t ed t o reg u l at e t h e

p o s s es s i o n

, t ran s p o rt

, o r carry i n g o f fi rearm s i n an y m an n er. In fact

, th e o nl y ru l e o r

reg u l at i o n un d er s cru ti n y as t o th e l eg al it y o f ci t i zen s wi t h GW Ls b ei ng p erm i t t ed to

carry fi rearm s i n s ch o o l s afet y zo n es i s OCGA § 1 6 -1 1 -1 2 7 .1

, wh ich was p as s ed by

t h e Gen eral As s em

b ly

. If t h e Sch o ol Sy s t em w ere t o pas s i ts o wn ru l es as t o t h e

reg u l at i o n o f fi rearm s, t h at m i g h t v i o l at e OCGA § 1 6 -1 1 -1 7 3

. Here, an o ffi ci al wi th

t h e Sch oo l Sy s t em s i m

p l y i n fo rm ed Ev an s

, a G W L h o l der, t h at i n h i s op i n i o n Ev an s

w o u l d b e i n v i o l at i on o f O CGA § 1 6 -1 1 -1 2 7 .1 i f h e carri ed a fi rearm o nt o s ch o o l

p ro p ert y

, ad d in g t h at h e wo u l d n o t i fy t he au t ho ri t i es i f Ev an s d i d s o

. Acco rd i n g l y

, t h e

Sch oo l Sy s t em was n o t i n v i o l at i o n o f OCGA § 1 6 -1 1 -1 7 3 (b ) (1 ) ev en i f t he s t at u t e

d i d g ran t a wai v er o f s ov erei g n i m m u n i t y at t h e t i m e t h e s u i t was fi l ed

.

4

. Ev an s arg u es th at t h e t ri al co u rt erred b y d i s m i s s in g h i s cl ai m u n d er 4 2

U.S.C. § 1 9 8 3 fo r fai l u re t o st at e a cl ai m b ecau se a t h reat o f arres t can n ot b e a Fo u rt h

11Am en d m en t v i ol at i o n

. A l o c a l g o v ern i n g bo d y m ay b e s u ed fo r m o n et ary

,

d ecl arat ory

, an d i n

ju n ct i v e rel i ef u n d er 4 2 U.S.C. § 1 9 8 3 wh en “ th e act i o n t h at i s

al l eg ed t o b e u nco n s t i t u t i o n al i m p l em en t s o r ex ecu t es a p o l i cy s t at em en t

, o rd i n an ce,

reg u l at i o n

, o r deci s i o n o ffi ci al l y ad o pt ed or p ro m u lg a t e d b y th o se wh o se ed i ct s o r

act s m ay fai rl y b e s ai d t o rep res en t offi ci al p o l i cy .” Mo n el l v. Dep a r t men t o f S o ci al

S er vi ces o f t h e Ci t y o f New Y o r k

, 4 3 6 U. S. 6 5 8

, 6 59 (9 8 S C t 2 0 1 8

, 5 6 L E2 d 6 1 1 )

(1 9 7 8). To p rev ai l on a cl ai m u n d er 4 2 U.S.C. § 1 9 8 3

, E v an s m u s t d em o n s t rat e t h at

t h e Sch o o l Sy s t em s u b

ject ed h i m “ t o t he d ep ri v a t i o n o f an y ri gh t s

, pri v i l eg es

, o r

i m m u ni t ies s ecu red b y t h e Co ns t i t ut i o n an d l a w s .” 4 2 U.S.C. § 1 9 8 3

. Fu rt h erm o re,

h e m u s t s h o w th at “ [t he Sch o o l Sy s t em ’ s ] act i on was tak en wi t h t h e req u i s i t e d eg ree

o f cu lp ab i l i t y an d m

u s t d em on s t rat e a di rect cau s al l i n k b et w een t he m u n ici p al act i o n

an d t h e d ep ri v at io n o f fed eral ri g h t s .” Bo a rd o f t h e Co un t

y Co m’r s o f Br ya n Co u n t

y,

Okl . v. Br o wn

, 5 20 U. S. 3 9 7

, 4 0 4 (1 1 7 SCt 1 3 8 2, 1 3 7 LE2 d 6 26 ) (1 9 9 7 ). Here, t h e

t ri al co u rt ru l ed t h at Ev an s ’ s p l ead i n g s fai l ed t o es t ab li s h a “ s ei zu re” s u c h t h at h e

w o u l d h av e a val i d cl ai m t hat hi s Fo urt h A m en d m en t ri g h t s h ad been v i o l at e d

. We

ag ree.

Ev an s ci t es t o Geo rg i aCa r r y.Or g , In c. v. Geo r

gi a

, 6 8 7 F. 3 d 1 2 4 4 (1 1 t h Ci r.

2 0 1 2 ) fo r t he s t at em en t t h at :

12[t ] h i s co u rt h as h el d t h at a ri s k o f p ro secu t i on i s s uffi ci en t i f t h e p l ai n ti ff

al l eg es (1 ) t hat an act u al t h reat o f p ro s ecu t i o n was m ad e, (2 ) t hat

p ro s ecu t i on i s l i k el y

, o r (3 ) t h at a cred i b l e t h r e a t o f p ro s ecu t i o n ex is t s

b as ed on t h e ci rcu m st an ces

. T o s h o w t h at a p ro s ecu ti o n i s l i kel y o r a

cred ib l e th reat ex i s t s

, a p l ai n t i ff m u s t s ho w t h at t h ere i s a real i s t i c

d an g er o f s u s tai n i n g d i rect i n ju ry as a res u l t o f t h e s t at u t e’ s o p erat io n o r

en fo rcem en t

. W e l o o k t o s ee wh et h er th e p lai n t i ff i s s eri o u s l y in t eres ted

i n d i s o b ey i n g

, an d t h e d efen d an t seri o u s l y i n t en t o n e n fo rci n g th e

ch al len ged m eas u re.

Id

. at 12 5 2 (ci t at i o n s an d p u n ct u at i o n o m it t ed ). W hi l e t h i s i s an accu rat e q u o t e fro m

t h e El ev en t h Ci rcu i t Co u rt o f Ap p eal s

, i t do es n o t s up p o rt Ev an s ’ s arg u m en t

. Th e

El e v en t h Ci rcu i t m ad e t h at s t at em en t wh il e co ns i d eri n g t h e q ues t i o n o f s t an d i n g to

b ri n g a faci al ch al l en g e t o a s t at u t e, n o t i n d et erm i n i n g wh et h er a “ s ei zu re” h ad t ak en

p l ace fo r p u rp o s es of a Fo u rt h Am en d m en t an al ys i s

. W e ag ree t h at E v an s h as

s t an d i n g t o b ri n g hi s cl ai m s

, h o wev er h e h as n o t b ro u g h t a faci al ch al l en g e to OCGA

§ 1 6 -1 1 -1 2 7 .1

, an d t h e fact s d o no t s up p o rt a fi n d i ng t hat Ev an s s u ffered a

d ep ri v at i o n o f h i s Fo u rt h Am en d m en t ri gh t s.

“ A per s o n i s s ei zed b y t h e p o li ce an d t h u s en t i t l ed to ch al l en g e t h e

g o v e r n m e n t ’ s act i o n u n d er t he Fo u rt h Am en d m en t w h en t h e o ffi cer, b y m ean s o f

p h y s i cal fo rce o r sh o w of au t h o ri t y

, t erm i n at es o r res t rai n s h is freed o m o f m o v em en t

,

13t h ro u g h m ean s i n ten t i o n al ly ap p l i ed .” Br en d l i n v. Ca l i f o rn i a

, 5 5 1 U. S. 2 4 9

, 2 5 4 (II)

(A) (1 27 SCt 2 4 0 0

, 1 6 8 LE2 d 1 3 2 ) (2 0 07 ) (ci t at i on s an d p u n ct u at i o n o m i t t e d ). To

d et erm i n e w h et h er a “ s ei zu re” h as t ak en p l ace w it hi n t h e m e a n i n g o f t h e Fo u rt h

Am en d m en t

, “ t h e cru ci al t es t i s wh et h er, t ak i ng in t o acco u n t al l o f t h e ci rcu m s t an ces

s u rro u n d i n g t he en co un t er, t he p o l ice co n d u ct wo u ld h av e co m m u n icat ed t o a

reas on ab l e p ers o n t h at he was n o t at l i b ert y t o ig n o re t h e p o l i ce p res en ce an d g o ab o ut

h i s b u s in es s .” Fl o r i d

a v. Bo s t i ck

, 5 0 1 U. S. 4 2 9, 4 37 (II) (1 1 1 SCt 2 3 8 3

, 1 1 5 LE2 d

3 8 9 ) (1 9 9 1 ) (ci t at i o n s an d p u n ct u at i o n o m it ted ).

Here, E v an s m ak es n o arg u m en t t h at h i s freed o m of m o v em en t was ev er

res t rai n ed by p ol ice co n d u c t

, o r t h at h e d i d n ot h av e t h e freed o m t o go ab o u t h i s

b u s i n es s

. In s tead

, E v an s arg u es t h at i t was t h e t hreat o f p ro s ecu ti on b y a s ch o ol

o ffi ci al th at am o u n ted t o a s ei zu re an d i m p l i cat ed h i s Fo u rt h Am en d m en t ri g h t s

. He

ci t es t o S t ef

f el v. Th omp s o n

, 4 1 5 U. S. 4 5 2 (9 4 SCt 1 2 0 9

, 3 9 LE2 d 5 0 5 ) (1 9 7 4) fo r t h e

p ro p os i t i on t h at t h reat s o f arres t o r p ro s ecu t i o n can g i v e ri s e t o v al i d cl ai m s u n d er 4 2

U.S.C. § 1 9 8 3

. Ho wev er, S t ef f el i s d i s t i n g u i s h ab l e fro m th e i n s tan t cas e. In St ef f el

, t h e

p et i t i o n e r a n d a fri en d were d i s t ri b u t i n g an t i -war h an db i ll s o n an ex t eri o r s i d ewal k

o f t h e No rt h DeKal b Sh o p p i ng Cen t er. Aft er t h ey d ecl i n ed a req u es t b y s h o p p i n g

cen t er em p lo y ees t o s t o p p as s i n g o u t t h e h an d b i l l s

, th e p ol i ce were cal l ed

. Th e p o l i ce

14o ffi cers t o l d b o t h i n d iv i d u al s t h ey wo u l d b e arres t ed fo r v io l at i n g a cri m i n al t res p as s

s t at u te i f t h ey co n ti n u ed p as s i n g o u t t h e h an d b i ll s

. Th e i n d i v i d u al s l eft t h e s h o p p i n g

c e n t e r t o av o id arres t. Two d ay s lat er, th e s cen e rep eat ed i ts el f, an d wh i l e t h e

p et i t i o n er l eft to av o i d arres t

, h i s co m pan i o n s t ay ed an d was arres ted

. T h e p et i t i o n er

b ro u gh t s u i t ag ai n s t t he DeKal b Co u n t y So l i ci t o r, t h e D eKal b Co u n t y Po l i ce, as wel l

as t he bo t h t h e o w n e r a n d t h e m an ag er o f t h e No rt h DeKal b Sh o p p i n g Cen t er to

p rev en t en fo rcem en t o f t h e s t at u t e at i s s u e. See S t ef fel at 4 5 5 -4 5 6

.

In S t ef f el

, t h e p et i t i o n er w as act ual l y t hreat en ed wi th arres t an d pro s ecu t i o n by

p o l i ce, an d h i s co m

p an i o n was i n fact arres t ed

. Th e i ns t an t cas e i s d i s t i n g u i s h ab l e

b ecau s e E v a n s was n ev er ap p ro ach ed b y p ol ice an d t h reat en ed wi t h arres t o r

p ro s ecu ti o n

. M o reo v er, Ev an s do es n o t cl ai m t hat t he l aw i t sel f i s u n co n s t i t u t i o n al o r

b ei n g u n co n s t i t u t i o n al l y ap p l i ed t o h i m

. In s t ead

, E v an s i s cl ai m i n g h e was s ei zed in

v i o l at i o n o f t h e Fo u rt h Am en d m en t b ecau s e a s ch o o l o ffi ci al in fo rm ed h i m t h at i f h e

carri ed a weap o n i n t o a sch oo l s afet y z o n e h e w o u l d be in v i ol at i o n o f t h e l aw.

Ho wev er, t h ere is n o ev id en ce t h at Ev an s was ap p ro ach ed b y an y l a w e n fo rcem en t

o ffi ci al an d t h reat en ed wi t h arres t o r p ro s ecu t i o n

. Ab s en t m o re, t h e m ere o p i n i o n an d

s t at em en t o f i n t en t by a sch oo l o ffi ci al is n o t a s ei zu re fo r p u rp o s es o f a cl ai m u n d er

t h e Fo urt h Am en d m en t

. Th u s

, wh en we ex am i n e t he t o tal i t y of t h e ci rcu m s t an ces we

15c o n c l u d e t h at Ev an s h as fai l ed t o s h o w t h at h e s u ffered an i n ju ry s uffi ci en t t o s t a t e

a cl ai m u n d er th e Fo u rt h Am en d m en t, an d t he t ri al co u rt w as co rrect t o d i s m i s s h i s

4 2 U .S.C. § 1 9 8 3 cl ai m

. See S o l a n o -Ro d

r i gu ez v. S t a t e

, 29 5 Ga. Ap p

. 8 96

, 9 0 1 ( 1 )

(6 7 3 SE2 d 3 5 1 ) (2 0 0 9 ) (“ Tak in g i n t o acco u n t al l of t h e fo reg o i n g ci rcu m s tan ces

, we

co n cl u d e t h at t h e t ri al co u rt was au t h o ri zed t o fi n d t h at n o s ei zu re o ccu rred ”).

5

. In l i g ht o f o u r fi n d i n g t h at t h e t ri al co urt d i d n o t err i n d i s m i s si ng Ev an s ’ s

co m p l ai n t , we n eed n o t ad d res s h i s rem ai n i n g en u m erat i o n s o f erro r.

Ju d g men t a f f i r m ed . El l i n g t o n , P. J., a n d Br an ch , J., co n cu r

.

16