FOURTH D I VI SI ON

BA RNES, P. J.

, RA Y 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 l s .us /r ule s

Nov em ber 12, 2015



# I n th e Co u r t o f

A p p eals o f

G eo r g ia

A1 5 A1 12 8

. SCHICK v

. BOARD O F REGENTS OF T HE

UNIVERSITY SYSTEM OF GEORGIA.

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

Dav i d Sch ick ap p eal s fro m t h e fi n al o rd er o f t h e t r i a l co urt en t ered aft er a

b en ch t ri al o n h i s s u i t a g a i n s t t h e Bo ard o f Reg en ts o f t h e Un i v ers it y Sy s t em o f

Geo rg i a (“ Bo ard ”) s eek i n g in ju n ct i v e rel i ef, p en al ti es

, an d an award o f at t o rn ey fees

b as ed o n t h e al l eg ed fai l ure t o co m pl y wi t h t h e p ro vi s i o n s o f Geo rg i a’ s Op en Reco rd s

Act (“ A ct ”), OCGA § 5 0 -1 8 -7 0 e t s eq

., i n res p o n d i n g t o t w o o pen reco rd req u es t s

Sch ick su b m i t t ed to t h e Bo ard an d Geo rg i a Peri m et er Co l l eg e (“ GPC”) 1 i n J u l y 2 0 1 2.

1 GPC i s n o t a s ep arat e l eg al en t i ty fro m t h e Bo ard an d, acco rd i ng l y

, can n o t s u e

o r b e s u ed

. See Bd

. o f Reg en t s of t h e Un i v. S

ys

. o f Ga

. v. Do e

, 2 7 8 Ga. Ap p

. 8 7 8

, n

. 1

(6 3 0 SE2 d 8 5 ) (2 0 0 6 ).As m o re fu l l y s et fo rt h b el o w

, we n o w rev ers e th e t ri al co urt ’ s o rd er i n p art an d

rem an d fo r fu rt her p ro ceed i n gs co n s i s t en t wi t h t h i s o p i n io n

.

W e d eci d e t h e i s s u e s rai s ed i n t h i s ap p eal u n der t h e fo l l owi n g st an d ard o f

rev i ew.

In t h e ap p el l at e rev i ew o f a b en ch t ri al

, t hi s Co u rt wi l l n o t

s et a s i d e t h e t ri al co u rt ’ s fact u al fi n d i ng s u n l es s t hey are

cl earl y erro n eo u s, an d t h i s Co u rt p ro p erl y g i v es d ue

d eferen ce t o t h e o p p o rt u n i t y o f t he t ri al co u rt t o ju d g e th e

cred ib il i t y o f th e wi t n es s es

. Th e s t an dard b y wh ich

fi n d in gs o f fact are rev i ewed i s t h e “ an y ev i d en ce” ru l e,

u nd er wh i ch a fi n d i n g b y t h e t ri al co u rt s u p p o rt ed b y an y

ev i den ce m

u s t b e u p h el d

.

(Ci t at i o n s an d p u nct u at i o n om i t t ed .) Si n gh v. Ha m mo n d

, 2 9 2 Ga. 5 79

, 5 8 1 (2 ) (7 4 0

SE2 d 1 2 6) (2 0 1 3). H o wev er, we ap p l y a d e n ov o s tan d ard of rev i ew t o an y q u es t i on s

o f l aw d eci d ed b y t h e t r i a l co u rt

. M ema r v. Jeb r a ei l l i

, 3 0 3 G a. Ap p

. 5 5 7

, 5 5 8 (6 9 4

SE2 d 1 7 2) (2 0 1 0).

Vi ewed i n t h i s l i g h t

, t h e reco rd

, i ncl u d i n g th e t ri al t ran s cri p t s an d ex h i b i t s

,

s h o ws t h e fo l l o wi n g

. In M ay 2 0 1 2

, i nfo rm at i o n was di ss e m i n at ed t o th e p u b l i c

co n cern in g a $ 2 5 m i l l i o n bu d g et s h o rt fal l at GPC, wh i ch ap peared t o p reci p i t at e t h e

res i gn at io n o f GPC’ s pres i d en t an d t h e deci si on to lay -o ff 28 2 fu l l an d p art -t im e GPC

2facu l t y an d s t aff. On J ul y 1 6

, 2 0 1 2

, Sch i ck

, wh o at t h at t i m e was t h e ed i t o r-i n -ch i ef

o f GPC’ s s tu den t -ru n news p ap er, Th e Co l l eg ian

, s u b m i t t ed an op en reco rd s req u es t

t o GPC s eek i n g t h e p ro d u ct io n o f “ an y an d al l d o cu m en t s an d/ o r co m m u n i cat i o n,

i n cl u d i n g em ai l s, p ro d u ced d u ri n g t h e d eci s i on -m ak i n g p ro ces s o f th e 2 82 l ay o ffs at

[GPC] ” (“ J u l y 1 6 req ues t ”). On J u l y 1 9, 2 0 1 2

, Am an d a Red di ck

, GPC’ s Hu m an

Res ou rces D i rect o r fo r Affi rm at i v e A ct i o n Co m p l i an ce an d Op en Reco rd s

, i n fo rm ed

Sch ick t h at i t w o ul d co s t ap p ro x i m at el y $ 9 2 7.9 9 to s earch

, ret ri ev e, an d red act t h e

req u es t ed reco rd s

, an d th at sh e co ul d no t b eg i n p ro c e s s i n g h i s req u es t u n t i l an

o u t s t an d in g b al an ce fro m a p rev i o u s req u es t b y Th e Co l l eg i an had b een p ai d

. I t i s

u n d i s p u t ed t h at t h e es t i m at ed co s t s were n o t p ai d 2 an d t h at GPC n ev er p ro d u ced an y

d o cu m en t s i n res p o n s e t o t h e J u l y 1 6 req ues t

.

On J u l y 1 8

, 2 0 1 2

, Sch i ck s ub m i t t ed a d i fferen t o p en reco rd s req u es t t o t h e

Bo ard (“ J u l y 1 8 req u es t ” )

. T h e J u l y 1 8 req u es t co n t ai n ed 1 5 n um b ered i t em s

,

co n si s t i n g p ri m ari l y o f req u es t s fo r “ an y ” o r “ al l” c o m m u n icat i o n s b et ween o r to

v ari o u s Bo ard an d GPC em p l o y ees d uri n g a s p eci fi ed t i m e p eri o d

, wh i ch ran g ed fro m

2 Pu rs u an t t o OCGA § 5 0 -1 8 -7 1 (d ), an ag en cy m ay req u i re p rep ay m en t i f t h e

es t i m at ed co s t s fo r p ro d u ct io n o f t h e req u es t ed reco rd s ex ceed s $ 5 0 0

.

3a few m o n t h s t o ap p ro x i m at el y s i x y ears

. 3 T hat s am e d ay

, J o h n M i ll s ap s

, th e Bo ard ’ s

As s oci at e Vi c e C h an cel l o r fo r M ed i a an d Pu b l i cat i o n s, co n t act ed Sch i ck t o s eek

cl ari fi cat i o n co n cern i n g t h e req u es t ed d o cu m en t s an d to ex p res s h i s co n cern s ab o ut

t h e bread t h o f t h e req u es t an d th e t i m e an d co s t s as s o ci at ed w i t h res p o n di n g t o s u ch

a b ro ad req u es t

. Ho wev er, Sch i ck i n fo rm ed M il l s ap s t h at h e d i d n o t wi s h t o m o d i fy

o r n arro w h i s req u es t

.

On J u ly 2 3

, 2 0 1 2

, Bren da Trezv an t

, M il l s ap s ’ ad m i ni s t rat i v e as s is t an t

, n o t i fi ed

S c h i c k t h at i t wo u l d co s t ap p ro x i m at el y $ 2

, 5 3 6.2 9 t o fu l fi l l h is req ues t

, cau t i o n i n g

h i m t h at t h i s es t i m at e w as “ co ns erv at i v e.” Sh e al s o i n fo rm ed Sch ick t h at i t wo u l d t ak e

ap p ro x i m at el y

t w o week s t o s earch

, ret ri ev e, an d rev i ew t he d o cu m en t s res p o n s i v e

t o h i s req ues ts an d t h at h e need ed t o d irect cert ai n req u es t s t o GPC b ecau se t h e Bo ard

d i d n o t h av e em ai l acco u n t s fo r s o m e of t h e GPC s taff an d em pl o y ees l is ted i n t h e

r e q u es t s

. Sch i ck t es t i fi ed t h at h e was “ s h ock ed ” b y th i s es ti m at e, an d on Au g u s t 3,

2 0 1 2

, Sch i ck s en t T rezv an t an em ai l req u es t in g an i t em i zed l i s t o f co s t s

. Trezv an t

rep l i ed t h at s am e d ay wi t h a b reak d o wn

, wh i ch i n di cat ed t h at s o m e o f t h e co s t s were

as s o ci at ed wi t h rev i ew fo r “ ex t ract i o n becau s e of an op en i n v es t ig at i o n .” H o wev er,

3 Sch i ck al s o req u es t ed t h e m i n ut es fro m a m eet i n g h el d o n M ay 9

, 20 1 2

, an d

a s p eci fi ed Po w erPo i n t p res en tat i o n

.

4Trezv an t ’ s res p on se d i d n o t co n t ai n a ci tat i o n to an y s t at u t o ry ex em p t i o n wh i ch m i g ht

au t h o ri ze t h e Bo ard t o w i t hh o l d an y of t he req u es t ed d o cu m en t s

, as req u i red by

OCGA § 5 0 -1 8 -7 1 (d ).

Sch i ck co n t in ued t o q u es t i o n t h e accu racy o f th e co s t es t i m at e, an d t h e

Ex ecu t iv e Di rect o r o f t he n at i o n al St u d en t Pres s Law Cen t er s en t co rres p o n d en ce o n

h i s b eh al f req u es t i n g t h at t h e Bo ard reas ses s t h e co s ts as s oci at ed wi t h p ro d u ci n g t h e

req u es t ed d o cu m en t s

. Th e Bo ard ag reed t o el i m i n at e s o m e o f t h e rev i ew co s t s

, an d

o n Sep t e m

b e r 6

, 2 01 2

, t h e Bo ard n o t i fi ed Sch i ck t h at it h ad rev i s ed t h e es t i m at e

d o wn ward t o $1 88 2 .9 8

. Ho wev er, Sch i ck rem ai n ed co n v i n ced t h at t h e Bo ard ’ s co s t

es t i m at e was t o o h i g h

, an d o n S e p t e m b er 2 4

, 2 0 1 2

, h e s en t M il l sap s an em ai l

d i rect i n g h i m t o “ h o l d off” o n t h e J u l y 1 8 req u es t an d p ro ceed wi t h a n ew req u es t fo r

i n fo rm at i o n rel at ed t o t he cal cu l at i o n o f co s t s fo r p rev i o u s o p e n r e co rd s req u es t s

.

Ul t i m at el y , h o wev er, Sch i ck o bt ai n ed t h e as s i s t an ce o f h i s p res en t co u n sel t o as s i s t

h i m i n n eg o t i at i ng t h e co s t s

, an d o n Oct ob er 2 4

, 2 0 1 2, t h e Bo ard n o t ifi ed Sch i ck t h at

i t wo u l d el i m i n at e t h e rev i ew co s t s an d p ro d u ce t he r e qu es t ed m at eri al s fo r a t o t al

co s t o f $ 2 9 1

.

Th e Bo ard t h en b eg an t o ret ri ev e, rev i ew, an d red act t h e d o cu m en t s res p o n s i v e

t o t h e Ju l y 1 8 req u es t

. Becau s e o f t h e v o l u m e o f d o cu m en t s t hat were ret ri ev ed in

5res p o n s e t o Sch i ck ’ s req u es t

, t h e Bo ard deci d ed t o s et u p t h e rev i ew p r o c e s s o n a

“ ro ll i n g ” b as i s

. U n der th i s m et h o d

, t h e d o cu m en ts were p as s ed t h ro u g h t h e ch ai n o f

rev i ew in a p i ecem eal fas h i o n

, w i t h th e fi rs t p ers o n i n t he ch ai n p as s i n g al o n g

d o cu m en t s i n bat ch es as t hey co m p l et ed t h ei r rev i ew i n s t ead o f an y o n e p ers o n

rev i ewi n g t h e en t i re s et o f d ocu m en t s b efo re d el i v eri n g th em t o an o t h er p ers o n i n t h e

rev i ew pro ces s

. A cco rd i n g t o M i l l s ap s

, t h i s al l owed fo r an on -g o i n g

, an d p res u m ab l y

fas t er, p ro d u ct i o n o f d o cu m en t s t o Sch i ck

, al th o u g h th ere was a g reat er p o t en t i al fo r

d o cu m en t s t o b e m i s p l aced

. Fu rt h er, al t h o u g h i t ap p ears u n di s p u t ed t h at t h e p ri m ary

p u rp os e o f t h e rev i ew was t o red act p ro t ect ed i n fo rm at i o n an d to i d en t i fy d o cu m en t s

t h at were p o s s i b l y s u bject t o ex em p t i o n, t he B oa

r d c on t i n u ed t o rev i ew th e d o cu m en t s

wi t h o u t no t i fy in g Sch i ck o f an y s t at u t o ry o r o t h er b as is u p o n wh i ch t h ey were rel y i n g

t o wi t h h o l d d o cu m en t s fro m d i s cl o su re.

Th e fi rs t s et o f d o cu m en t s

, wh ich co n s i s t ed o f ap p ro x im at el y 3 6 5 1 p ag es

, was

p r o d u ced t o Sch i ck o n Decem b er 6

, 2 0 1 2

, an d t h e s eco n d set o f do cu m en t s w a s

p ro d uc e d t o S c h i ck o n Feb ru ary 2 2

, 2 0 1 3. At t h at p o i nt

, Sch ick had b een p ro v i d ed

wi t h ap p ro x i m at el y 12 ,1 95 p a g e s o f res po n s i v e d ocu m en t s

, an d M i ll s ap s n o t i fi ed

Sch ick t h at t h e Bo ard ’ s res po n s e t o h i s J u l y 1 8 req u es t was n o w co m p l et e an d s en t

h i m an i n v o i ce fo r t h e s earch an d ret ri ev al fees

. Ho w ev er, Sch i ck d id n o t b el i ev e t h at

6al l t h e d o cu m en t s res p o ns i v e t o h i s req u es t h ad b een p ro d uced

, an d h e co n t i n u ed to

co n tact t h e B o a rd an d M i l l sap s i n part icu l ar t o i n qu i re ab o u t t h e “ m i s s i n g ”

d o cu m en t s

. Al th ou g h M il l s ap s as s u red Sch i c k t h at t he Bo ard ’ s res p o n s e was

co m p l et e, o n J un e 1 0

, 2 0 13

, Sch i ck fi l ed t h e p res en t su i t ag ai n s t t h e Bo ard s eek i n g,

i n t er al i a, p ro d u ct io n o f an y d o cu m en t s res p on s i ve t o h i s req u es t t h at t he Bo ard h ad

n o t y et p ro du ced

. Th e Bo ard fi l ed an an s w er t o Sch i ck ’ s co m p l ai n t

, ci t i n g fo r t h e fi rs t

t i m e OCGA § 5 0 -1 8 -7 2

, an d i n p art i cu l ar OCGA § 5 0 -1 8-7 2 (a) (4 ), as t h e b as i s fo r

red act i ng o r wi t h ho ld i n g fro m d i s cl o s u re cert ai n o f t h e req ues t ed do cu m en t s

.

Ap p ro x i m at el y t wo m o nt hs lat e r

, o n A u g u s t 5

, 2 0 13

, t he Bo ard s en t Sch i ck a CD

co n tai n i n g 7 13 p ag es o f p rev i o us l y u n d i s cl o s ed d o cu m en t s

, w h i ch h ad recen t l y b een

d i s co v ered

.

Fo l l owi n g a th ree-d ay b en ch t ri al

, t h e t ri al co u rt en tered an ex t en s i v e o rd er

f i n d i n g

, am o n g o t h er t h i n g s

, 4 t h at t h e Bo ard h ad v i ol at ed t h e Act b y fai l i n g t o

d es i g n at e t h e s p eci fi c ex em p t i o n s u p o n w h i c h i t rel i ed i n wi t h h ol d i n g d o cu m en t s

fro m di s cl o s u re as req u i red by OCGA § 5 0 -1 8-7 1 (d ) an d a s s e s s e d a $ 1 0 0 0 ci v i l

p en al t y ag ai n s t t h e Bo ard b as ed o n t h i s v i o l at io n

. H o wev er, t h e t ri al co u rt wen t o n

4 T h e t ri al co u rt al s o fo un d t h at GPC h ad fai l ed to co m p l y wi t h th e A c t b y

fai l i n g t o p ro v i d e a t i m el i n e i n res p o ns e t o Sch i ck ’ s J u ly 1 6 req u es t

, b u t t h at p o rt i o n

o f t h e t ri al co u rt ’ s o rd er i s n o t at i s s u e i n t h is ap p eal

.

7t o fi n d th at t h e Bo ard was en ti t l ed t o w i t h h o l d d o cu m en t s u n d er OCGA § 5 0 -1 8 -7 2

(a) (4 ) an d co n d u ct ed an i n -cam era in s p ect io n t o d et erm i n e i f a n y res p o n s i v e

d o cu m en t s co nt in u ed to q u al ify fo r ex em p t i o n u nd er t h at s ect i o n

. Th e t ri al co u rt al s o

fo u n d t h at t h e Bo ard ’ s b el at ed p ro d u ct io n of th e 7 1 3 p ag es o f d o cu m en t s i n Au g u s t

2 0 1 3 was a v i o l at i o n o f t h e Act

, b u t d ecl i n ed t o award at to rn ey fees b as ed o n t h i s o r

an y o th er v i o l at io n. Sch i ck n o w ch al len g es t h e t ri al co u rt ’ s ord er t o th e ex ten t t h e t ri al

co u rt fo un d t hat t h e Bo ard was en t i t l ed t o wi t h ho l d cert ai n do cu m en t s u n d er OCGA

§ 5 0 -1 8 -7 2 (a) (4 ) an d b y fai li n g t o award h i m at t o rn ey fees

. A s m o re fu ll y s et fo rt h

b el o w, w e ag ree wi th Sch i ck t h at t h e t ri al co u rt erred b y fi n di n g t h at t h e OCGA § 5 0

-

1 8 -7 2 (a) (4 ) ap p l i es h ere an d

, i n l i g h t of t h i s h o l d i n g

, fi n d i t n eces s ary t o rem an d t h i s

cas e t o t he t ri al co u rt t o reco n s id er wh et h er Sch i ck i s en t it l ed t o an award o f at t o rn ey

fees u n d er OCGA § 5 0 -1 8 -7 3 (b ).

1

. In rel at ed arg u m en t s

, Sch i ck fi rs t co n t en d s t h e t ri al co u rt erred b y fi n d i n g

t h at t h e B o a r d w as en t i tl ed t o wi t hh o l d cert ai n res p on s i v e reco rd s fro m d i s cl o s u re

b as ed o n t h e “ p en d in g i n v es t i g at i o n ” ex em p t io n co n tai n ed in OCGA § 5 0 -1 8 -7 2 (a)

(4 ).

W e b eg i n o u r an al y s i s b y rev i ewi n g t h e s t at u t o r y f r a m ewo rk of t h e Op en

Reco rd s A ct

. Ou r Gen eral A s sem b l y h as ex p res s l y d ecl ared t h at “ p u b l ic acces s to

8p u b l i c reco rd s s h o u ld b e en co u rag ed t o fo s t er co n fi den ce in g o v ern m en t an d s o t h at

t h e p u b l i c can ev al uat e t h e ex p en d it u re o f p u bl i c fu n d s an d t h e effi ci en t an d p ro p er

fu n ct i o n i n g o f i ts i n s t i t u t i o ns .” OCGA 5 0 -1 8 -7 0 (a). To fu rt h er t h i s en d

, al l p u b l i c

reco rd s are d eem ed s ub

ject t o d i s cl o s u re, “ ex cep t t h o se wh i ch b y o rd er o f a co u rt o f

t h i s st at e o r b y l aw are s p eci fi cal l y ex em p t ed fro m di s cl o s ure.” O CGA § 5 0 -1 8 -7 1 (a).

Acco rd in g ly

, t he leg i s l at u re h as fu rt h er di rect ed t h at t h e Act b e “ b ro ad l y co n s t ru ed

t o al l o w t h e in s pect i o n o f g o v ern m en t reco rd s ,” OCGA § 5 0

- 1 8 -7 0 (a), wh i l e t h e

ex cep t i o n s t o d i s cl o s u re “ s h al l b e i n t erp ret ed n arro w l y t o ex cl u d e o nl y t ho s e p o rt i on s

o f reco rd s ad d res s ed by s u ch ex cep t i o n .” Id

. ; s ee al s o OCGA § 5 0 -1 8 -7 1 (a); Ci t y of

At l a n t a v. Co r ey En t er t a i n men t , In c. , 2 78 Ga. 4 7 4, 4 7 6 (1 ) (6 04 SE2 d 1 4 0 ) (2 0 0 4 ).

Th e Act i s d es i g n ed t o m ak e t h e p ro du ct i o n o f reco rd s ex p e d i t i o u s, an d t h e

res p o n d in g ag en cy 5 i s req u i red t o p ro d u ce al l reco rd s res po n s i v e t o th e req u es t wi t h in

a r e a s o n ab l e am o u n t o f t i m e, “ n o t t o ex ceed th ree b us i n es s day s o f recei p t o f a

req u es t .” OCGA § 5 0 -1 8 -7 1 (b ) (1 ) (A). An d i f an y

, o r a n y p a r t

, o f t he req u es t ed

reco rd s are w i th h el d fro m d i s cl o s u re, “ t h e ag en cy s h al l n o ti fy th e req u es t er o f t h e

s p eci fi c l eg al au th o ri ty ex em p ti n g t h e req u es t ed reco rd o r reco rd s fro m d i s cl o s u re by

5 “ Ag en cy ” an d “ p u b l i c reco rd ” as us ed i n t h e Act are d efi n ed i n O CGA § 5 0

-

1 8 -7 0 (b ) (1 ) an d (2 ), res p ect i v el y

.

9Co d e s ect i o n

, su b s ect i on

, an d parag rap h w i t hi n a reas o nab l e am o u n t of t i m e n o t to

ex ceed t h ree b us i n es s d ay s . . .” OCGA § 5 0 -1 8-7 1 (d ).

Th e ex em p t i on at i s s u e in t h i s cas e i s co n t ai n ed i n s u b s ect i o n OCGA § 5 0 -1 8

-

7 2 (a) (4 ), 6 an d ex em

p ts :

Reco r d s o f l a w en f o r cemen t

, p r os ecu t i o n

, o r reg u l at o r y a g en ci es i n a ny

p en d i n g i n ves t i

g a t i o n o r p r o secu t i o n o

f cr i mi n al o r u nl awf

u l a ct i vi t y,

o t h e r th an i ni t i al po l i ce arres t rep o rt s an d i n i t i al i n ci d en t rep o rt s ;

p ro v i d ed

, h owev er, t h at an i nv es t ig at io n o r pro s ecu t io n s h al l no l o ng er

b e d eem ed t o b e p e n d i n g wh en al l d i rect l i t i g at i o n i n v o lv i n g s u ch

i n v es t i gat i o n an d p ro s ecu t i o n h as b eco m e fi n al o r o t h erwi s e t erm i n at ed ;

an d p ro v i d ed

, fu rt h er, t h at th i s p arag rap h s h a l l n o t ap pl y t o reco rd s i n

t h e p os ses s i o n o f an ag en cy th at i s t h e s u b ject of t h e p en d i n g

i n v es t i gat i o n o r p ro s ecu t i o n [.]

(Em p h as i s s u p p l i ed .) In i t s o rd er, t h e t r i al co u rt q u es t i on ed wh et h er t h e Bo ard fi t s

wi t h i n th e d efi n it i o n o f “ l aw en fo rcem en t

, p ro s ecu t i o n

, or reg u l at ory ” ag en cy

, b ut

6 W e no t e t h at aft er Sch i ck fi l ed h i s co m p l ai nt

, t he Bo ard al s o i n v o k e d t h e

ex em p t i o n s et o u t i n OCGA § 5 0 -1 8 -7 2 (a) (8 ), wh ich ex em pt s reco rd s o b t ai n ed in

i n v es t i g at i o n s rel at ed t o t h e s u s p en s i o n

, fi ri n g o r i n ves t i g at i o n o f co m p l ai nt s ag ai n s t

p u b l i c em p l o y ees

, b u t h e d o es n o t ap p ear t o ch al len g e t h e Bo ard ’ s ri g h t t o i n v o k e t h at

ex cep t i o n

. Li k ewi se, al t h ou gh t h e Bo ard s t at es in i ts b ri ef i n s u p p ort o f i t s m o t i o n fo r

s u m m ary ju d gm en t t h at “ a few d o cu m en t s were wi t h h el d p u rs u an t t o th e ex em p t i on s

co n tai n ed i n OCGA § 5 0 -1 8 -7 2 (a) (1 1 ) an d (2 0 ),” wh i ch pert ai n

, r e sp ect i v el y

, to

reco rd s co n t ai n i n g cert ai n em p l o y m en t i n fo rm at i o n a nd pe r so n al i n fo rm at i o n

, Sch i ck

d o es no t ch al l en ge t h e Bo ard ’ s fai l u re t o d i scl o s e b as ed o n t h os e ex cep t i o n s

.

10wen t o n t o h o l d “ t h at b ecau s e o f th e Bo ard ’ s u n i qu e s i t u at io n an d wi s e u s e o f

res o u rces

, t h e Bo ard m ay av ai l i t s el f o f th e e x e m p t i o n

– at leas t as l on g as t h e

i n v es t i g at i o n s at i s s u e rem ai n p en d i n g .” On ap p eal

, th e Bo ard ap p ears t o ab an d o n an y

arg u m en t t h at i t sh o ul d b e cl as s i fi ed as a l aw en fo rcem en t, p ro s ecu t o ri al or reg u l at o ry

ag en cy

, 7 co n t en di ng in s tead t h at t h e Bo ard i s en t i t l ed t o i n v o k e t h e ex em p t i o n wh en

i t h as “ g at hered an d / o r creat ed ” d o cu m en t s t h at are part o f an i n v e s t i g at i o n t h at

i n v o l v es cri m in a l c o n d u ct

. T h u s

, t h e Bo ard arg u es

, “ as l o ng as [i t ] as sert s t h e

ex em p t i o n o n l y wi t h reg ard t o d o cu m en t s rel at i n g t o a n o n g o i n g cri m i n al

i n v es t i g at i o n i n wh i ch t h e Bo ard i s wo r ki n g i n co o

p er at i o n wi t h a ‘l a w en

f o r cemen t

a g en cy, ’ t h e ex em

p ti on s h o u ld ap p l y t o an y d o cu m en t s i n th e Bo ard ’ s cu s t o d y wh i l e

t h e cri m i n al i n v es t i g at io n i s p en d in g .” (Em p h as i s s u p p l i ed .)

Acco rd i ng l y

, we t u rn fi rs t t o t h e t ex t o f OCGA § 5 0 -1 8 -7 2 (a) (4 ) t o d et erm i n e

i t s s co pe.

W h en we co n s i d er t he m ean i ng of a s t at u t e, we m u s t p res u m e t h at th e

Gen eral As s em

b l y m ean t w h a t i t s ai d an d s ai d wh at i t m ean t

. To t hat

7 A l t h o u g h we w i l l c o n fi n e o u rs el ves t o t h e i s s u es b ri efed b y t h e p art i es

, we

n o t e t h at u n d er a s i m i l ar s t at u te, OCGA § 5 0 -1 4-1 et seq

., o u r Su p rem e Co u rt h as

h el d t h at a co ro n er is n o t a l aw en fo rcem en t ag en cy as t h a t t erm i s u s ed i n t h e

“ ex cl u d ed p ro ceed i n g s ” pro v i s i o n o f Geo rg i a’ s Op en M eet in g s Act

. Ki l g o r e v. R. W

. Pa g e Co rp

. , 2 6 1 Ga. 4 10 , 4 1 1 (2 ) (4 0 5 SE2 d 6 5 5) (1 99 1 ); OCGA § 5 0 -1 4-3

.

11en d

, we m u s t affo rd t he s t at u t o ry t ex t it s p l ai n an d o rd i n ary m ean in g

, we

m u s t v i ew t h e s t at u t o ry t ex t i n t he co n t ex t i n wh i ch i t ap p ears

, an d we

m u s t read t h e s t at u t o ry t ex t i n i t s m os t n at u ral an d reas on ab l e way

, as an

o rd i nary s p eak er of t h e En g l i s h l an g u ag e. Ap p l y i n g t h es e p ri n ci p l es

, i f

t h e s t at u t o ry tex t i s cl ear an d u n am b i g u ou s

, we at tri b u t e t o t he s t at u t e i t s

p l ai n m ean i n g , an d o u r s earch fo r s tat u to ry m ean i ng i s at an en d

.

(Ci t at i o n s an d p u n ct u a t i o n o m i t t ed .) Dea l v. Co lema n

, 2 9 4 Ga. 1 7 0

, 1 7 2 -7 3 (1 ) (a)

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

Th ere ap p ears t o b e n ot h i n g am b i gu o u s

, an d t h e B o a r d do es n o t s u g g es t

o t h erwi s e, ab o u t t he p h ras e “ reco rd s o f” as u s ed in s u b s ect i on (a) (4 ). Bu t t h e Bo ard ’ s

read i n g o f t h e s t at u te req u i res u s t o ch an g e t h e o b v i o u s m e a n in g o f “ reco rd s o f” to

a m o re ex p an s i v e “ reco rd s co m p il ed o r creat ed i n co n n ect i o n w it h,” or “ reco rd s

rel at ed or p ert ai n i ng to ,” i n s t ead o f wh at t h e s tat u te say s

. “ [A] s t at u te s h o u l d b e read

acco rd i n g t o i t s n a t u ral an d m o s t o b v i o u s i m p o rt of t h e l an g u ag e wi t h o u t res o rt i n g

t o su b t l e an d fo rced co n s t ru ct i o n s fo r t h e p u rp o s e o f ei t h er l i m i t i n g o r ex t en d i n g i t s

o p erat i o n .” (Ci t at i o n s an d p u n ct u at i on o m i t t ed .) La kevi ew B e h a v i o r a l Hea l t h Sys

.,

LLC v. UHS Pea ch

f o r d

, LP, 3 2 1 Ga. A p p

. 8 2 0

, 8 2 2 ( 1 ) (7 4 3 SE2 d 4 9 2) (2 0 1 3 ).

Go r do n v. At l a n t a C

a s

. C o

. , 27 9 Ga. 1 4 8, 14 9 (6 1 1 SE2 d 2 4 ) (2 00 5 ) (we s h o u ld

12n ev er “ by co n s t ru ct io n ad d to

, t ak e fro m

, o r v ary t h e m ean in g o f u n am b i g u ou s wo rd s

i n t he s t at u t e”).

Fu r t h e r

, t he Bo ard ’ s co n s t ru ct i o n i g n o res t h at t h e l eg i s l at u re al s o en act ed a

s ep arat e ex em

p t i o n ap p l i c a b l e t o “ reco rd s co mp i l ed fo r l a w en f o r cemen t o r

p r o s ec u t i o n p u r

p o s es .” 8 (Em

p h as i s s u p p l i ed .) OCGA § 5 0 -1 8 -7 2 (a) (3 ). Th u s

,

read i n g t h es e s u bs ect i o n s , wh i ch ap p ear i n t h e s am e co d e s ect io n an d co n cern v ery

s i m i l ar s u b

ject m at t er, i n p a ri m at eri a, i t i s cl ear t h at t he l eg i s l at u re i nt en d ed to

p ro v id e fo r t wo d i fferen t ex em p t io n s rel at ed g en eral l y t o l aw en fo rcem en t o r

p ro s ecu ti o n act i vi t i es : o n e t h at b ro ad l y ap p l i es t o an y pu b l i c ag en cy b u t li m i t s t h e

ex em p t i o n t o i n v es t i g at iv e o r p ro s ecu to ri al d o cu m en t s “ t o t h e ex t en t ” t h o s e

d o cu m e n t s m e e t o t h er cri t eri a (s u b s ect i o n (a) (3 )) an d o n e t h at ap p l i es t o o n l y

s p eci fi ed p u bl i c ag en ci es b u t i n cl u d es a b ro ad er cat eg o ry of d o cu m en t s (s u b s ect i o n

(a) (4 )). “ [I] n p art i cu l ar, s t at u t es ‘ i n p ari m at eri a’

, i

. e., s t at ut es rel a t i n g t o t h e s am e

s u b ject m at t er, m

us t b e co n s t ru ed t o g et her.” (Ci t at i o n an d p u n ct u at io n o m i t ted ). U.S

.

8 It d o es n o t ap p ear t h at t h e B o a r d h a s as s ert ed t hat an y o f t h e d o cu m en t s at

i s su e wo u l d b e ex em

p t u n d er s u b s ect i o n (a) (3 ), wh i ch i s l i m i t ed t o d o cu m en t s t h at

are “ reas o n ab ly l i k el y t o di scl o s e t h e i den t i t y of a co n fi den t i al s o urce, d i s cl o s e

co n fi d en t i al i n v es t i g at iv e o r pro s ecu t i o n m at eri al wh i ch wo u l d en d an ger t h e l i fe o r

p h y s i cal s afet y o f an y p ers on o r p ers o n s

, o r d i scl o s e t he ex i s t en ce o f a co n fi d en t i al

s u rv ei l l an ce o r i nv es t i g at io n[.] ” OCGA § 5 0 -1 8 -7 2 (a) (3 ).

13Ba n k N. A. v. Go r do n

, 2 8 9 Ga. 1 2

, 1 5 (4 ) (7 0 9 SE2 d 2 5 8 ) (2 0 1 1 ). As a fu n d am en t al

p r i n c i p l e o f s t at u to ry co n s t ru ct i o n

, we “ en d eav o r t o gi v e each p art o f th e s t at u t e

m ean i n g an d a vo i d co n s tru ct io n s t h at m ak e s o m e lan g u ag e m ere s u rp l u s ag e o r

m ean i n g l es s .” Ai mwel l

, In c. v. McLen d

o n En ter p r i s es

, In c., 3 1 8 Ga. Ap p . 3 9 4 , 3 9 7

(1 ) (7 3 4 SE2 d 84 ) (2 0 1 2 ). M o reo v er, “ co u rt s sh o u l d al way s s tri v e t o g i v e effect t o t h e

p u rp os e an d i n t en t o f t h e l eg i sl at u re,” Pa r ker v. Lee

, 2 5 9 Ga. 1 9 5

, 1 9 8 (4 ) (3 7 8 SE2 d

6 7 7 ) (1 9 8 9 ), an d t h i s i s part i cu l arl y t ru e “ i n th e i n s ta n t cas e, [wh ere] we h av e a

s p eci fi c ad m o ni ti o n b y t h e G en eral A s s em b l y t o co n s t ru e O CGA § 5 0 -1 8 -7 2 (a) (4 )

n arro wl y .” Id

. In d eed

, o ur Su p rem e Co u rt h as st at ed t h at “ a n y p u rp o rt ed ex em

p t i o n

fro m d i s cl o s ure u n d er t h e O pe n Reco rd s A ct m u s t b e n arro wl y co n s t ru ed .” (Em p h as i s

i n o ri g i n al .) H

a r d a wa y Co

. v. R i ves

, 26 2 G a. 6 31

, 6 34 (2 ) (4 2 2 SE2 d 8 5 4 ) (1 9 9 2 ). See

al s o Bd

. o f Reg en t s of th e Un i v. S

ys

. o f Ga

. v. At l an t a Jo u r n a l & Co n s t., 2 5 9 Ga. 2 1 4,

2 1 5 (2 ) (3 7 8 SE2 d 30 5 ) (1 9 8 9 ). Th e Bo ard ’ s ex p an s i ve read i n g o f t h e OCGA § 5 0

-

1 8 -7 2 (a) (4 ) i s d i rect ly co n t rary t o t h i s d irect i v e an d co n t rav en es th e l eg i sl at i v e i n t en t

as ex p res s ed i n t h e Act th at i t s h o u l d b e co n s t ru ed in fav o r, n o t ag ai n s t

, d i s cl o s ure. 9

9 Al t ho u g h t h e Bo ard ci t es t h e n eed t o pro t ect p ri v acy i n t eres t s an d t h e i n t eg ri t y

o f cri m in al i n v es t i g at i o n s as co m p el l i n g reas on s t o ad o p t t h e Bo ard ’ s co n s tru ct i o n o f

t h e s t at u t e, t h e Bo ard i g n o res th at t h e l eg is l at u re h as al read y ad d res s ed t h es e co n cern s

b y en act i n g OCGA § § 5 0 -1 8 -7 2 (a) (3 ) an d (a) (8 ). Mo reo v er, ev en if we reco g n i zed

t h e s al u t ary effect o f t h e Bo ard ’ s co n s t ru ct i on

, we d o no t h av e t h e au t h o ri t y to rewri t e

14Fo r al l t h es e r e a s o n s, we co n cl u d e t h at t h e t ri al co urt erred by fi n d i n g t h e

Bo ard co u l d rel y on t h e ex em p t i o n fro m d i s cl o su re co n t ai n ed i n OCGA § 5 0 -1 8 -7 2

(a) (4 ) t o wi t h h o l d cert ai n req u es t ed reco rd s

. 1 0 A cco rd i n g l y

, we rev ers e t h e h o l d i n g

o f t h e t ri al co u rt an d rem an d wi t h d i rect i on t h at t h e Bo ard d i s cl o s e al l reco rd s t h at i t

co n ti n u es t o wi t h ho l d s o l el y o n t h e b as i s o f ex em p t i o n co n t ai n ed i n OCGA § 5 0 -1 8

-

7 2 (a) (4 ). Ho wev er, we wo u l d al s o m ak e cl ear th at t h e t ri al co u rt m ay co n d u ct fu rt h er

i n -cam era p ro ce e d i n g s to d et erm i n e i f an y o f t h e wi t h h el d reco rd s m ay b e ex em pt

fro m d i s cl o s u re u nd er an o t h er p ro v i s i o n o f t h e Act i n v o k ed b y t h e Bo ard

.

2

. Sch i ck a l so arg u es t h at t he t ri al co urt erred b y refu s i ng t o award at t o rn ey

f e e s p u rs u an t t o OCGA § 5 0-1 8 -7 3 (b ) b as ed o n t h e Bo ard ’ s m u lt i pl e vi o l at i o n s o f

t h e A c t

, w h i ch h e co n t en d s were wi t h o u t s u b s t an t ial ju s t i fi cat i on

. Th at s ect i o n

p ro v id es :

In an y act i o n b ro u g h t t o en fo rce th e p ro v i s io n s o f t h i s ch ap t er i n wh ich

t h e co u rt d et erm i nes th at ei t h er p art y act ed wi t h o ut s u b s t an t i al

ju s t i fi cat i o n ei t h er i n n o t co m p l y i n g wi t h t h i s ch ap t er o r i n i n s t i t u t i n g

t h e s t at u t e. S t a te v. Fi el d

en , 2 80 Ga. 4 4 4 , 4 4 8 (6 2 9 SE2 d 2 5 2) (2 00 6 ).

1 0 W e d o n ot k n o w t h e ex act n u m b e r o f d o cu m en ts t h at were ori g i n al l y o r

co n ti n u e t o b e wi t h hel d

, al t ho u g h t h e t ri al co u rt in d i cat ed t h at m o s t of t h e req u es t ed

d o cu m en t s h av e, o r w o ul d b e d i s cl os ed b e c a u s e t h e i n v es t i g at io n s were n o l o n g er

“ p en d i n g .”

15t h e l i t i g at i o n

, t h e co u rt s h al l

, u n les s it fi nd s t hat s p eci al ci rcu m s tan ces

ex i s t, as ses s i n fav o r o f t h e co m p l ai n i n g part y reas o n ab l e at t o rn ey ’ s fees

an d o th er l i t i g at i o n co s t s reas o n ab l y i n cu rred

. W het h er th e po s it i o n o f

t h e co m p l ai n in g p art y w as s u b s t an ti al l y ju s ti fi ed s h al l b e d et erm i n ed o n

t h e b as i s o f t he reco rd as a wh o l e w h i ch i s m ad e i n t h e p ro ceed i n g fo r

wh i ch fees an d o t h er ex p en s es are s o u g ht

.

Al t h ou g h th e t ri a l co urt h as d et erm i n ed t h at t h e Bo ard v io l at ed s ev eral

p ro v is i o n s o f t h e Act i n res p o n d i n g t o Sch ick ’ s J u l y 1 8 r e q u es t

, Sch i ck i s o n l y

en t i t l ed t o at t o rn ey fees i f h e al s o s h ows t h at t h e Bo ard ’ s fai l u re t o co m p l y wi t h t h e

A c t w as wi t h o u t su b s t an t ial ju s t i fi cat i on

. W a ll a ce v. Gr een Co un t

y

, 27 4 Ga. Ap p

.

7 7 6

, 78 1 (2 ) (6 18 SE2 d 6 4 2 ) (2 00 5 ) (“ i f a v i o lat i o n o f th e [Act ] di d in fact occu r, [t h e

p l ai n t i ff] m

u s t s h ow t h at t he [res p o n d i n g ag en cy ] l ack i n g su b s t an t i al j u s t i fi cat i o n fo r

t h e v io l at i o n ”) (ci t at i o n an d p un ct u at i o n o m i t t ed ). Sch ick co n t en d s o n ap peal t h at t h e

t ri al co u rt erred b y fi n d i ng t h at t h e Bo ard ’ s l at e p ro d u ct io n o f cert ai n d o cu m en t s was

s u b s t an t i al l y ju st i fi ed

, p o i n t i n g o u t t h at t h e Bo ard fai l ed t o sh o w ex act l y wh y o r

wh ere t h o s e d o cu m en t s wen t m i s s i n g o r an y o f t h e ci rcu m s t an ces s u rro u n d i n g t h ei r

d i s co v ery

. Bu t t h e s t at ut e d i rect s t h at t he i s s u e o f s u bs t an ti al ju st ifi cat i o n “ b e

d et erm i n ed o n t h e b as i s o f t h e reco rd as a wh o le.” OCGA § 5 0 -1 8 -7 3 (b ).

16Here, t h e t ri al co urt

, fo l l o wi n g a t h ree-d ay b en ch t ri al

, n o t ed t h at t h e l a t e

p ro d uct i o n co n s i s t ed o f l es s t h an si x p ercen t o f t h e t o tal n u m b er o f reco rd s p ro d u ced

an d d et erm i ned t h at t h ere was n o ev i d en ce t h es e d o cu m e n t s w e r e s in g l ed o u t fo r

d el ay or o t h erwi s e i n t en t i o n a l l y wi t h h el d

. Fu rt h er, t h e ev i d en ce s u p po rt s t h e t ri al

co u rt ’ s fi n d i n g s t h at t h e m em b ers o f t h e Bo ard an d em

p l o y ees wh o were i nv o l v ed in

t h e rev i ew pro ces s wo rk ed d i l i g en t l y t o fu l fi l l Sch ick ’ s req u es t an d t h at t h ey wo rk ed

n i g h t s o r d u ri n g t h e ho l i d ay s as n eces s ary i n o rd er t o m eet t hei r n o rm al wo rk

res p o n s i b i l i t ies an d res p on d ex p ed i t i o u sl y t o Sch i ck ’ s req u es t

. In l i g ht of t h is an d t h e

o t h er s u rro u n d i n g ci rcu m st an ces , we fi n d t h at t h ere was am p l e ev i d en ce t o s u p p o rt

t h e t ri al co u rt ’ s fact u al fi n di n g s an d t h u s t h e t ri al co u rt d i d n o t ab us e i t s d i s cret i o n in

refu si n g t o award Sch i ck at t o rn ey fees b as ed o n t h e Bo ard ’s b e l a t ed p ro d u ct i o n o f

7 1 3 p ag es o f reco rd s

. Ever et t v. Ra s t

, 2 72 Ga. Ap p. 63 6

, 6 3 6 (6 1 2 SE2 d 9 25 ) (2 0 0 5 )

(“ [t ] h e s t an d ard of ap p el l at e rev i ew i s wh et h er t h e t ri al co u rt ab u sed i t s d i s cret i o n in

fai l i n g t o award at t o rn ey

fees an d ex p en s es o f l i t i g at i o n”).

Ho wev er, t h at d o es n o t en d o u r co n s i d erat i o n o f t h e at t orn ey fees i s s ue.

Becau s e we hav e d et erm i n ed t h a t t h e t ri al co u rt erred b y al l o wi n g t h e Bo ard to

wi t h h o l d d o cu m en t s un d er t h e ex em pt i o n co nt ai n ed i n OCGA § 5 0-1 8 -7 2 (a) (4 ), we

m u st al s o rem an d t h i s cas e fo r t h e t ri al co u rt t o co n s i d er wh et h e r Sch i ck i s en t i t l ed

17t o at t o rn ey fees b as ed o n t h e Bo ard ’ s fai l ure t o d i scl o s e cert ai n do cu m en t s b as ed o n

t h at ex em p t i o n

. 1 1

Ju d g men t a f f i r med i n p a r t

, r ever s ed i n p a r t a n d ca s e r ema n d ed wi t h d i r ect i o n.

Ba r nes , P. J., a n d

Ra y, J., co n cu r

.

1 1 Ag ai n

, h o wev er, w e st res s t h at t he Bo ard h as al s o in v o k ed o t h er ex em p t i o n s

,

an d Sch i ck wo u l d n ot b e en t i t l ed t o at t o rn ey fees bas ed o n t h e fai lu re t o d i s cl o s e an y

d o cu m en t s t h at were p ro p erl y wi t h h el d p u rs u an t t o o th er ex em p t i o n s

.

18