2 9 7 Ga . 4 29

F INAL COP Y

S 1 5 A0 4 8 9 . ELBERT COUNTY e t a l. v . S WEET CITY LANDF ILL, LLC

e t a l.

H I NES , P re sid in g Ju stic e

.

Th is Co u rt g ra n te d th e a p p lic a tio n fo r d i s c r e tio n a ry a p pe a l of Elb e rt

Co u n ty

, its Bo a rd o f C o m m issio n e rs, a n d th e Co u n ty Ma na g e r (c o lle c tiv e ly

,

“ th e Co u n ty ” ) fro m a n o rd e r o f th e S up e rio r Co urt o f Elb e rt Co u nty th a t, in te r

a lia

, g ra n te d a d e c la ra to r y j u d g m e n t to th e e ffe c t th a t th e E lb e rt Co u n ty S o lid

Wa ste Disp o sa l Ord in a n c e wa s u n c o n stitu tio n a l, d e n ie d th e Co un ty ’s m o tio n to

d ism iss, a n d issu e d a writ o f m an d a m u s re q u irin g th e C o u n ty to re a so n a b ly

c o n sid e r th e site p ro p o se d b y Swe e t C ity La n d fill, LLC a n d its m e m b e rs

( c o lle c tiv e ly

, “ S we e t City ” ) fo r a so lid w a ste la n d fill. F o r th e re a so n s th a t

fo llo w, we re v e rse a n d re m a n d fo r fu rth e r p ro c e e d in g s.

On No v e m

b e r 2

, 2 0 0 9

, S we e t City file d with th e C o un ty a d o c u me n t

sty le d “ Ap plic a tio n a n d Ag re e d Min im u m Op e ra t i n g Co n ditio n s” ; th is

d o c u m e nt re q u e ste d th a t “ a S p e c ia l Use P e rm it an d a z o n in g e sto p p e l le tte r a n d

a c e rtific a te o f so lid wa ste p la n c o n siste n c y b e sim u lta n e o u sly i s s u e d

. . . ina c c o rd a n c e with S e c tio n 6 2 -5 2 o f th e E lb e rt C o un tyCo d e o f Ord in a n c e s [a n d

re le v a n t se c tio n s o f th e Ge o rg ia Co m p re h e n siv e S o lid Wa ste Ma n a g e m e n t Ac t,

OCGA § 1 2 -8 -2 0 e t se q

., a n d re g ula tio ns o f t h e De p a rtm e n t o f Na tu ra l

Re so u rc e s] .” A t th e tim e o f S we e t City ’s a p p lic a tio n

, Elb e rt Co u n ty o rd in a n c e s

re q u ire d a S p e c ia l Use P e rm it (“ SUP ” ) b e issu e d fo r o p e ra tio n o f a so lid wa ste

la n d fill. Ho we v e r, a lso a t th e tim e o f th e a pp lic a tio n

, t h e C o un ty wa s in th e

p ro c e s s o f a m e n d in g its o rd in a n c e s p e rta in in g to wa ste d isp o sa l la n d fills, h a v in g

a lre a d y g iv e n a p ro p o se d a m e n d m e n t a “ first re a d in g ” ; th e e ffe c t o f t h is 2 0 0 9

a m e n d m e n t wa s to e x e m

p t a “ wa ste to e n e rg y ” so lid wa ste fa c ility

, a s d e fin e d

b y OCGA § 12 -8 -2 2 (4 1 ), 1 fro m th e re q u ire m e n t th a t a la n dfill S UP b e o b ta in e d

.

S we e t City th e n so u g h t to a m e n d its a p p lic a tio n to qu a lify

, in its v ie w, a s a

“ wa ste to e n e rg y ” p ro

je c t a nd th u s b e e x e m

p te d fro m th e re q u ire m e n t to se c u re

a S UP

.

With o u t fo rm a l a c tio n o n S w e e t Cit y ’ s p r o p o sa l, th e C o u n ty de c id e d to

g o fo rwa rd with a p ro p o sa l fo r a wa ste d isp osa l fa c ility o p e ra te d b y P la n t

1 OCGA § 12-8-22 (41) define s t e rms used in the Georg ia Comprehensive Solid W aste

Manag ement Act and reads:

“ W a s t e t o e nerg y facility ” means a solid waste h andling facility that p r o v i d e s f o r t h e

ex traction and utiliz ation of energ y from municipal solid waste throug h a process of combustion.

2Gra n ite

, LLC, wh ic h in th e Co u n ty ’s vie w wo uld be a “ wa ste to e n e rg y ”

fa c ility

. 2 S we e t Ci t y twic e file d su it in c o n n e c tio n with th is d e c isio n

, a n d o n

Oc to b e r 1 4

, 2 0 1 1

, S w e e t City a n d th e Co u nty e n te re d in to a “ to llin g a gre e m e n t”

wh ic h p u t in a

b e y a n c e th e le g a l d isp u te s b e twe e n th e C o u n t y a n d S we e t C ity

wh ile th e y so u g h t c o m m o n g ro u n d o n S we e t City ’s a p p lic a tio n fo r a S UP

. On

S e p te m b e r 1 1

, 2 0 1 1

, t h e C o u n ty a g a in a m e n de d its so lid w a ste m a n a g e m e n t

o rd in a n c e to re qu ire th a t a ll so lid w a ste fa c ilitie s, in c lu din g th o se th a t q u a lifie d

a s a “ wa ste to e n e rg y ” fa c ility , wo u ld re q uire a S UP

.

On Ju n e 29

, 2 01 2, S w e e t City re q u e ste d to b e p la c e d o n th e a g e n d a o f th e

Ju ly 9

, 2 0 1 2 m e e tin g o f th e E lb e rt Co u n ty Bo a rd o f Co m m issio n e rs (“ Bo a rd ” )

“ fo r d isc u ssio n a n d c o n sid e ra tio n [o f] sitin g o f a p ro p o se d so lid wa ste fa c ility

a n d th e a sso c ia te d p ro p o se d h o st a gre e m e n t.” 3 At th a t m e e tin g, th e Bo a rd v o te d

5 -0 “n o t to e n te r in to a ‘Ho st Ag re e m e n t’ with Swe e t C ity L a n d fill, LLC, a n d

,

fu rth e rm o re , to te rm in a te th e to llin g a g re e m e nt.”

On Ma rc h 1 3

, 2 01 3

, S we e t City file d in th e su pe rio r c o urt a “ Ve rifie d

2 I t is uncontroverted that this proposed facility was never built.

3 The p r oposed h ost ag r eement was apparently intended t o u p d a t e matters in the SUP

application as a result of discussions between the parties, such as the inclusio n o f an a esthetically

pleasing entrance g ate, additional pre-disturbance test wells, etc.

3Co m

p la in t fo r De c la ra to ry Ju d g m e n t, a n d In ju nc tiv e R e lie f,” re q u e stin g v a rio u s

re lie f, in c lu d in g d e c la ra to ry ju d g m e n t s t h at t h e C o u n ty ’s S o lid Wa ste Ord in a n c e

wa s nu ll a n d v o id a s u n c o n stitu tio n a l, a n d th a t S we e t City h a d a v e ste d rig h t to

d e v e lo p th e su b

je c t p ro p e rty a s a wa ste d isp o sa l fa c ility ; S we e t City a lso so u g h t

a m a n da to ry in

ju n c tio n a llo win g i t t o p ro c e e d with th e la nd fill. T h e Co u n ty

m o v e d to d ism iss S we e t City ’s c o m p la in t, an d S we e t C ity m ov e d fo r su m m a ry

ju d g m e n t. On S e p te m

b e r 1 1

, 2 0 1 4

, th e su p e rio r c o u rt issu e d a n o rd e r: g ra n tin g

su m m ary ju d g m e n t to S we e t City o n th e g ro u nd s th a t th e C o u n ty ’s S o lid Wa ste

Ord in a n c e v io la te d th e d o rm a nt Co m m e rc e Cla u se o f th e Un ite d S ta te s

Co n stitu tio n, a n d th a t th e Ju ly 9

, 2 0 1 2 B o ard a c tio n d e p riv e d S w e e t City o f

e q u a l p ro t e c t i o n un de r b o th th e Un ite d S ta te s a n d Ge o rg ia Co n stitu tio n s;

d e c la rin g th a t S we e t C ity h a s a v e ste d rig ht to h a ve th e Co u n ty issu e “ a le tte r o f

z o n in g a n d d e v e lo p m e n t c o m p l i a n c e a n d c o n siste n c y with th e Co u n ty ’s so lid

Wa ste Ma n a g e m e n t P la n ” ; d e c la rin g th a t S we e t City ha s a v e ste d rig h t to

d e v e lo p th e p ro p e rty a s a la n d fill fre e of an y z o n in g an d la n d u se re stric t i o n s ;

a n d

, g ra n tin g a te m

po ra ry in ju n c tio n a g a i n st th e Co un ty fro m e n a c tin g o r

e n fo rc in g o rd in a n c e s s o a s to in te rfe re with S we e t City ’s d e v e lo p m e n t. Th e

su p e rio r c o u rt a lso d e n ie d th e Co u n ty ’s m otio n to d ism iss, re je c tin g th e

4Co u n ty ’s a rg u m e nt th a t S w e e t City h a d to e xh a u st its a d m in istra tiv e re m e d ie s

p rio r to filin g su it.

1 . Th e Co u n ty c o n te n d s th a t th e tria l c o u rt e rre d in g ra n tin g S we e t City

a n y re lie f, a s th e Ju ly 9

, 2 0 1 2 Bo a rd a c tio n wa s a fin a l d e te rm in a tio n o f S we e t

City ’s a p p lic a tio n fo r a S UP a n d a sso c ia te d re q u e sts, a nd th u s S we e t City wa s

re q u ire d to file a tim e ly a p p e a l pu rsu a n t to OCGA § 5

- 3

- 2 0 4 fro m th e Ju ly 9

,

2 0 1 2 d e c isio n o f th e Bo a rd

, a n d th a t th e fa ilu re to d o so fo re c lo se d a ny re v ie w

fro m th a t d e c isio n

, e v e n b y a c olla te ra l a tta c k su c h a s a d e c la ra to ry ju d g m e n t.

S we e t City

, ho w e v e r, a sse rts th a t th e Bo ard did n ot a d d re ss th e S UP o n Ju ly 9

,

2 0 1 2, b ut m e re ly d e c lin e d to e n te r in to a “ h o st a g re e m e n t,” a n d to e n d a to llin g

a g re e m e n t, a

n d th a t th u s n o a

p p e a l la y fro m

th e Ju ly 9 , 2 0 1 2 Bo a rd a c tio n

.

T h e tria l c o u rt fo u n d th a t th e Bo a rd d id no t a c t u p o n Swe e t City ’ s

a p p lic a tio n f

o r a S UP

. Bu t, if th e Bo a rd d id re n d e r a fin a l d e c isio n o n S we e t

City ’s a p p lic a tio n

, a n d n o a

p p e a l to th e su p e rio r c o u rt wa s so u g h t, th e Co u n ty ’s

4 OCGA § 5-3-20 reads:

(a) Appeals to the superior court shall be filed within 30 day s of the date the

judg ment, order, or decision complained of was entered.

(b) T he date of entry of an order, judg ment, or other decision shall be the date

upon which it was f

iled in the court, ag ency

, or other tribunal rendering same, duly

sig ned by the judg e or other official thereof.

(c) T his Code section shall apply to all appeals to the superior court, any other

law to the contrary

notwithstanding

.

5b a sis fo r th e m o tio n to d ism iss wo u ld b e we ll fo u n d e d.

OCGA § 5 -3 -2 0 e sta b lish e s a ju risd ic tio n a l d e a d l i n e fo r “ a ll a p pe a ls

to th e su p e rio r c o u rt, a n y o th e r la w to th e c o n tra ry

n o twith sta n d in g .” OCGA § 5 -3 -2 0 (c ). [Cit.] All “ [a ] p p e a ls to th e

su p e rio r c o u rt sh a ll b e file d w ith in 3 0 da y s o f th e d a te th e ju d g m e n t,

o rd e r, o r de c isio n c o m

p la in e d of wa s e n te re d .” OCGA § 5 -3 -2 0 (a )

. . . . Fin a l de te rm in a t i o n s by c o u n ty a u th o ritie s re g a rd in g th e

a p p lic a tio n o f la n d u se re stric tio ns to a p a rtic ula r p ro p e r t y c o n s t i t u te

“ d e c i s io n s” with in th e m e a n in g o f OCGA § 5-3 -2 0

. [Cits.] Th e

3 0

– d a y d e a d lin e a

p p lie s e v e n if th e c h a lle n ge to th e c o u n t y ' s la n d

u se d e c isio n is c o u c h e d in te rm s o f in ve rse c o n d e mn a tio n . [Cit.]

Mo rtg a g e Allia n c e Co rp

. v

. Pic k e n s Co u n ty

, 2 9 4 Ga

. 21 2, 2 1 5 -2 1 6 ( 2 ) ( 7 5 1

S E2 d 51 ) (2 0 1 3 ) (e m

p h a sis in o rig in a l). S e e a lso Ch a dwic k v

. Gwin n e tt Co u n ty

,

2 5 7 Ga . 5 9 (3 5 4 S E2 d 4 2 0 ) (1 9 8 7 ).

Ho we v e r, th e a g e nd a o f th e Bo a rd m e e tin g sh o w s sim p ly th a t th e Bo a rd

wo u ld a d d re ss a “ Re q u e st f r o m S we e t City La n d fill, L LC fo r d isc u ssio n a n d

c o n sid e ra tio n o f a p r op o se d h o st a g re e m e n t a sso c ia te d with a so lid wa ste

fa c ility .” An d

, th e re wa s n o sin g le do c u m e n t th a t h a d b e e n p re p a r e d so a s to

c o m p rise a p ro p o se d “ h o st a g re e m e n t.” R a th e r, d o c u m e n ts in th e re c o rd su g g e st

th a t wh a t wa s b e fo re th e B o a rd a t th e Ju ly 9

, 2 0 1 2 m e e tin g wa s e sse n tia lly a

fra m e wo rk o f h ow a h o st a g re e m e n t wo u ld b e p re p a re d

, with g e n e ra l sta te m e n ts

a s to wh a t it m ig h t c o n ta in

. F u rth e r, e v e n th is fra m e w o rk did n o t re fe r to a S U P

.

6T he B o a

rd ’s m in ute s sh o w o n ly th a t a m o tio n wa s m a d e a n d c a rrie d fo r th e

Bo a rd “ n o t to e n te r in to a ‘Ho st A g r ee m e n t’ with S we e t City La n d fill, LLC,

a n d

, fu rth e rm o re

, to te rm in a te th e to llin g a g re e m e n t.” Th e m in u te s do n o t sh o w

a n y o th e r a c tio n ta k e n a t th e Ju ly 9

, 2 0 1 2 m e e tin g in re g a rd s to S we e t City

, a n d

th e tria l c o u rt d id n o t e rr in ru lin g th a t th e B o a rd to o k n o a c tio n o n S we e t City ’s

a p p lic a tio n fo r a S UP . S e e Mo rtg a g e Allia n c e , su p ra a t 2 1 9.

No n e th e le ss, th e tria l c o u rt e rre d in a d d r e s s i n g t h e C o u n t y ’ s m o t i o n t o

d ism iss, fin din g th a t, u n d e r OCGA § 1 2 -8 -2 6 (b ), th e Ju ly 9

, 20 12 B o a rd a c tio n

wa s a “ sitin g d e c isio n ,” w a s d o ne with o u t th e pu blic n o tic e re q u ire d b y OCGA

§ 1 2 -8 -2 6 (b ) a n d Se c tio n 6 2 -5 2 o f th e E lb e rt Co u n ty Co d e o f Ord in a n c e s, wa s

“ v o id a b in itio a n d th u s u n a

p p e a la b le ,” a n d S we e t City th us h a d n o o b lig a tio n

to a pp e a l. Th is wa s e rro r. Assu m in g th a t th e Ju ly 9

, 2 0 1 2 Bo a rd a c t i o n wa s

v o id

, it w o u ld n o t b e u n a

p p e a la b le ; to th e c o ntra ry

, a n a

pp e a l o f a v o id ju d g m e n t

will re su lt in a re ve rsa l a n d p ro v id e re d re ss fr o m a n ille g a l ju d g m e n t. S e e

W e th e rin g to n v

. S ta te

, 2 9 5 Ga

. 1 7 2

, 1 7 3 (7 5 8 S E2 d 2 9 9 ) (2 0 14 ); Da rd e n v

.

Ra v a n

, 2 3 2 Ga . 7 5 6 , 7 5 8 (1 ) (2 0 8 S E2 d 8 4 6 ) (1 9 74 ).

Th e tria l c ou rt a lso e rre d i n r e j ec t in g th e Co u n ty ’s a rg u m e n t th a t, if th e

tria l c o u rt d e c id e d th a t n o fin a l d e c isio n ha d b e e n m a de b y th e Bo a rd re g a rd in g

7S we e t City ’s a p p lic a tio n f

o r a S U P

, th e c ou rt m

u st d ism iss th e m a tte r d u e to

S we e t City ’s fa ilu re to e x h a u st its a d m in istra tiv e re m e d ie s, a llo w in g S we e t C ity

to re tu rn to th e Bo a rd to se c u re a fin a l d e c isio n o n its a p p lic a tio n fo r a S UP

.

S e e Mo rtg a g e Allia n c e

, su pra a t 2 1 8 -2 2 0

. R a th e r, th e tria l c o u rt h e l d t h a t fo r

S we e t City to re tu rn to th e Bo a rd fo r a fin a l d e c isio n wo u ld be a fu tile a c t, a n d

th e re fo re S we e t City fe ll in to a n e x c e p tio n to th e e x h a u stio n re q u ire m e n t.

Ho we ve r, th a t e x c e p tio n d o e s n o t a p p ly

.

As th e Co u n ty n o te s, th e g e n e ra l ru le is th a t b e fo re a p a rty se e k s re d re ss

in th e c o u rts re g a rd in g th e a p p lic a tio n o f lo c a l re g u la tio n to p ro p e rt y, i t m u st

a p p ly to th e lo c a l a

uth o ritie s fo r d e te rm in a tio n o f m a tte rs su c h a s th e g ra n tin g

o f a S UP

, be c a

u se “ [r] e q u irin g e xh a

u stio n o f a d m in istra tiv e re m e d ie s p re v e n ts

u n n e c e ssa ry ju d ic ia l in te rv e n tio n in to l o c a l a ffa irs a n d p ro m o te s ju d ic ia l

e c o n o my b e c a

u se lo c a l a

u th o ritie s, u n lik e th e c o u rt, h a v e th e p o we r to gra n t th e

. . . re lie f so u g h t.” City o

f S u wa ne e v

. S

e ttle s Brid

g e Fa rm, L LC

, 2 9 2 Ga

. 4 3 4

,

4 3 7 (7 3 8 S E2 d 59 7 ) (2 0 1 3 ) (Cita tio n s a n d p u n c tu a tio n o m i t t e d .) “Ho we v e r, th is

Co u rt h a s re c o gn iz e d a n a rro w e x c e p t i o n to th e e x h a u stio n re q uire m e n t fo r

situ a tio n s in wh ic h th e litig a n t e sta b lish e s th a t su b m ittin g to th e a d m in istra tiv e

p r o ce s s w o u l d b e ‘fu tile .’ [Cits.] ” Id

. Un d e r th a t e xc e p tio n

, “ fu tility will b e

8fo u n d t o e x ist o n ly wh e re fu rth e r a d m in istra tiv e re v ie w w o u ld re su lt in a

d e c isio n o n th e sa m e issu e b y th e sa m e b o d y

. ” Id

. (Cita tio n s a n d p u n c tu a tio n

o m itte d

. ) B u t

, “ th e first ste p in e sta b lish in g fu tility is to sh o w th a t th e

a d m in istra tiv e d e c isio n -m a k e r to wh o m th e litig a nt w o u ld b e re q uire d to g o to

se e k re lie f h a s a lre a d y re n d e re d a d e c isio n o n th e issu e .” Id

. An d S w e e t C ity

c a n n o t m e e t t h a t ste p ; a s th e tria l c o u rt fo u n d

, th e Bo a rd did no t re n d e r a

d e c isio n o n S we e t City ’s SUP a p p lic a tio n

. Wh ile S we e t City c o nte n d s th a t th e

d e c isio n o f th e Bo a rd c a n b e p re d ic te d fro m th e p r io r d e a lin g s b e twe e n th e

Co u n ty a n d S we e t C ity

, th is Co u rt h a s n o te d th a t a p a rty m u st se e k th e

a p p ro p ria te re lie f fro m th e lo c a l a u th o ritie s e v e n if th e p a rty is p e ssim istic a b o u t

its p ro sp e c ts. Mo rtg a g e Allia n c e , su p ra a t 2 1 9 (2 ).

As n o te d

, th e tria l c o u rt ru le d th a t Swe e t C ity h a d a v e ste d rig h t to h a v e

th e Co u n ty issu e “ a le t t e r o f z on in g a n d de v e lo pm e n t c o m p lia n c e a n d

c o n siste n c y with th e Co u n ty ’s S o li d Wa ste Ma na g e m e n t Pla n .” Ho we ve r,

S we e t City ’s fa ilu re to o b ta in a fin a l d e c isio n fro m

th e Bo a rd a n d a ffo rd it th e

o p p ortu n ity to a d d re ss its c la im o f a v e s t e d r ig h t to a SUP m a de it im p o ssib le

fo r th e su p e rio r c o u rt “ to de te rm in e wh e th e r [S we e t C ity ’s] v e ste d rig h ts h a v e

b e e n v io la te d

, sin c e

. . . th e a p p ro p ria te Co u n ty a

u th ority [n ] e v e r d e nie d [it] a n y

9su c h p e rm it.” Co o p e r v

. Un ifie d Go v t. o

f Ath e ns-Cla rk

e Co u n ty

, 2 7 7 Ga

. 3 6 0

,

3 6 1 (5 8 9 S E2 d 1 0 5 ) (2 0 0 3 ). “ Th is Co u rt’s lo n g -sta n d i n g p ro c e du re is to

a d d re s s t h e s e v e ste d rig h ts c la im s o n ly a fte r th e lo c a l z o n in g a uth o rity ha s

re fu se d to issu e th e n e c e ssa ry p e rm its fo r th e pro p o se d p ro je c t, o r h a s im

p o se d

u n c o n stitu tio na l re stric tio ns o n a n e x istin g p ro je c t. [Cits.] ” Id

. Ac c o rd in g ly

, th e

tria l c ou rt e rre d in re a c h i n g t h e m e rits o f S we e t C ity ’s c la im to h a ve a v e ste d

rig h t in th e issu a

n c e o f a le tte r o f c o m

p lia n c e

. S im ila rly

, th e tria l c o urt e rre d in

a d d re ssin g S we e t C ity ’s e q u a l p ro te c tio n c la im

, in wh ic h it c on te n d e d th a t it h a d

b e e n tre a te d d iffe re n tly fro m a lle g e d l y s i mila rly situ a te d P la nt Gra n ite

. 5 S e e

Ca to o sa Co u n ty v

. R.N. T a lle y Pro p e rtie s

, 2 8 2 Ga

. 3 7 3

, 3 7 5 ( 6 5 1 S E2 d 7 )

(2 0 0 7 ).

2

. Th e tria l c o u rt a lso gra n te d su m m a ry ju d g m e n t to S we e t City a s to its

fa c ia l c h a lle ng e to th e c on s t i t u tio n a lity o f th e Co u n ty ’s so lid wa ste o rd in a n c e

u n d e r th e “ d o rm a n t” a sp e c t o f th e Co m m e rc e Cla u se o f th e Co n stitu tio n o f th e

Un ite d S ta te s. S e e U.S

. Co n st. Art. I, Se c

. 8

, Cl. 3. An d

, a s th e c o urt n o te d

,

5 According ly

, we n eed n o t a d d r e ss the County ’s enumeration of error reg arding certain

evidentiary ruling s the trial court made in connection with its g rant of summary judg ment to Sweet

City o n the equal protection claim.

10th e re is n o e x h a u stio n re qu ire m e n t wh e n a n o rd in a n c e is c ha lle n g e d on its fa c e

.

Kin g v . City o f Ba in b rid

g e , 2 7 2 Ga . 4 27 (2 ) (5 31 S E2 d 3 5 0) (2 0 0 0 ).

Th e Co u n ty ’s so lid wa ste o rd in a nc e re q u ire s th a t in a d d itio n to o b ta in in g

a S UP , a ll p riv a te so lid wa ste fa c ilitie s m ust, a m on g o th e r c rite ria

, b e lo c a te d

o n a S ta te Hig hwa y

, n ot c re a te tra ffic th ro u g h re sid e n tia l a re a s, b e m o re th a n

th re e m ile s fro m “ sta te wa te rs” a s d e fin e d in OCGA § 1 2 -7 -3 (1 4 ), b e m o re th a n

th re e m ile s fro m c e rta in c u ltu ra l a nd g o v e rn m e n ta l site s, a n d b e m o re th a n o n e

m ile fro m a n y re sid e n c e o r wa te r su p p ly w e ll. Th e re wa s u nc o n tro v e rte d

e v id e n c e th a t, wh e n a ll c rite ria se t fo rth in th e o rd in a n c e we re a p p lie d

, th e re wa s

n o lo c a tio n in Elb e rt Co u n ty u p o n wh ic h a so lid wa ste fa c ility c ou ld b e lo c a te d

,

a n d th a t th e re w a s c u rr e n t ly n o so lid wa ste fa c ility in Elb e rt Co un ty

. Th e se

c rite ria

, a n d th e re qu ire m e n t th a t a S U P be ob ta in e d

, a p p ly to a ll a

p p lic a n ts fo r

a priv a te so lid wa ste fa c ility

, re g a rd le ss o f wh e th e r th e a p p lic a n t is a re sid e n t o f

Elb e rt Co u n ty

, a no th e r c o u n ty in Ge o rg ia

, o r a ju risd ic tio n o utsid e o f G e o rg ia

.

Th e Un ite d S ta te s S u p r e m e C o u rt h a s “ lo n g in te rp re te d th e Co m m e rc e

Cla u se a s a n im

p lic it re stra in t o n sta te a

uth o rity

. . . . [Cits.] ” Un ite d Ha u le rs

Assn

. In c

. v

. On e id

a -He rk ime r S o lid W a ste Mg mt. A u th

., 5 5 0 U. S

. 3 3 0

, 3 3 8 (II)

(A) (1 2 7 S Ct 1 7 8 6 , 1 6 7 LE2 d 6 55 ) (2 0 0 7 ).

11To d e te rm in e wh e th e r a la w v io la te s th is so -c a lle d “ d o rm a n t” a sp e c t

o f th e C o m m e rc e Cla

use

, [c o u rts] first a sk wh e th e r it d isc rim in a te s

o n its fa c e a g a in st in te rsta te c o mme r c e

. In th is c on te x t,

“ ‘ d i s c r i m i n a

t i o n ’ s i m p ly m e a n s d iffe re n tia l tre a tm e n t o f i n

- s t at e a n d

o u t-o f-sta te e c o n o m ic in te re sts th a t b e n e fits th e fo rm e r a n d b u rd e n s

th e la tte r.” Disc rim i n a t o r y la w s m o tiv a te d b y “ sim p le e c o no m ic

p ro te c tio nism ” a re su b

je c t to a “ v irtu a lly p e r se ru le o f in v a lid ity ,”

wh ic h c a n o n ly b e o v e rc o me b y a sh o win g th a t th e S ta te h a s n o

o th e r m e a n s to a d v a n c e a le g itim a te lo c a l p u rp o se

.

Id . (Cita tio n s o m itte d .) A n d , if th e la w is no t fa c ia lly d isc rim in a to ry

, a c o urt

will e n ga g e in a b a la n c in g te st a s se t fo rth in Pik e v

. Bru c e Ch u rc h

, In c

. , 3 9 7 U.

S

. 1 3 7 (9 0 S Ct 84 4

, 25 LE2 d 1 7 4 ) (1 9 7 0 ). Se e Un ite d H a u le rs

, su p ra a t 3 4 6 (II)

(D). Un de r Pik

e , wh e n a sta tu te o r o rd in a n c e

re g u la te s e ve n-h a n de d ly to e ffe c tu a te a le gitim a te lo c a l p u b l ic

in te re st, a n d its e ffe c ts o n in te rsta te c o m m e rc e a re o n ly in c id e nta l,

it will b e u p h e ld u n le s s th e b u rd e n im po se d o n su c h c o m m e rc e is

c le a rly e x c e ssiv e i n r el a tio n to th e p u ta tiv e lo c a l be n e fits. If a

le g itim a te lo c a l p u rp o se is fo u n d

, th e n th e q ue stio n b e c o m e s o ne o f

d e g re e

. An d th e e x te n t o f th e b u rd e n th a t w i l l b e to le ra te d will o f

c o u r s e d e p e n d o n th e n a tu re o f th e lo c a l in te re st in vo lv e d

, a n d o n

wh e th e r it c o u l d b e p ro m o te d a s we ll with a le sse r im p a c t o n

in te rsta te a c tiv itie s.

S u p ra a t 1 4 2 (c ita tio n o m itte d).

As n o te d

, th e o rd in a nc e d o e s n o t, o n i ts fa c e

, d isc rim in a te a g a in st

in te rsta te c o m m e rc e ; a ll S UP a p p lic a n t s a r e su bje c t to th e sa m e c rite ria

,

re g a rd le ss o f g e o g ra

p h ic o rig in

, an d it d o e s n ot o p e ra te so a s to p ro te c t th e

12in te re sts o f a c o u n ty

. No n e th e le ss, th e tria l c o urt d id n o t e n g a g e in th e

b a la n c in g te st se t fo rth in Pik e

, su p ra

. S we e t City c o n te nd s th a t su c h b a la n c in g

wa s n ot n e c e ssa ry b e c a

u se (a ) t h e o r d in a n c e wa s e n a c te d n o t to e ffe c tu a te a

le g itim a te p u blic p u rp o se

, b u t so le ly to a c c om plish th e go a l o f b a n n in g p riv a te

so lid wa ste fa c ilitie s fro m Elb e rt Co u n ty ; a n d (b ) th e e ffe c t o f th e ord in a n c e o n

in te rsta te c o m m e rc e is n o t m e re ly in c id e n ta l. Th e tria l c o u rt a c c e p te d th e se

a rg u m e n ts in g ra n tin g S w e e t City su m m ary ju d gm e n t, b ut e rre d in d oin g so

.

Alth o u g h th e tria l c o u rt’s o rd e r re c ite s th a t th e “ sta te d le gisla tiv e in te n t

o f th e Elb e rt Co u n ty S o lid Wa ste Ord in a n c e a s o f 20 09 a n d p re se n t is to b a n a ll

m u n ic ip a l so lid wa ste la n d fills in Elb e rt Co u n ty

, ” th is ig n o re s th e re c o rd b e fo re

th e tria l c o u rt. Th e 2 0 0 6 e n a c tm e n t o f th e so lid wa ste o rd in an c e

, re fe rre d to in

th e a p plic a b le a m e n dm e n ts, sta te s th a t, in te r a lia

, th e o rd in a n c e is to p ro m o te th e

sa fe ty a nd we lfa re o f th e Co u n ty re sid e n ts, p re se rv e C o u n ty re so u rc e s re g a rd in g

Co u n ty -m a in ta in e d ro a d s, a nd p r o te c t th e n a tu ra l re so u rc e s of th e Co u nty

.

Alth ou g h S we e t City c o n te n d s th a t t h ere is o th e r e v id e n c e sh o win g th a t th e

p u rp o se o f th e o rd in a n c e wa s n o t a s sta te d, b ut wa s in fa c t, to e xc lu d e a ll so lid

13wa ste fa c ilitie s fro m th e Co u n ty

, 6 o n th e tria l c o u rt’s c o n sid e ra tio n o f S w e e t

City ’s m o tio n fo r su m m a ry ju d g m e n t, th is wo uld o n l y p r e s en t a n issu e o f

m a te ria l fa c t. S e e An sle

y v

. Ra c zk a -L o n g

, 2 9 3 Ga

. 1 3 8

, 14 0 (2 ) (7 44 S E2 d 5 5 )

(2 0 1 3 ).

S we e t City a l s o a rg u e s th a t th e e ffe c t o f th e o rd in a n c e o n in te rsta te

c o m m e rc e c a n n o t b e c o n sid e re d m e re ly in c id e n ta l in th is in sta n c e be c a u se if a ll

o th e r c o u n t i e s in Ge o rg ia e na c te d sim ila r o rd in a nc e s, th e c u m u la tiv e e ffe c t

wo u ld

, in fa c t, sig nific a n tly im p a c t in te rsta te c o m m e rc e

. Bu t, th is arg u m e n t is

sim p ly sp e c u la tiv e

, a n d th e re is n o e v id e n c e th a t t h e e n a c tm e n t o f o rd in a n c e s

with th e sa m e sitin g c rite ria in th e o th e r 1 5 8 c o u n tie s of Ge o rg ia w o u ld

, in fa c t,

p r od u c e a n e ffe c tiv e b a n on th e lo c a tio n o f so lid wa ste fa c ilitie s. Of c o u r s e

,

o th e r c o u n tie s c o u ld im

p o se sitin g c rite ria th a t, wh e n a p p l ie d to th e ir o wn

situ a tio n s, c re a te a n e ffe c tiv e b a n o n th e sitin g of so lid wa ste fa c ilitie s with in

th e ir b o rd e rs, b u t th a t a c tu a lly sh o ws th e wisd o m o f re q u irin g th e tria l c o u rt to

a p p ly t h e Pi k

e te st, e v a lu a te th e de g re e o f “b u rd e n th a t will b e to le ra te d

. . .

6 I n support of this contention, Sweet City points to an appendix to its brief in this Cou rt

, rather than to the record from the court below. S e e S u p r e m e Court Rule 19. Assuming that the

evidence w as before the trial court when it rendered its decision on Sweet City ’s motion f or

summary judg ment, such would not alter the outcome of this appeal.

14d e p e n d [in g] o n th e n a tu re o f th e lo c a l in te re st in v olv e d

, a nd o n wh e th e r it c o u ld

b e p ro m ote d a s we ll with a le sse r im p a c t o n in te rsta te a c tiv itie s.” Pik e , su pra

.

Th e tria l c o u rt e rre d in d e c lin in g to a p p ly th e Pik

e b a la n c in g te st, a n d th e c a se

m u st b e re m a nd e d fo r it to d o so

.

Ju d g m e n t r e v e r s e d a nd c a se re m a n d e d with d ire c tio n

. All th e Ju stic e s

c o n c u r.

De c id e d Ju n e 2 9 , 2 0 1 5

.

Co u nty o rd in a n c e

. Elb e rt S u p e rio r Co u rt. Be fo re Ju d g e Bo swe ll, S e n io r

Ju d g e

.

Brin so n Ask e w Be rry S e ig le r Ric h a rd so n & Da v is, A n se l F

. Be a c h a m II,

No rm an S

. F le tc h e r, Le e B. Ca rte r; Je n k in s & Bo we n, B ra n d o n L. Bo we n

,

Ro b e rt L. Wa lk e r; Billy I. Da u g h try

, Jr., fo r a

p p e lla n ts.

Ge o rg e E. Bu tle r II; S m ith

, W e lc h, We b b & Wh ite

, An d re w J. We lc h III,

La ju an a C. Ra n sa w, fo r a

p p e lle e s.

15