SECOND DI VI SI ON

A NDREWS, P. J.

, M C F A D DEN and RA

Y, JJ.

N O T IC E : M otions for r e c ons i de r a tion m us t be

ph y sic a l ly r e ce iv ed i n our c le r k ’s offic e w ithin te n

da y s of the da te of de c is ion to be de e m ed tim e ly file d.

http://w w w .ga a ppe a ls .us /r ule s /

M ar ch 25, 2015



# I n th e Co u r t o f

A p p eals o f

G eo r g ia

A1 4 A2 08 6 . W Y

NO et al . v . LOW

NDES COUNTY etal

.

M C F A D D E N , J u d g e.

M i s t y W y n o was at t ack ed an d k i l l ed b y her n ei gh b ors ’ d o g

. H e r husba n d

, J as o n

W y n o , act i n g i n di v i d u al l y an d as ad m i ni s t rat o r o f M rs

. W y n o ’ s es tat e, b ro u g h t t h i s

act i on ag ai n s t t h e d o g ’ s o wn ers an d ag ai n s t s ev eral g o v ern m en t al d efen d an t s

–

Lo wn d es Co u n t y an d fo u r i nd i v i d u al co un t y em pl o y ees as so ci at ed wi th t h e co u n t y ’ s

an i m al co n t ro l s erv ices

– wh o h e al l eg ed h ad fai led t o res p o n d ap p ro pri at el y t o earl i er

co m p l ai n t s ab o u t t h e do g

. Th e t ri al co u rt d i s m is s ed th e act io n ag ai n s t t h e co u n t y an d

t h e em p l o y ees fo r fai l u re to s t at e a cl ai m

, co n cl u di n g t h at s ov erei g n an d o ffi c i a l

i m m u ni t y o r, al t ern at i v el y

, t h e Res p o n s i bl e Do g Own ers h i p Law, OCGA § § 4 -8 -2 0,

et s eq

., b arred t h e act i o n ag ai ns t t h o s e d efen d an t s

. Th e t ri al co u rt di d n ot di s m i s s t h eact i on ag ai n s t t h e d o g ’ s own ers

, b u t h e d i d en ter a fi nal ju d g m en t un d er OCGA § 9

-

1 1 -5 4 (b ) i n fav o r o f t h e g o v ern m en t al d efen d an t s , an d W y n o fi l ed a d i rect ap p eal

.

As d et ai l ed b el o w, w e affi rm t h e di s m i s s al o f t h e act i o n ag ai n s t t h e co u n t y an d

i t s em p l o y ees in t hei r offi ci al cap aci t ies p u rs uan t t o t h e v e rs i o n o f t h e Res p o n s i b l e

Do g O wn ers h ip Law t h en i n effect

, fo rm er O CGA § 4 -8 -3 0 (2 0 12 ). As t o t h e act i o n

ag ai n s t t h e em

p l o y ees in t hei r i n d i v i d u al cap aci ti es

, h owev er, we can n o t affi rm

. Th e

em pl o y ees are n ot en t it l ed t o d is m i s s al o n o ffi ci al i m m u n i t y g ro u n d s at t h i s s t ag e o f

t h e p ro ceed i n g s

. An d as t o th e Res p o n s i b l e Do g Own ers hi p Law, W y n o h as arg u ed

b o t h b el o w an d on ap p eal t h at t h e s t at u t e co n t rav en es Ga. Co n s t

. o f 19 8 3

, A rt

. I, Sec.

II, Par. IX (d ), w h ich g o v ern s t h e o ffi ci al i m m u n i t y o f em

pl o y ees s ued i n t h ei r

i n d i v i d u al cap aci t ies

. Al t h o u g h t h e t ri al co u rt i m p l i ci t l y reject ed W y n o ’ s

co n st i t u t io n al ch al l en g e, we can n o t rev i ew t h at ru l i n g b ecau s e t he tri al co u rt d i d n ot

m ak e i t ex p res s l y

. Acco rd in g l y

, as to t h e em p l o y ees i n t h ei r i n di v i d u al cap aci t i es

, we

rev ers e t h e ju d g m en t an d rem an d t h e cas e fo r t h e t ri al co u rt to en t er an ex p res s ru l i n g

o n t h e co n st i t u t io nal ch al l en ge an d fo r o t h er p ro ceed in g s co n s i st en t h erewi t h

.

1

. Fa ct s a l l eg ed i n co m p l a i n t a n d s ta n d

a r d o f r evi ew.

A m o t i on t o d i s m i ss fo r fai l u re t o s t at e a cl ai m u p o n w h i ch rel i ef m ay b e

g ran t ed

2s h o u l d n o t b e s u st ai n ed u n l es s i t ap p ears t o a cert ai n t y t hat t h e p l ai n ti ff

wo u ld b e en ti t led t o n o rel i ef u n der an y s t at e o f fact s wh i c h c o u l d be

p r o v ed i n s u pp o rt of h i s cl ai m

. If, wi t h i n t h e fram ewo rk o f t h e

co m p lai n t

, ev i d en ce m ay b e i n t ro d u ced wh i ch wi l l s u s tai n a g ran t o f

rel i ef t o t h e p l ai n ti ff, t h e co m p l ai n t i s s u ffi ci en t

.

Au s ti n v. Cl a r

k , 2 9 4 Ga. 7 7 3 , 7 7 5 (7 5 5 SE2 d 7 9 6 ) (2 0 1 4 ) (ci t at i o n o m i t t ed ).

Co n st ru ed in fav o r o f W y n o

, t h e c o m pl ai n t al l eg ed t h at th e n ei g h b o rs ’ d o g

at t ack ed M rs

. W y n o o n Decem ber 8

, 2 0 11

, as s h e was ret u rn i n g t o h er res i den ce fro m

t h e n ei g hb o rs ’ h om e. M rs

. W y n o s u s t a i n e d f at al in ju ri es

. Prev i o us l y

, nu m ero u s

co m p l ai n t s ab o u t do g s at t h e n ei g h b ors ’ res i d en ce h ad b een l od g ed wi t h t he co u n t y

a n d t h e co u n t y ’ s an i m al co n t ro l s erv i ces

. Th es e i ncl u d ed co m p l ai nt s t h at t h e d o g s

were u n res t rai n ed an d “ h ab i t ual l y l o o s e,” t hat t h ey g ro wl e d a n d l u ng ed at ch i l d ren

an d ad u l ts

, t h at a d o g ch as ed s o m e ch il d ren

, an d t h at a do g b i t a ch il d i n t h e face.

Th ree o f t h e i n d i v i d u a l d efen d an t s

– an i m al co n tro l o ffi cers fo r th e co u n t y

–

res p o n d ed t o t h es e v ari ou s co m p lai n t s b u t t o ok no act i on o t h er t h an ret u rn i n g t h e

d o g s t o th ei r own ers

. In d o i n g s o, Wyn o a l leg ed

, t h es e an i m al co n t ro l o ffi cers

“ n eg l i g en t l y fai l ed t o p erfo rm m i n is t eri al d u t ies u n d er Geo rg i a l aws

, c o u n t y

o rd i n an ces

, in t ern al po l i ci es

, an d o t h e r du t ies .” W y n o al l eg ed t h at t h e o t h er

i n d i v i d u a l d e f

e n d an t

– t h e d irect or an d m an ag er of t h e co un t y ’ s an i m al s h el t er an d

3s u p erv i s o r o f t h e an i m al co n tro l o ffi cers

– d i d n o t req u ire t h e an im al co n t ro l o ffi cers

t o p erfo rm t h ei r d u t i es

, an d t h at t h i s i n d i v i d u al an d t h e co u n t y g en eral l y fai l ed to

ad eq uat el y h i re, t rai n

, an d s u p er v i s e t h e an i m al co n t ro l o ffi cers

. Th e fai l ure o f t h e

co u nt y an d i t s em

p l o y ees t o t ak e ap p ro p ri at e act i o n i n r e s p o n s e t o th e co m p l ai nt s

,

al l eg ed W y n o

, was m al i ci o u s an d cau s ed t h e at t ack ag ai ns t M rs

. W y no an d h er d eat h.

Th e t ri al co u rt d is m i s s ed W y n o ’ s act i o n ag ai ns t t h e co u n t y a n d t h e co u n t y

em pl o y ees fo r fai l u re t o s t at e a cl ai m

. Th e t ri al co u rt h el d t h at s ov erei g n i m m u n i t y

b arred t h e act i o n ag ai n s t t h e co u n t y

, o ffi ci al i m m u ni t y b arred t h e act i o n ag ai n s t t h e

co u nt y em

p l o y ees

, an d

, al t ern at i v el y

, t h e Res p o n s i b l e Do g Own ers hi p Law an d

p art i cu l arl y t h e p ro v i s i on s o f fo rm er OCGA § 4 -8 -3 0 (2 0 12 ) b arred t h e act i o n ag ai n s t

al l o f t h e g o vern m en t al d efen d an t s

.

2

. Act i o n a g a i n s t

co u n t y a n d emp l o yees i n t h ei r

o f f i ci a l ca p aci t i es

.

Th e t ri al co u rt d i d n ot err i n d i sm i s s i n g t h e act i o n ag ai ns t t h e co u nt y an d i t s

em pl o y ees i n t hei r o ffi ci al cap aci t i es

, b ecau se fo rm er OCGA § 4-8 -3 0 (2 0 1 2 ) b ars t h e

act i on

. Th e v ers i o n o f OCGA § 4 -8 -3 0 effect i v e at t h e t i m e o f t h e at tack i n Decem b er

2 0 1 1 1 p ro v i d ed :

1 Th e p res en t v ers io n o f t h e co n t ro l l i n g l an g u ag e i s at OCGA § 4 0 -8 -3 1

.

4I t i s t h e i n t en t o f t h e Gen eral As sem b l y t h at t h e own er of a d an g ero u s

d o g or p o t en t i al l y d an g ero u s d o g sh al l be s o l el y l i ab l e fo r an y i n ju ry t o

o r d eat h o f a p ers on cau s ed b y s u ch d o g. Un der n o ci rcu m s t an ces sh al l

a l o cal g o vern m en t or an y em p l oy ee o r o ffi ci al o f a l o cal g o v ern m en t

wh i ch en fo rces or fai l s t o en fo rce t h e p ro v i si o n s of t h i s art i cl e

[reg ard i n g d an g ero u s d o g co n t ro l ] b e h el d l i ab le fo r an y dam ag es t o an y

p ers on wh o s u ffers an i n

ju ry i n fl i ct ed b y a d o g t h at h as b een i d en t i fi ed

as b ei n g a d an g ero u s d o g o r p o t en t i al l y d an gero u s d o g o r b y a d o g t hat

h as b een rep o rt ed t o t h e p ro p er au t h o ri ti es as b ei ng a d an g ero u s d o g o r

p o t en t i al l y d an g ero us d o g o r b y a d o g th at a l o cal g o v ern m en t h as fai led

t o i d en t i fy as a d an gero u s d o g or p o t en t i al l y d an g ero u s do g o r b y a d o g

wh i ch h as b een i d en t i fi ed as b ei n g a d a n g ero u s d og o r p ot en t i al l y

d an g ero u s d o g b u t h as n o t b een k ep t o r res t rai n ed i n t h e m an n er

d es cri b e d i n s u b s ect i o n (b ) o f Co de Sect i o n 4 -8 -2 5 o r b y a d an g ero u s

d o g o r po t en t i al l y d an g ero u s do g w h o se own er has n o t m a i n t a i n ed

i n s u ran ce co v erag e o r a s u r e t y bo n d as req u ired i n s u b s ect i o n (c) o f

Co d e Sect i o n 4 -8 -2 5

.

Fo rm er OCGA § 4-8 -3 0 (2 0 1 2 ).

W y n o arg u es th at fo rm er OCGA § 4 -8 -3 0 (2 0 1 2 ) d o es n ot b a r hi s act i o n

b ecau s e h e b as es h i s cl ai m s o n t h e d efen d an t s ’ fai l u re t o en fo rce a l o cal do g co n tro l

o rd i n an ce i n ad di t i o n to t h e s t at e d o g co n t ro l s t at u t e. W e d i s ag ree, h o wev er, wi th

W y n o ’ s co n ten t i o n t hat “ OCGA § 4 -3 -3 0

, b y i t s own t erm s

, o n l y ap p li es t o cl ai m s fo r

‘ fai l in g t o en fo rce t he p ro v i s i on s o f t h i s art i cl e,’ i .e. th e s t at e d an g ero u s d o g s t at u t e.”

5Th e ex p res s l an g uag e o f t h e co d e s ect i o n p ro v i d es i m m u n i t y t o l o cal g ov ern m en t s

an d t h ei r em

pl o y ees an d o ffi ci al s fro m l i ab i l i t y fo r al l i n ju ri es i n fl i ct ed by d an g ero u s

o r p o t en t i al l y d an g ero u s d o g s

. It s referen ce t o t h e en fo rcem en t o f “ t h i s art i cl e” i s u s ed

t o d es cri b e t he l o cal g o v ern m en t s

, em pl o y ees

, an d o ffi ci al s en t i t l ed t o i m m u n i t y ; in

o t h er wo rd s

, t he co d e s e ct i o n ap p l i es t o t h os e l o cal go v ern m en t s

, em p l o y ees an d

o ffi ci al s “ wh ich en fo rce[ ] o r fai l [ ] t o en fo rce t h e p ro vi s i o n s o f t h i s art i cl e [t h e co d e

s ect i on ’ s p ro v i s i o n s r e l a t e d t o d an g ero u s d og co n t ro l] .” Fo rm er OCGA § 4 -8 -3 0

(2 0 1 2 )

. We d o no t read t h at referen ce t o l i m i t i m m u n i ty i n cas es t h at al s o i n v o l v e

l o cal d o g co n t ro l o rd i n an ces

, b ecau s e t h e co de s ect i o n co n t ai n s no s u ch l i m i t at i o n

an d t o l im i t i m

m u n i t y w o u l d g o ag ai n st t h e Gen eral As s em b ly ’ s ex pres s l y s t at ed

i n t en t “ th at t h e o wn er o f a d an g ero u s d o g o r po t en ti al l y d an g ero u s d o g s h al l b e s o l el y

l i ab l e fo r an y i n

j u ry o r d eat h o f a p ers o n cau s ed b y s u ch d o g .” Fo rm er OCGA § 4 -8

-

3 0 (2 0 12 ) (em

p has i s s u p p li ed ). See Ea r ly v. E a r l y

, 26 9 Ga. 4 1 5

, 4 16 (4 99 SE2 d 3 2 9 )

(1 9 9 8) (“ In co n s t ru in g a s tat u t e, t h e d et erm i ni n g fact o r i s t h e i n t en t o f t h e l eg i s l at u re

an d we l o o k fi rs t t o t h e wo rd s o f t he st at u t e t o d et erm i n e wh at t hat i n t en t was an d i f

t h o s e wo rd s b e p l ai n an d u n am b i g u o u s an d t h e i nt en t m ay cl earl y g at h ered t h erefro m

,

we n eed l o o k n o fu rt h er i n d et erm i n i n g wh at t h at i n t en t was .”) (ci t at i o n an d

p u n ct u at i o n o m it t ed ).

6W y n o p urp o rt s t o ch al l en g e t h e co ns t i t u t i o n al i t y o f fo rm er OCGA § 4 -8 -3 0

(2 0 1 2) as co n t rav en i n g Ga. Co n s t

. o f 1 9 8 3

, Art

. I., Sec. II, Par. I X ( d )

, wh i ch

co n cern s t h e o ffi ci al i m

m u n i t y affo rd ed t o p u b l ic em p l oy ees i n t h ei r i n d i v i d u al

cap aci t i es

. See g en eral ly Au s t i n

, 2 9 4 Ga. at 7 7 4 & n

. 2 (Geo rg i a ’s c o n s t i t u t i o n

co n tai n s t h e d o ct ri n e o f o ffi ci al i m m u n i t y

, wh i ch “ p ro vi des th at wh i l e a p u b l i c o ffi cer

o r em p l o y ee m ay b e pers o n al l y l i ab le fo r h i s neg l i g en t m i n i s t eri al act s

, h e m a y n o t

b e h el d l i ab l e fo r h i s d is cret i o n ary act s u n l es s s u ch act s are wi l fu l

, wan t o n

, o r o u t s i d e

t h e s co pe of his a

uthor ity ” ) (ci t at i o n o m i t t ed ). Th at co n s t i t ut i o nal p ro v i s i o n

, h o wev er,

d o es n o t ap p l y t o W y n o ’ s act i o n ag ai n s t t h e co u nt y o r i t s em p l o y ees i n t h ei r o ffi ci al

cap aci t i es

. See Ha r r

y v. Gl yn n Co un t

y

, 2 6 9 Ga. 5 0 3

, 5 0 3 (1 ) (5 0 1 SE2 d 1 9 6 ) (1 9 9 8 )

(co u n t i es are en t i t l ed t o so v erei g n i m m u n it y u n der G a. Co n s t

. o f 1 9 8 3, Art

. I, Sec. II,

Par. IX); W

en d el ken v. JENK LLC

, 2 9 1 Ga. Ap p

. 3 0 , 3 2 (2 ) (6 6 1 SE2 d 1 5 2 ) (2 0 0 8 )

(p u b li c em

p l oy ees s u ed i n t h ei r o ffi ci al cap aci t i es are entitle d t o sove r e i g n im m u n it y ).

Becau s e fo rm er OCGA § 4 -8 -3 0 (2 0 1 2 ) bars t h e act i o n ag ai n s t t h e co u n t y an d

i t s em p l o y ees in t hei r o ffi ci al cap aci t i es , we affi rm t h e t ri al co urt ’ s d i s m i s s al o f t h e

act i on ag ai n s t t h em

. C o n s e q u en tl y

, we n eed n o t ad d res s W y n o ’ s cl ai m s o f erro r

reg ard i n g t h e tri al co u rt ’ s al t e r n a t i v e g ro un d o f d i s m i s s in g t h e act i o n o n so v erei g n

i m m u ni t y

.

73

. Act i o n a g a i n s t emp l oyees i n t hei r

i nd i vi d u a l ca p a ci t i es

.

(a) Of f i ci al i mmu n i t

y.

Th e t ri al co u rt erred i n di s m is s i n g t h e act i on ag ai n s t t h e em p l oy ees i n t h ei r

i n d i v i d u al cap aci t i es b as ed o n offi ci al i m m u n i t y

. Am o n g o t h er t h in g s

, W y n o al l eg ed

t h a t t h e em

p l o y ees “ n eg l i g en t l y fai l ed t o p erfo rm m i n i s teri al d ut i es u n d er Geo rg i a

l aws

, co un ty o rd i n an ces

, [an d ] i n t ern al p ol i ci es [,] ” p ro x im at el y cau si n g M rs

. W y n o ’ s

d eat h . Th at al l eg at i o n i s s u ffi ci en t t o s t at e a cl ai m b ecau s e,

[a] t t h i s t i m e, i t can n o t b e s ai d t hat t h e al l eg a t i o n s of t he co m p l ai n t

d i s cl o s e wi t h cert ai n t y t h at [W y n o] wo u l d n o t b e en t i t led t o rel i ef u nd er

a n y s t at e o f p ro v ab l e fact s as s e r t ed in s u p p ort

. Fo r ex am pl e, t h ere

co n cei v ab l y co u l d b e ev i d en ce o f so m e ex p l i ci t d et ai l ed l au n d ry li s t o f

d i s c ret e t as ks each i n d i v i d u al [an i m al co nt ro l o ffi cer] w as req ui re d t o

p erfo rm [wh en faced wi t h a co m p l ai n t ab ou t a do g ]

. At t h i s s t ag e i n th e

l i t ig at io n

, i t d oes n o t m at t er [wh et h er o r n o t] t h e ex i s t en ce of s u c h a

l au n dry l i st i s u n l i k el y

. . . . Th is i s fact u al ev i den ce wh i ch m ay o r m ay

n o t b e d ev el o p ed d u ri n g di s co ver y a n d can b e co n s i d ered o n a

s u b s eq u en t m o t i o n fo r s u m m ary j u d gm en t. As th e reco rd s t an ds

,

h o wev er, t h e t ri al co urt im p ro p erl y g ran t ed t h e in d i v i du al d efen d an t s ’

m o t i o n t o d i s m i s s [o n o ffi ci al i m m u n i t y g ro u n d s ]

.

Au s ti n , 2 9 4 Ga. at 7 7 5 (ci tat i o n o m i t t ed ; em p h as i s i n o ri g i nal ).

(b ) Res p o ns i b l e Do g

Own er s h i p La w.

8Th e t ri al co u rt al s o d i s m i s s ed t he act i o n ag ai n s t th e em p l o y ees i n t h ei r

i n d i v i d u al cap aci t i es b as ed o n t h e Res p o n si bl e Do g Own ers hi p Law, fo rm er OCGA

§ 4 -8 -3 0 (2 0 1 2 ). W y n o arg u es

, h o wev er, t h at fo rm er OCGA § 4 -8 -3 0 (2 0 1 2 ) i s

i n co n s i s t en t wi t h Geo rg i a’ s co ns t i tu t i o n al p ro v i s io n t h at

al l o ffi c e r s a n d em

p l oy ees o f t h e s t at e o r i t s dep art m en t s an d ag en ci es

m ay b e s u b

ject t o su i t an d m ay b e l i ab l e fo r i n ju ri es an d d am ag es cau s ed

b y t h e n eg l i g en t p erfo rm a n c e o f, o r neg l i g en t fai l ure t o p erfo rm

, t h ei r

m i n i s t eri al fu n ct i on s an d m ay b e l i ab l e fo r i nju ri es an d d am ag es if t h ey

act w i t h act ual m al i ce o r wi th ac t u al i n t en t t o cau se i n ju ry i n th e

p erfo rm an ce o f t h ei r o ffi ci al fu n ct i o n s.

Ga. Co n s t

. o f 1 9 8 3, Art

. I, Sec. II, Par. IX (d ). Un d er W y no ’ s rat i o n al e, t o t h e ex t en t

fo rm er OCGA § 4 -8 -3 0 (2 0 1 2 ) b ars act i o n s ag ai n s t th e em p l o y ees in t h ei r i n d i v i d u al

cap aci t i es th at o t h erwi s e w o ul d b e p erm i t ted b y th i s co n s ti t ut i o n al p ro v i s i o n

, t h e

s t at u te i s u nco n s ti t u t i o n al

. Al t h o u g h W y n o rai s ed th i s co n s t i t u t io n al ch al l en g e i n h i s

res p o n s e t o t h e d efen d an t s ’ m ot i o n t o d i s m i s s

, t h e t ri al co u rt d id n o t s peci fi cal l y o r

d i rect l y pas s on t h e co n s t i tu t i o n al i ss u e i n h i s o rd er. Co n s eq u en tl y

, we can n o t rev i ew

t h at i s s u e o n ap p eal

. See Ci t y o f Deca t u r v. DeKa l b Co u n t y

, 2 8 4 Ga. 4 3 4

, 4 3 6 -4 3 8

(1 ), (2 ) (6 6 8 SE2 d 2 4 7 ) (2 0 0 8 ).

9Nev ert h el es s

, by ap p ly i n g fo rm er O CGA § 4 -8 -3 0 (2 0 1 2) t o d i sm i s s t he act i o n

ag ai n s t t h e em

p l o y ees i n t hei r i n d i v i d u al cap aci t ies

, t he t ri al co u rt i m p l i ci t l y reject ed

t h e co n st i t u t i on al ch al l en g e t o th e s t at u t e. W e t h erefo re rev ers e t h at p art o f t h e o rd er

d i s m i s s i n g t h e act i o n ag ai n s t th e em p l o y ees i n t h ei r i n d iv i d u al cap aci t i es an d rem an d

t h i s cas e t o t he t ri al co u rt fo r t h at co u rt to en t er a ru l in g s p eci fi cal l y an d d i rect l y

p as s i n g o n t h e co ns t it u t i o n al ch al l en g e an d fo r fu rt her p ro ceed i n g s co n s i s t en t

t h erewi t h

. See S t a

f f o r d v. Br ya n Co u n t

y

, 3 1 2 Ga. Ap p

. 5 3 3

, 5 3 4 (7 1 8 SE2 d 8 3 2 )

(2 0 1 1); Bu ch a n v. Ho b b

y , 2 8 8 Ga. Ap p . 4 7 8 , 4 8 0 (6 5 4 SE2 d 4 4 4) (2 00 7 ).

Ju d g men t af fi r med i n p a r t a n d r ever s ed i n p a r t

, an d ca se r ema n d

ed wi th

d i r ect i o n. An d

r ews , P. J., a n d Ra

y, J., co n cu r

.

10