THI RD DI VI SI ON

ELLI NGTON, P. J.

, BETHEL, J.

, and SENI OR A PPELLA T E JUDGE PHI PPS

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

June 1, 2018



# I n th e Co u r t o f

A p p eals o f

G eo r g ia

A1 8 A0 24 0

. C&M E NTERPRISES OF GEORGIA, L LC v

. W ILLIAM S.

E LLI N G T O N , Pres i d i n g J ud g e.

In M arch 2 01 6

, M ark W i l l i am s

, a c t i n g as t h e Co m m i s s i o n er o f th e Geo rg i a

Dep art m en t of Nat u ral Res o u rces an d t h e Ch ai rm an of t h e C o a s t al M ars h l an d s

Pro t ect i on Co m

m it t ee, d et erm i ned th at a p o rt i o n o f a b u l k h ead o n ri verfro nt p ro p ert y

i n Bry an Co u n t y o wn ed b y C&M En t erp ri s es o f Geo rg i a, LLC, was i l leg al l y l o cat ed

i n a p ro t ect ed es t u ari n e area of m ars h l an d s wi th in th e Dep ar t m e n t ’s ju ri s d i ct i o n.

Bas ed o n t hi s d et erm i n at i o n

, W i l l i am s i s s ued an o rd er d i rect i n g C&M to rem o v e t h e

s t ru ct u re. C&M fi l ed an ap peal fro m th e o rd er t o t he O ffi ce o f St at e Ad m in i s t rat i v e

Heari n g s

, an d b o th p art ies fi le d m o t io n s fo r s u m m ary d et erm i n at i o n

. 1 An

1 S e e O C G A § § 1 2 -5 -2 8 3 (b ) (ri g h t o f an y p ers o n wh o is ag g ri ev ed o r ad v ers el y

affect ed b y an y ord er o r act i o n o f t h e Co as tal M ars h l an d s Pro t ect i o n Co m m i t tee t o rev i ewad m i n is t rat i v e l aw ju d g e g ran t ed W i l l i am s ’ m ot i o n fo r s u m m ary d et erm i n at i o n an d

d en ied C&M ’ s m o t i o n

. C&M ap p eal ed t o t h e s u p eri o r co u rt

, wh i ch al s o affi rm ed

. 2

W e g ran t ed C&M ’ s ap p li cat i o n fo r d is cret i o nary ap p eal

, an d i t c o n t en d s t h at

W i ll i am s arb i t rari ly an d cap ri ci o u s l y fai l ed t o ap p l y t h e ag en cy ’ s s t an d ard p o l i cy to

d et erm i n e t h e b o u n d ary

b et ween C&M ’ s p ro pert y an d p ro t ect ed m ars h l an ds wi t h in

t h e Dep art m en t ’ s ju ri s d i ct i on

. 3 Fo r t he reas o n s ex p l ai n ed b el o w, we affi rm

.

Del i nea t i n g a Ju ri s d i ct i o n a l Li n e. By way o f b ack g ro u nd

, we n o te t h at t h e

Co as t al M ars h l an d s Pro tect i o n Act o f 1 9 7 0

, OCGA § § 1 2 -5 -2 8 0 t h ro u g h 1 2 -5 -2 9 7,

was en act ed t o reg u l at e s t ru ct u res an d act i v i ti es i n Geo rg i a’ s co as t al m ars h l an d s “ to

b y an ad m i n i s t rat iv e law ju d g e ap p o i n t ed b y t h e Bo ard o f N at u ral Res o u rces

, up o n p et i ti o n

wi t h i n 3 0 d a ys a ft er t h e i s su an ce o f s u ch o rd er o r t h e t ak in g o f s u ch act i o n); 5 0 -1 3 -2 0 .1

an d 5 0 -1 3 -4 1 (h eari n g i n a co nt es t ed ad m in i s t rat iv e cas e t h at i s n o t p res i d ed o v er b y t h e

ag en cy h ead o r b o ard o r b o dy wh i ch i s t h e ul ti m at e d eci s io n m ak er to b e co n d u ct ed b y an

ad m i ni s trat i v e l aw ju d g e o f t h e Offi ce o f St at e Ad m i n i s trat i v e Heari ng s ).

2 Se e O C G A § § 1 2 -5 -2 8 3 (b ) (ju d i ci al rev i ew o f an ad m i n i s t rat iv e l aw ju d g e’ s

d eci s i o n i n a co n t es t ed cas e u n d er t h e Co as t al M ars hl an d s Pro tect i o n Act o f 19 7 0 ); 5 0 -1 3

-

1 9 ( j u d i c i a l rev iew o f a fi n al ag en cy d eci s i o n i n a co nt es t ed cas e u n d er t h e Geo rg i a

Ad m i n i s t rat i v e Pro ced u res Act

, OCGA § § 5 0 -1 3 -1 t h ro ug h 5 0 -1 3 -2 3

, up o n req u es t wi th i n

3 0 d ay s aft er t h e s erv i ce of t h e fi n al d eci s i o n o f t h e ag en cy o r, i f a reh eari n g i s req u es t ed

, wi t h i n 3 0 d ay s aft er t he d eci s io n t h ereo n ).

3 See OCGA § § 5

- 6

- 3 5 ( a ) (1 ) (ap p l i cat i o n fo r d is cret i o n ary ap p eal req u i red t o

ap p eal fro m a d eci s i o n o f a s t at e ag en cy ); 5 0 -1 3 -2 0 (rev i ew o f a f i n a l j u d gm en t o f t h e

s u p eri o r co u rt u n d er t he u n d er t h e Geo rg i a Ad m i n i s t rat i v e Pro ced u re Act ).

2en s u re t h at t h e v al u e an d fu nct i o n s o f th e co as t al m ars h l an d s are n o t i m p ai red an d to

fu l fi l l t h e res p o n s ib i l i t i es o f each g en erat i o n as p u b l ic t ru s t ees o f t he co as t al

m a r shla nds f or suc c e e ding ge ne r a tions .” O CGA § 1 2 -5 -2 8 1

. M ars h l an d s i ncl u d e “ a ny

m ars h l an d i n t ert i d al are a

, m u d fl at

, t i d al wat er b o tt o m

, o r s al t m ars h in th e St at e o f

G e o r g i a wi t h i n t h e es t u ari n e area o f t h e s t at e,” w h et h er t i d ewat ers reach t h e area

“ t h ro u g h n at ural o r art i fi ci al wat erco u rs es .” OCGA § 12 -5 -2 8 2 (3 ). Th e Act p ro v i d es :

No p ers o n s h al l rem o v e, fi l l

, d red g e, d rai n

, o r o t h erwi s e al t er an y

m ars h l an d s or co n s t ru ct o r l o cat e a n y s t r u ct u re o n o r o v er m ars hl an d s

i n t h i s s t at e wi t h in t h e es t u ari n e area t hereo f wi t h o u t fi rs t o b t ai n in g a

p e r m i t fro m t h e co m

m i t t ee o r, in th e cas e o f m i no r al terat i o n o f

m ars h l an d s , t h e co m

m i s si o n er.

OCGA § 1 2 -5 -2 86 (a) (1 ). See C o a s t a l Ma r s h l a n d s Pr o t ect i o n Co mmi t t ee v.

Al t a ma ha Ri ver keep er

, In c.

, 31 5 Ga. Ap p

. 5 1 0

, 51 0 -5 1 1 (7 2 6 SE2 d 5 3 9 ) (2 0 1 2 ) (“ [A]

p art y s eek i n g t o b u i l d a s t ru ct u re o v er an y m ars h lan d i n Geo rg i a m

us t fi rs t o b t ai n a

p erm i t fro m

t h e Co m m i t t ee.”) (ci t at i o n o m i t t ed ).

Th e Act p ro v i d es th at t h e Dep art m en t o f Nat u ral Res o u rces h as t h e au t h o ri t y

,

i n t er al i a, “ t o d et erm i n e j u ri s d i ct i o n u n d er [t h e A ct ]

. ” OCGA § 12 -5 -2 8 4 (a) (1 ). See

Cen ter f o r a S us t ai n a b l e C o a s t v. Co a s t a l Ma rs h l a n d s Pr o tect i o n Co mm.

, 2 8 4 Ga.

7 3 6

, 7 4 1 (2 ) (6 7 0 SE2 d 4 2 9 ) (2 0 0 8 ). Th e Dep art m en t t as k s it s Co as t al Res o u rces

Di v is i o n (“ CRD”) wi t h m ark i n g t h e b ou n d ary l i n es of m ars h l an d s w i t h i n t h e

3ju ri s d i ct i o n of th e Dep art m en t fo r p erm i t t i n g an d en fo rcem en t u n d er t he Act

. A CRD

s t aff m em b er m ark s a ju ri s d i ct i o n al b o u n d ary li n e, k n own as a “ J D li n e,” o n s i t e wi th

fl ag g i n g tap e an d / o r n u m

b ered fl ag s s t ak ed i n t o t h e g ro un d t o d el in eat e t h e b o u n d ary

b et ween m ars h l an d s wi t h in t h e es tu ari n e area (s u b ject t o r e g u l at i o n u n d er t h e Act )

an d u p l an d s (n o t reg u l at ed u n d er t h e Act ). 4 Drawi n g a J D li n e is n o t an ex act s ci en ce,

an d th es e l i n es o ft en are no t s t rai g h t becau s e t hey t r a c k t h e co n t o u rs o f t h e

m ars h l an d s -u p l an d s i n t erface.

A m ark ed J D l in e al l o w s a p ro p ert y o wn er t o s ee wh et h er an y p ro p o s ed

co n st ru ct i o n wi l l en cro ach o n m ars h l an d s

, t h at i s

, wh et her t he act iv i t y wi l l al t er t h e

m ars h l an d s o r p lace a s tru ct u re o n t h e area s eaward o f t h e J D l i n e. If th e p ro p o s ed

act i vi t y i s occu rri n g en t i rel y l an d ward o f t h e J D l i n e, n o perm it wi l l be req u i red

.

Co n v ers el y

, i f t h e p ro p o sed act i v i t y wi l l en cro ach o n j u ri s d i ct i o nal m ars h l an d s, a

p erm i t fro m

CRD wi l l b e req u ired

.

I f t h e l an d o wn er s eek s a p erm i t fro m CRD fo r act i v i ty t h at wi ll en cro ach o n

ju ri s d i ct i o n al m ars h l an d s

, t h e l an d o wn er i s req u i red t o s u b m i t a su rv ey p rep ared by

a reg i s t ered s u rv ey o r t h at s h o w s t h e J D l i n e d el i neat ed b y CRD s t aff. On ce CRD

ap p ro v es a s u rv ey co n t ai n i n g a d el i n eat ed J D l i ne, t he l in e b eco m es t h e “ J D l i n e o f

4 Th es e fact s , d rawn fro m t h e reco rd , are u n d i s p u t ed u n l es s o th erwi se n o t ed

.

4reco rd ” an d rem ai n s i n effect fo r o n e y ear o r t h ro u g h o u t a p erm i t ap p ro v al p ro ces s

,

u n l es s CRD del in eat es a rev i sed J D l i n e b as ed o n n ew i n fo rm at i o n t hat t h e prev i o u s l y

fl ag g ed J D l i n e o f reco rd i s n o l o n g er co rrect

.

I f C R D l e a rn s t h at a l an d o wn er wh o d i d n o t fi rs t o b t ai n a p erm i t i s p o s s i b l y

v i o l at i n g t h e Act b y f

i l l i n g

, d red g i n g

, o r o t h erwi s e al t eri n g an y m ars h l an d s o r

b u i l d i n g a s t ru ct u re o v er an y m ars h l an d s, CRD fi rs t ch eck s wh et h er th ere i s a J D l i n e

o f reco rd fo r th e p r o p e rt y

. If t h ere i s a J D li n e o f reco rd

, i t wi l l b e u s ed i n an y

en f o r c e m e n t a c ti o n

. If t h ere i s n o t a J D l i n e o f reco rd fo r t h e p ro p ert y

, CRD wi l l

d el i n eat e a J D li n e as i t wo u l d i n t h e p erm i t ti n g co n t ex t

, t h at i s

, th e J D l i n e s h o u l d b e

es t ab l i s h ed acco rd i n g to t h e co n d i ti o n s t hat ex i s t ed b efo re t h e u n au t h o ri zed act i v i t y

.

Dep en d i n g o n t h e nat u re an d ex ten t o f co n st r u c t i o n o ccu rri ng b efo re a CRD

en fo rcem en t s it e v i s i t, i t m ay n o t b e p o s s i b l e b as ed o n t h e u s u al in d i cat o rs fo r CRD

t o d et erm i n e t h e J D l i n e p reci s el y as i t wo u l d h av e b een b efo re t h e lan d o wn er

d i s t u r bed t h e l an d

. In s u ch a cas e, CRD wi l l rel y o n o th er fi el d-b as ed ev id en ce to

d et erm i n e t h e JD l i n e at th e t im e o f t he un au th o ri zed act iv i t y

. Acco rd i ng t o Karl

Bu rg es s

, wh o w as t h en t h e Pro g ram M an ag er fo r CRD’ s M ars h an d Sh o re

M an ag em en t Pro g ram

, s u ch fi el d -b as ed ev i d en ce m ay i n cl u de ex am i n i n g co re

s am p l es o r d i g g in g fo r bu ri ed p l a n t s

. Acco rd in g t o St u art Sl i g h, an en v i ro n m en t al

5co n su l t an t wo r k i n g f o r C&M

, DNR m ay al so co n s i der h i st o ri cal p h ot o grap h s an d

GPS-b as ed m ap p in g s u rv ey s

.

C& M’s Fi r st Rep l a cemen t

Bu l kh ea d o n t h e S

a ll et te Tr act

. In Feb ru ary 2 0 0 8,

C&M acq u i red a 3 .8 4 acre p arcel k n o wn as “ t h e Sal l et t e Tract ” al on g t h e b an k o f t h e

Og eech ee Ri v er. At t he t i m e, t h ere was a co n cret e bo at ram p an d a wo o d en b u l k h ead

al o n g t h e ri v erb an k

. In Ap ri l 20 0 8

, wi t h o u t s eek i n g a p er m i t u n d er th e Act

, C&M

rem o v ed t h e b o at ram

p o n t he wes t ern s id e o f th e p ro p ert y

, rem o v ed t h e eas t ern

p o rt i on of t h e fo rm er wo o d en b u l k h ead

, an d ex cav at ed u pl an d s ap p ro xi m at el y ei g ht

t o t en feet i n l an d fro m t h e ri verb an k on t h e eas t ern p ort i on o f t h e p ro p ert y

. C&M t h en

b eg an co n s t ru ct i o n o f a co n cret e b u l k h ead t o rep l ace t h e wo o den b u l k h ead

. CRD

recei v ed a rep o r t o f t h i s act i v i t y

, an d CRD s t aff co nd u ct ed a s i t e v i si t o n Ap ri l 1 5,

2 0 0 8

. A t t h a t t i m e, t h ere was n o JD l in e o f reco rd i n CRD’ s fi l es d el i n eat i n g t h e

m ars h l an d s fo r t h e Sal l et t e Tract

. CRD s t aff d el i n eat ed a J D l i n e an d fl ag g ed t h e

p ro p ert y o n Ap ri l 1 7, 20 0 8

. Th e J D l i ne fl ag g ed b y CRD w as g en eral l y a s t rai g h t l i ne,

ex cep t i n t h e area o f t h e fo rm er b o at ram p wh ere t h e l i n e m ad e a jo g i n l an d aro u n d

t h e fo rm er l o cat io n o f th e b oat ram p

, s uch t h at th e area wh ere t h e b o at ram p h ad b een

was i n cl u d ed i n ju ri sd i ct io n al (p ro t ect ed ) wat ers

. CRD det erm in ed th at fo o t ers fo r t h e

n ew b u l kh ead h ad b een in s tal l ed i n th e m ars h an d t h at m ars hl an d s were b ei n g

6d red g ed an d fi l l ed w i t ho u t au t h o ri zat i on fro m CRD. CRD is s u ed a ceas e-an d -d es i s t

l et t er an d a No t i ce of Vi o l at i o n t o Ti m o th y M ars hl i ck

, t h e s o le m em b er an d o wn er

o f C&M

, req u es t ed a t i m e l i n e fo r rem ov i n g th e u n au t h o ri ze d s t r uct u res

, an d

s ch ed u l ed an en fo rcem en t co nferen ce fo r t h e fo l l o wi ng week

.

In No v em ber 2 0 0 8, CRD i s su ed a s eco nd No t i ce of V io l at i o n. Th e n o ti ce s t at ed

t h at CRD wo u ld rem ark t h e Ap ri l 2 0 08 J D l i n e an d d i rect ed C& M t o h av e i t s

s u rv ey o r re-s t ak e t he Ap ri l 2 0 08 J D l i n e, t o s ub m i t a s u r v e y s h o wi n g t h e J D l i n e

b as ed o n t h e s t ak es

, an d t o p ro v i d e a w ri t t en p l an fo r rem o vi n g t h e u n au t h o ri zed

s t ru ct u res

. Th e n o t i ce ex p res s l y ad v i s ed C&M t hat i f i t wi sh ed t o fi l l i n t he o l d b o at

r a m p an d cl o s e i ts seaward en t ran ce wi t h a b u l k h ead

, a p erm i t w o u l d be req u i r e d

.

C&M fi l ed t h e s u rv ey as d irect ed

. Aft er s ev eral week s o f n e g o t i at i o n s b et w een t h e

p art i es

, C&M ag reed t o rem o v e t h e rep lacem e n t b u l k h ead an d res t o re t h e affect ed

wat er bo t t o m s

, an d t h e p a r t i es en t ered i n to a co n sen t ag reem en t in J an uary 2 0 0 9.

CRD co n fi rm ed C&M ’ s co m p l i an ce wi t h t he co n s en t o rd er i n a l et t er d at ed M arch

1 0 , 2 0 0 9

.

C& M’s S eco n d Rep l a cemen t Bu l

kh ea d o n t h e S

a l let t e Tr a ct

. In M arch 2 0 0 9,

C&M

, wi thout f

ir st r e que st i n g t hat CRD re-d el i neat e t h e m ars hl an d s b ou n d ary

, b eg an

co n st ru ct i o n o f a s eco n d rep lac e m e n t bulkhe a d. C&M ex cav at ed u pl an d s ev en fu rt h er

7i n l an d b y ap p ro x i m at el y fi v e f e e t fro m t h e ex cav at io n fo r t he fi rs t rep l acem en t

b u l k h ead

. C&M ob t ai n ed a Un i t ed St at es Arm y Co rp s o f E n g i ne e r s n at i o n wi d e

p erm i t fo r a b an k s t ab i l i zat i o n an d b o at d o ck co n s t ru ct i o n p ro ject

. In c onj unct i o n wi th

t h e fed eral p erm i t, o n A p ri l 3

, 2 0 0 9

, C&M req u e s t e d a co rres p o n d i n g rev o cab l e

l i cen se fo r t h e p ro

ject fro m CRD. 5 C&M rep res en t ed t o bo t h ag en ci e s t h a t t h e n ew

b u l k h ead wo u l d b e b u i lt o u ts i d e ju ri sd i c t i o n al m ars h l an d s an d w o u l d fo l l o w t h e Ap ri l

2 0 0 8 J D l i n e es t ab li s h ed b y CRD i n co n n ect i o n wi t h t h e earl i er en fo rcem e n t

p ro ceed in g s

. Th e p l an s sh o wed t h at t h e p ro po s ed b u lk h ead wo u l d j o g aro u n d t h e

l an d ward en d o f t h e p rev i o u s l y ex cav at ed b o at ram

p

, t h at i s

, t h at it wo u l d no t cl o s e

t h e s eaward en t ran ce o f t h e o l d b o at ram p

. CRD gran t ed t h e rev o cab l e l i cen s e b as ed

o n t h i s p l an

.

I n F e b r u a ry 2 0 1 0, CRD co n d u ct ed a s i t e v i s i t an d d i s co v ered t h at t h e

co m p l et ed s eco n d rep l acem en t b u l k h ead d id n o t co m p l y wi th th e fed eral p erm i t an d

t h e rev o cab l e s t at e l i cen s e. Sp eci fi cal l y , CRD d et erm i n ed t h at t h e s eco n d b u l k h ead

d i d n o t fo l l o w t h e Ap ri l 2 00 8 J D l i n e, wh ere i t jo g g ed aro u n d t he lan d ward en d o f t h e

p rev i o u s l y

ex cav at ed b o at ram

p

, b u t i n st ead w as b u i l t i n a s t rai g h t l i n e an d t h at fi l l

h ad b een p l a ced i n a d ep res s io n l eft b y t h e rem o v al o f th e o l d b o at ram p

. In M arch

5 See OCGA § 1 2 -5 -2 86

.

82 0 1 0

, CRD s en t C&M a No t i ce o f Vi o lat i o n an d a ceas e-an d-d es i s t o rd er, d i rect i n g

C&M t o ceas e an y co n s t ru ct i o n rel at ed to t h e s eco nd b u l kh ead

. C&M d i d n o t req u es t

a h eari n g b efo re an ALJ o r h eari n g o ffi cer at t hat t i m e b ut d i d s t o p co n st ru ct i o n

. In

M ay 2 0 1 0 , CRD rev o k ed C&M ’ s l i cen s e t o b u i l d t h e b ul k h ead an d b o at d o ck

.

In J u n e 2 0 1 0

, C&M s u b m i tt ed an ap p li cat i o n fo r an aft er-t h e-fact p erm i t fo r

t h e s eco n d rep l acem en t b u lk h ead

. In i t s ap pl i cat io n

, C&M ack n o wl ed g ed t h at t h e

s eco n d b u l k h ead en cro ach ed t o a s m al l ex ten t o n ju ri s d i c t i o n al area an d at t ach ed

d rawi n gs s h owi n g t h e “ DNR J u ri s d i ct i o n Li n e,” t h at b ei ng t h e l i n e as d el in eat ed in

Ap ri l 2 0 0 8 t h at jo g g ed aro u nd t h e area o f t h e fo rm er bo at r am p

. C&M req u es t ed

,

“ [g ] i v en t h e m i no r a m o u n t o f ex i s ti n g ju ri sd i ct i o n al i m p act as co m

p ared t o t h e

am ou n t of p o s s i b l e e n v i ro n m en t al h arm res u l t i n g fro m d em o l i ti o n an d co m p l et e

rem o v al of t h e b u l k h ead ,” t h at m u ch o f t h e seco n d b u l kh ead b e al l o wed t o rem ai n as

b u i l t

. C&M p ro po s ed t h at it am el i o rat e t h e effect s o f t h e in cu rs i o n b y rem o v i n g t h e

p art o f t h e b u l k head fro m t h e area wh ere t h e b oat ram p h ad b een ex cav at ed an d

rem o v in g t he fi l l d i rt fro m t h at area, wh ich wo u l d al l o w i t t o recei ve th e eb b an d fl o w

o f t h e t i d e an d t h us reco n n ect t hat area t o ju ri s d i ct io n al wat ers

. D ay s b efo re a h eari n g

o n t h e p e r m i t ap p l i cat i o n s ch ed u l ed fo r Au g us t 2 7

, 2 0 1 0

, C&M wi t h d rew i t s

ap p li cat io n

.

9In n eg o t i at io ns wi t h CRD t o res o lv e t h e m at t er, w hi ch d rag g ed o n fo r y ears

,

C&M t o ok t h e p o s i t i o n t h a t t h e Ap ri l 20 0 8 J D l in e h ad b een i n co rrect l y d el i n eat ed

i n t h e earl i er en fo rcem en t p r o ceed i n gs an d s h o u l d hav e been b as ed on h i s t o ri cal

co n di t i o n s t h at ex i s t ed b efo re i t d i st u rb ed t h e p ro p ert y in rem ov i n g t h e o l d wo o d en

b u l k h ead an d co ncret e b o at ram p

. U l t im at el y

, CRD reject ed C&M ’ s arg u m en t

, an d,

o n M arch 2 1

, 2 0 1 6

, W i l l i am s i s s u ed an ad m i n i st rat i v e o r d e r r e q u i ri n g C&M to

rem o v e th e p o rt i o n o f the se c ond b u l k h ead lo cat ed i n ju ri s di ct i o n al m ars h l an d s

. C&M

fi led an ap p eal fro m t h e ord er t o t h e Offi ce o f St at e Ad m i ni s t rat i ve Heari n g s; an ALJ

af f i r m e d t h e o rd er. Th e ALJ d et erm i n ed t h at “ t he o p erat i v e po i n t i n t i m e fo r

d et erm i n i n g t h e ex i s t en ce o f m ars h l an d w it h reg ard t o [C&M ’ s ] s eco n d u n au t h o ri zed

b u l k h ead was at t h e t im e [C&M ] b eg an co n s tru ct i ng it (i .e., M arch 2 0 0 9 ), no t at s o m e

p o i nt in tim e b efo re [C&M ] beg an co n s t ru ct i n g it s fi rs t u n au t h o ri zed b u l k h ead

, wh i ch

was di s co v ered i n Ap ri l 2 0 0 8

. ” C&M ap p eal ed t o t h e s u p e r i o r co u rt

, wh i ch al s o

affi rm ed . C&M ’ s ap peal i s n o w b efo re t h is Co u rt

.

1

. As a t h res h o l d m at t er, we co n s i d er W i l l i a m s ’ c o nt en t i o n t h at C&M fai l ed

t o ex h au st it s ad m i n i s t rat i v e rem ed i es wi t h t h e res u lt t h at i t lack ed t h e ri gh t to ap p eal

t h e M arch 2 0 1 6 ord er. W i ll i am s co n ten d s t h at C&M co u l d h av e ap p eal ed t h e M arch

2 0 1 0 ceas e-an d-d es i st o rd er i f i t b el i ev ed t h at t h e d e l i neat i o n o f t h e Ap ri l 2 0 0 8 J D

10l i ne, o n wh i ch t h e ord er w as b as ed

, was i nv al i d

. 6 B e c a u s e C&M fai led t o d o s o,

W i ll i am s co n t en d s

, i t can no t ch al l en g e t he M arch 2 0 1 6 o rd er t hat was b as ed o n t h e

s am e J D l i n e.

A p ers o n can n o t s e e k ju d i ci al rev i ew of an ag en cy act i o n un l es s h e “ h as

ex h au s t ed al l ad m i n i s t rat i ve rem ed i es av ai l ab le wi t h i n t h e ag en cy .” OCGA § 5 0 -1 3

-

1 9 (a). “ Lo n g -s t an di n g Geo rg i a l aw req u i res t h at a p art y ag g ri ev ed b y a s t at e ag en cy ’ s

d eci s i o n m

us t rai s e al l i s su es b efo re t h at ag en cy an d ex hau s t av ai l ab l e ad m in i s t rat i v e

rem ed ies b efo re s eek i n g an y j u d i ci al rev i ew of t h e ag en cy ’ s deci s i o n .” (Ci tat i o n an d

p u n ct u at i o n om i t t ed .) Dep t

. o f Co mmu n i t

y Hea l t h v. Ga

. S

o c. of Amb u l a to r

y S u r g er y

Cen ter s

, 2 9 0 Ga. 6 2 8 , 6 2 9 (7 2 4 SE2 d 3 8 6 ) (2 0 1 2 ). 7

Th e reco rd s h o ws t h at W i l l i am s fi l ed a m o t io n t o d i s m is s C&M ’ s ap p eal t o t h e

s u p eri o r co u rt b as ed o n t h e al l eg ed fai l u re t o ex h au s t i t s ad m i n i s t rat i ve rem ed i es

. Th e

s u p e r i o r co u rt

, h o wev er, di d n o t ru l e o n t h e m o t i o n an d ru l ed o n l y o n th e m eri t s o f

C&M ’ s arg u m en t s

. Becau se W il l i am s d i d n ot o b t ai n a ru l i n g o n t h e m o t i on to d i s m i ss

6 OCGA § 12 -5 -2 91 (a) (1 ) (An y c e a s e

- a n d

- d es i s t o rd er i s s u ed b y t h e Co as t al

M ars h l an d s Pro t ect io n Co m m i t tee t o a p ers o n wh o i s al t eri n g m ars hl an d s i n v i o l at i o n o f

t h e Act “ b eco m es fi n al un l es s t h e p ers o n n am ed t herei n req u es t s i n wri t in g a h e a r i n g

b efo re a heari n g o ffi cer ap p o i n ted b y t h e [Bo ard o f Nat u ral Res o u rces ] n o lat er t h an t en

d ay s aft er t h e i s s u an ce o f s u ch o rd er.”).

7 See fn . 1

, s u p ra.

11an d d i d n o t fi l e a cro s s-ap p eal

, t h i s is s u e i s no t p res erv ed f o r a p p e l l at e rev i ew. See

Ga

. Bd

. of Den ti s t ry v. Br o o ks

, 2 7 3 Ga. 8 5 2, 8 5 3 (1 ) (5 4 8 SE2 d 2 84 ) ( 2 0 0 1 ) ; c f.

No r t hea s t

Ga . Ca n cer

Ca r e, LLC v. Bl u e Cr os s & Bl u e S h i el d o f Ga

., In c. , 2 9 7 Ga.

Ap p . 2 8 , 3 2 (1 ) (6 7 6 SE2 d 4 2 8 ) (2 0 09 ).

M o reo v er, t h e reco rd s h o ws t h at t h e M arch 2 0 1 0 ceas e-an d -o rd er d i rect ed

C&M t o ceas e an y co n s tru ct i o n rel at ed t o th e s eco n d bu l k h ead b u t di d no t o rd er t h e

b u l k h ead ’ s rem ov al

. Ov er t he n ex t s i x y ears

, C&M t ri ed t o secu re p erm i s s i on t o l eav e

t h e s eco n d rep lacem en t b u l k head

, o r at l eas t m o s t of i t

, wh ere i t was

. W i t h i n t h i rt y

d ay s aft er t he M arch 2 0 1 6 o rd er, wh i ch fo r t h e fi rs t ti m e d irect ed C&M t o rem o v e t h e

s eco n d rep l acem en t bu lk h ead an d b ack fi l l acco rd i n g t o t h e Ap ri l 2 0 0 8 J D l i n e, C&M

fi led a p et i t i on fo r a h eari n g befo re an ALJ p u rs u an t to OCGA § 1 2 -5 -2 8 3 (b ). C&M

al s o ap p eal ed t h e ALJ ’ s ad v ers e o r d e r

, w h ich i s t h e fi n al ag en cy d eci s io n

, 8 t o t h e

s u p e ri or co u rt p u rs uan t to OCGA § § 5 0 -1 3 -1 9 an d 5 0 -1 3-2 0 .1

. 9 Th i s i s n o t a cas e

wh ere a p art y t ri ed t o si d es t ep av ai l ab l e ad m i n i st rat i v e p ro ced u res b y fi li ng a p et i t i o n

8 Un d er OCGA § 1 2 -5 -2 8 3 (b ), wh e n a p ers o n wh o i s ag g ri ev ed o r ad v ers el y

affect ed b y an y ord er o r act i o n o f th e Co as tal M ars h l an d s Pro tect i o n Co m m i t t ee ex erci s es

t h e ri g h t t o a h eari n g b efo re an ad m i n i s trat i v e l aw j u d ge ap p o i n t ed b y t h e Bo ard o f Nat u ral

Res o u rces

, “ t h e d eci si o n o f th e ad m i n i s t rat i v e l aw ju d g e s h al l co ns t i t u te t h e fi n al d eci s i o n

o f t h e b o ard .”

9 See fn . 1 an d 2 , s u pra.

12fo r d ecl arat o ry ju d g m en t i n t he s u p eri o r co u rt

. See Ga . S o c. o f Amb u l a t o r

y S u r g er y

Cen ter s v. Ga . Dep t. o

f Co mmu n i t

y Hea l t h

, 3 1 6 G a. Ap p

. 4 33

, 4 3 5 (7 29 SE2 d 5 6 5 )

(2 0 1 2) (“ W h en an ad eq uat e ad m i n i s t rat i v e rem ed y ex is t s t h at h as n o t b een t ak en

,

d i s m i s s al o f an y d ecl arat o ry ju d g m en t o r eq u i t ab l e act i o n i s ap p ro p ri at e.”) (ci t at i o n

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

C&M ’ s ap peal t o th i s Co u rt i s n o t b arred b y a fai l u re t o ex h au s t ad m in i s t rat i v e

rem ed ies

.

2

. Nex t

, we co n s i d er W i l l i am s ’ co nt en t io n t h at C&M w ai v ed an y o bject i o n to

t h e Ap ri l 2 0 0 8 J D l i n e wi th t he res u l t t h at C&M l ack ed th e ri g ht t o ap p eal t he ALJ ’ s

d eci s i o n

. 1 0

1 0 W i l l i am s arg u es t h at

C&M act i v el y p art ici p at ed i n t h e Ap ri l 2 0 0 8 J D li n e beco m i n g t h e J D l in e o f

reco rd (res u l t i n g i n i t s s ub s e q u e n t u s e i n t h i s en fo rcem en t act i o n ) b y n o t

as k i n g CRD t o re-m ark t he l i n e, as i t h ad o ffered t o d o [i n No v em b er 2 0 0 8 ]

,

an d i n s t e a d s u b m i t t i n g a s u rv ey wi t h t h at l i n e d el i n eat ed

, l ead i n g t o i t s

v al i d a t io n as t h e l i n e o f reco rd

. M o reo v er, C&M d o es n o t d i s p u t e t h at i t

fai led t o ch al l en g e t he [M arch 2 0 1 0 ] ceas e-an d -d es i s t o rd er ap p l y in g t he J D

l i n e t o t h e [s eco n d rep l acem e n t ] b u l k head o r t h at i t s u b m i t t ed t wo

a p p l i cat i o n s to CRD [i n Ap ri l 2 0 0 9 an d J un e 2 0 1 0] b as ed o n t h e J D l i n e

. Ei t h er o f t h es e act s wo u l d be s u ffi ci en t, s t an d i n g al o ne, t o es t ab l i s h wai v er.

Th e ALJ ag reed t h at C&M h ad

, “ i n fact

, wai v ed an y o b ject io n t o t h e Ap ri l 2 00 8 J D l i n e.”

13W ai v er i s th e v ol u n t ary rel i n q u i s hm en t of a k n o wn ri g h t an d m ay

b e es t ab l i s h ed b y ex p res s s t at em en t s or i m pl i ed b y co n d u ct

. A n i m

p l ied

wai v er i s o n e s h o wn b y a p art y ’ s d e ci s i v e, u n eq u i v ocal co n d uct

reas o n ab l y i n f

erri n g t h e i n t en t to wai v e. Ord i n ari l y

, si len ce i s

i n s u ffi ci en t t o es t ab l is h a wai v er u n l es s t here i s an ob l i g at io n t o s p eak

.

(Pu n ct u at i on an d fo o t n o t es o m i t t ed .) Ken n es to n e Ho s p

. v. Ho p s on

, 2 7 3 Ga. 1 4 5

, 1 4 8

-

1 4 9 (5 3 8 SE2 d 7 4 2 ) (2 00 0 ). “ In cas es o f s i l en ce t h ere m u s t b e n o t o n l y t h e ri

g h t b ut

t h e d u ty t o s p eak b efo re fai l u r e t o d o so beco m es an es t o p p el .” (Ci t at i o n o m i t t ed ;

em ph as i s i n o ri g i n al .) Tyb r i s a Co

. v. Tyb eel a n d

, 2 2 0 Ga. 4 4 2

, 4 4 5 ( 1 3 9 SE2 d 3 0 2 )

(1 9 6 4). “ [I] n g en eral

, es t o pp el s are n o t fav ored b y t he l aw.” (Ci t at i o n o m i t t ed .)

McKea n v. GGNS C At l a nt a

, LLC

, 32 9 Ga. A p p

. 5 0 7

, 5 1 4 (3 ) (7 65 SE2 d 6 8 1 ) (2 0 1 4 ).

“ W h i le no rm al l y t h e q u e s t i o n of wai v er is a m at t er fo r t h e ju ry

, wh ere

. . . t h e fact s

an d ci rcu m s t an ces es sen ti al t o t h e w ai v er i s s ue are cl earl y es t ab l i s h ed w a i v er

b eco m es a qu es t io n o f l aw.” (Ci t at i o n an d pu n ct uat i on o m i tt ed .) S t

. Ma r y’s Ho s p

. of

At h en s

, In c. v. Co hen , 2 1 6 Ga. Ap p. 7 6 1, 7 6 3 (1 ) (4 5 6 SE2 d 7 9 ) (1 9 9 5 ).

Th e reco rd sh o w s t h at C&M b eg an bu i l d i ng t he s eco n d rep l acem en t b u l k h ead

i n M arch 2 00 9

, an d t h e b ul k h ead was co m p l et e wh en t he Dep art m en t fi rs t d i s co v ered

i t i n Feb ru ary 20 10

. C&M ’ s co n d u ct i s co n s i s t en t wi t h t h e swo rn s t at em en t s o f

C&M ’ s s o l e o wn er an d m em b er, Ti m o t hy M ars h l ick

, t h at he nev er b el i ev ed t h at t h e

14Ap ri l 2 0 0 8 J D l i n e was t h e ap p l i c a b l e b o un d ary

, ei th er in rel at i o n t o t h e fi rs t

rep l acem en t b u l k h ead o r t he seco nd b ul k h ead an d t h at he b el iev ed t h at al l o f C&M ’ s

c onstr uct i o n was l an d ward o f t h e m ars h l an d s -u p l an d s i n t erface. An d C&M ’ s co n d uc t

i s co n s i s t en t wi t h Mars h li ck ’ s s t at em en t t h at he t ri ed t o secu re p erm i ss i o n t o leav e t h e

s eco n d rep l acem en t b u l k h ead wh ere i t was th ro u g h v ari o u s av en u es

, by o b tai n i n g a

b an k st ab i l i zat i o n an d b o at d o ck co n s t ru ct i o n p ro j ect p erm i t, b y fi l i n g an ap p l i cat i o n

fo r an aft er-t he-fact p erm i t, an d b y arg ui n g fo r a re-d el i n eat io n o f th e b o u n dary b as ed

o n th e co n d i t i o n s t h at ex is t ed b efo re t h e ex cav at io n o f t h e o l d wo o den b u l k h ead an d

b o at ram p. Ev en i f s o m e o f C&M ’ s rep res en t at i o n s i n co n n ect io n wi th t h es e act i v i ti es

m ay b e co n s i d e r e d ad m i s s i o n s ag ai n s t in t eres t as a m at t er o f ev i d en t i ary law, 1 1 t h e

1 1 OCGA § 2 4 -8 -8 0 1 (d ) (2 ) p ro v i des , i n p art :

Ad m i s s i o n s s hal l no t b e ex cl u d e d b y t h e h ears ay ru le. An ad m is s i o n i s a

s t at em en t o ffered ag ai n s t a p art y wh i ch i s:

(A) Th e p art y ’ s o wn s t at e m e n t

, i n ei t her an i n d i v i d ual o r

rep res en t at i v e cap aci t y ;

. . . (C) A s tat e m e n t b y a p ers o n au th o ri zed b y t h e p art y t o m ak e a

s t at em en t co n cern i n g t he s u b ject ; . . . [o r]

(D) A s t at em en t b y t he p art y ’ s a g en t o r em pl o y ee,

. . .

co n cern i n g a m a t t e r w i t h i n t h e sco p e o f t he ag en cy o r

em p l o y m en t , m ad e d u ri n g t h e ex i st en ce o f t he rel at i o n s h i p [.]

See fo rm er OCGA § 2 4 -3 -3 6 (2 0 1 2 ) (“ Acq u i es cen ce o r s i l en ce, wh en t h e ci rcu m s t an ces

req u i re an an s wer, a d en i al , o r o t h er co n d u ct , m ay am o u nt t o an ad m i s s i on .”).

15l ack o f d eci s i v e, u neq u i v ocal co n d u ct reas o n ab ly d e m o ns t rat in g C&M ’ s i n t en t to

wai v e t h e ri g h t t o k eep th e s eco n d rep l acem en t bu l kh ead p recl u d es a fi n d i n g o f

wai v er s u ch as wo u l d en t i rel y b ar co n s i d erat i o n o f C&M ’ s ap p eal o n t he m eri t s

.

3

. C&M co nt en d s t h at t h e m et h o d t h at W i l l i am s u s ed t o d et erm i n e t h e

ju ri s d i ct i o n al l i n e bet ween u p lan d s a n d p ro tect ed m ars h l an d s was an arb i t rary an d

cap ri ci ou s d ep art u re fro m ag en cy p o l i cy fo r d efi n i n g ju ri s d i ct i o n a l l i n es an d was

o t h erwi s e co n t rary t o l aw.

Un d er O CGA § 5 0 -1 3

- 1 9

, wh i ch g o v ern s ju d i ci al rev i ew o f co n t es t ed

ad m i n is t rat i v e deci s i o n s

, “ [j] u d i ci al rev i ew of an ad m i ni s t rat i v e d eci s i o n req u i res t h e

co u rt to d et erm i n e [wh et h er] t he fi n d i n g s of fact are s u p p o rt ed b y an y ev i den ce an d

t o ex am i n e t h e s o u n d n es s o f t h e co n cl u si o n s o f l aw t h at are b as ed up o n th e fi n d i ng s

o f fact

. ” (Ci t at io n an d pu n ct u at i o n o m i t t ed .) P ru i t t Co r p

. v. Ga

. Dep t

. o

f Co mmu n i t

y

Hea lt h

, 2 8 4 Ga. 1 5 8

, 1 6 0 (3 ) (6 6 4 SE2 d 2 2 3 ) (2 0 0 8 ). Th e rev i ewi n g co u rt “ accep t s

t h e [ag en cy ’s ] fi n d i n g s o f fact i f t h ere is an y ev i d en ce t o s up p o rt th e fi n d i n g s ,” b ut

t h e co u rt m ay “ rev ers e o r m o di fy [an ] ag en cy d eci s io n

. . . up o n a d et erm i n at i o n t h at

t h e ag en cy ’ s ap p l i cat io n o f t h e law t o t h e fact s is erro n eo u s

. ” (Ci t at i o n s o m i t t ed .) Id

.

at 1 6 1 (3 ). A rev i ewi n g co u rt i s ex p res s l y pro h i b i t ed fro m s u b s t it u ti n g i t s o wn

ju d g m en t fo r t h at of t he ag en cy as t o t h e wei g h t of t h e ev id en ce o n q u es t i o n s o f fact

.

16OCGA § 5 0 -1 3 -1 9 (h ). Up o n j u d i c i a l r e v i ew, rev ers al i s n o t warran t ed u n l es s t h e

s u b s t a n t i al ri g ht s o f t h e ap p eal i n g p art y h av e b een p reju d i ced i n o n e o f fi v e wa ys

ex p res s l y d el i n eat ed i n OCGA § 5 0 -1 3 -1 9 (h ) (1 ) th ro u g h ( 5 ) o r

, as arg u ed i n t h i s

ca s e

, w h en th e ag en cy deci s i o n was “ [a] rb i t rary or cap ri ci o u s o r ch aract eri zed by

ab u se o f d i scret i on o r cl earl y un warran t ed ex erci se o f d i scret i o n.” OCGA § 5 0 -1 3 -1 9

(h ) (6 ). 1 2

1 2 OCGA § 5 0 -1 3 -1 9 (h ) p ro v i d es t h at a co u rt rev i ewi n g an ag en cy d eci s i o n

s h al l n o t s u b s ti t u t e i t s ju d g m en t fo r t hat o f t h e ag en cy as t o t h e wei g h t o f t h e

ev id en ce o n q u e s t i o n s o f fact

. Th e co u rt m ay affi rm t h e d eci si on o f t h e

ag en cy o r rem an d th e cas e fo r fu rt h er pro ceed i n gs

. Th e co urt m ay rev ers e o r

m o d i fy t h e d eci si o n i f su b st an t i al ri g h t s of th e ap pel l an t h av e b een p reju d i ced

b ecau s e t h e ad m i n i s t rat i v e fi n d i n g s

, i n feren ces

, co n cl u s i ons, or de c isi on s are:

(1 ) In v i ol at i o n o f co n s t i t u t i o n al o r s t at u t o ry p ro v is i o n s ;

(2 ) In ex ces s o f t he s t at u to ry au t ho ri t y o f t h e ag en cy ;

(3 ) M ad e u p o n u n l awfu l p ro ced u re;

(4 ) Affect ed b y o t h er erro r o f l aw;

(5 ) Cl earl y erro neo u s i n v i ew o f t h e rel i ab l e, p ro b at i v e, an d s u b s t an t i al ev i d en ce o n

t h e wh ol e reco rd ; o r

(6 ) Arb i t rary o r cap ri ci ou s o r ch aract eri zed b y ab u s e o f d i scret i o n o r c l earl y

u n w arran t ed ex erci s e o f d i s cret i o n

.

See W el cker v. Ga

. Bd

. o

f Exa mi n er

s o f Ps ych o l o g is t

s

, 3 4 0 Ga. Ap p

. 8 5 3

, 8 5 5 (1 ) (7 9 8

SE2 d 3 6 8 ) (2 0 1 7 ) (“ If a p art y al l eg es th at an ag en cy ’ s ru l i ng was arb i t rary an d cap ri ci o us

,

t h e co u rt s m

u s t d et erm i ne wh et h er a rat i o n al b as i s ex is t s fo r t h e fi n al ad m i n i s t r a t i v e

d eci s i o n m ad e. Th i s is a q u es t i o n o f l aw.”) (p un ct u at i o n o m i t t ed ); No r th ea s t Ga

. Med

. Ct r

. , In c. v. W i n d er HMA, In c.

, 3 0 3 Ga. Ap p. 5 0

, 5 8 (2 ) (b ) (6 93 SE2 d 1 1 0 ) (2 0 10 ) (“ Arb i t rary ”

m ean s “ fi x ed o r d o n e cap ri ci o us l y o r at p l eas ure; wi t h o u t ad eq u at e d et erm i n i ng p ri n ci p l e;

n o t fo u n d ed i n t h e n at u re o f t h i n gs ; n o n -rat i o n al ; n o t d o ne o r act i n g acco rd i n g t o reas o n

17In ad d i t io n, “ [w] h en an ad m i n i s t rat iv e ag en cy d eci s i o n i s t h e su b ject o f ju d i ci al

rev i ew, ju d i ci al d eferen ce i s t o b e affo rd ed t h e ag en cy ’ s i nt erp ret at i o n o f s t at u t es i t

i s ch arg ed wi t h en fo rci ng or ad m i n i s t eri n g an d t h e ag en cy ’ s i n t erp ret at i o n o f ru l es

an d reg u l at i o n s i t h as en act ed t o fu l fi l l t h e fu nct i o n g i v en i t b y t he l eg i s l at i v e

b ran ch

. ” (Ci t at i o n s o m i t t ed .) Pr u i t t Co r p

. v. Ga

. Dep t

. o

f Co mmu n i ty Hea l t h

, 2 8 4 Ga.

at 1 6 0 (2 ). 1 3 Fu rt herm ore, t h e ap p el l at e co u rt ’ s du t y i s n o t t o rev i ew wh et h er t h e

o r ju d g m en t ; d ep en d i n g on th e wi l l al o n e; ab s o l u t el y i n p o wer; cap ri ci o u s l y ; t y ran n i cal ;

d es p o t ic.”) (ci t at io n an d p un ct u at i o n o m i t t ed ); S a wyer v. Reh ei s , 2 1 3 Ga. Ap p . 7 2 7 , 7 3 0

(2 ) (4 4 5 SE2 d 8 3 7 ) (1 9 9 4 ) (W h ere t he reco rd d em o n s t rat es t h at t h e ALJ h a d a r a t io n al

b a s i s f o r h i s o r h er u l t im at e d et erm i n at i o n, t h e rev i ewi n g co u rt s are n ot au t h o ri ze d t o

s u b s t i t ut e t h ei r own ju d g m en t fo r t h at o f t h e ALJ u n d er th e t h eo ry t h at t h e ad m i n i s t rat i v e

d et erm i n at i on i s arb i t rary an d cap ri ci o u s .); Ga

. Po wer Co

. v. Ga

. Pu b

. S vc. Co mm.

, 1 9 6

G a. Ap p

. 5 72

, 5 80 (5 ) (3 96 SE2 d 5 6 2 ) (1 9 90 ) (Arb i trary an d cap ri ci o u s d eci s i o n s a r e

“ t h o s e h av i ng n o r a t i o n al bas i s [.]

. . . Th e o p in i o ns of co m p et en t ex p ert s m ay co n s t i t u t e

s u ch a rat i o n al b as i s .”) (ci t at i o n s an d p u n ct u at i o n o m i t t ed ).

1 3 As we h av e ex p l ai n ed :

Ag en ci es p ro v i d e a hi g h lev el o f ex p e rt i s e an d an o p p o rt u n i t y fo r

s p eci al i zat i o n u n a va ila

ble in the j udici al or l eg i s l at i v e b ran ch es

. Th ey are ab l e

t o us e t h es e s k i l l s

, al o n g wi t h t h e p ol i cy m an d at e an d d i s cret i o n en t ru s t ed t o

t h em b y t h e l eg i sl at u re, t o m ak e ru l e s a n d en fo rce t h em i n fas h io n i n g

s o l u t i o ns t o v ery co m

p l ex p ro b l em s

. Th u s, t h ei r d eci s i o n s are n o t t o b e t ak en

l i g h t l y o r m i n i m i zed b y t h e ju d i ci ary

. Rev i ew o v erb ro ad i n s co pe wo u l d h av e

t h e effect o f s u b s ti t ut i n g th e ju d g m en t o f a ju d g e o r j u r y fo r t h at o f t h e

ag en cy

, t h ereb y n ul li fy in g t h e b en efi t s o f l eg i s lat i v e d el eg at i o n t o a

s p eci al i zed b o d y

.

(Ci t at io n an d p u n ct u at i o n om i t t ed .) Ga

. Dep t

. o f Co mmu n i t

y H ea l t h v. Med

d er s

, 2 9 2 Ga.

18reco rd s u p p o rt s t h e s u p eri o r co urt ’ s d eci si o n b u t wh et h er t h e reco rd s u p p o rt s t h e fi n al

d eci s i o n o f t h e ad m i ni st rat i v e ag en cy

, wh i ch

, i n t h i s cas e, is t he d eci s i o n of t h e ALJ

.

Emo r y Un i ver s i t y v. Levi t a s

, 2 60 Ga. 8 9 4, 8 9 8 (1 ) (4 0 1 SE2 d 6 9 1 ) (1 9 94 ); W i l l i a ms

v. Bu t l er

, 3 2 2 Ga. Ap p

. 2 2 0

, 2 2 2 (7 4 4 SE2 d 3 9 6 ) (2 01 3 ); Pr o f es s io n a l S ta n d

a r d s

Co mmi ss i o n v. Va l en t i n e

, 2 69 Ga. Ap p . 3 0 9 , 3 1 2 (6 0 3 SE2 d 7 9 2 ) (2 0 0 4 ); OCGA §

1 2 -5 -2 8 3 (b ).

(a) In t hi s cas e, C&M co n t en d s t h at CRD’ s p o l i cy w i t h reg ard to d efi n i n g t h e

ju ri s d i ct i o n al b o rd ers o f m ars h l an ds i s t o d el in eat e t h e b o u n dary as i t ex i s t ed

i m m ed i at el y b efo re u n au th ori zed act i o n was tak en t o al t er an y m ars h l an d s o r l o cat e

an y s t ru ct u re o v er m ars hl an d s . W i l li am s d o es n o t d i s p u t e t h i s p rem i s e; i n d eed , i t i s

t h e fo u n d at i o n o f t h e M arch 2 0 1 6 rem o val o rd er an d t he A LJ ’ s d eci s i o n. Th e cru x o f

t h i s d i s pu t e i s wh et her u nd er th i s p ol i cy th e j u ri s d i ct io n al b o u nd ary rel ev an t t o t h es e

en fo rcem en t p ro cee dings i s w he r e the m a r shlan d s-u p l an d s i nt erface was b efo re C&M

Ap p

. 4 3 9

, 4 4 0 -4 4 1 (6 6 4 SE2 d 8 3 2 ) (2 0 0 8 ). See al s o Cen t er Fo r a S u s t a in a bl e Co a s t v.

Co a s t a l Ma r

s h l a n d s Pr o t ect io n Co mm.

, 2 8 4 Ga. at 7 4 1 (2 ) (“ Ord in ari l y

, t he i nt erp ret at i o n

o f a s t at u t e b y an ad m in i s trat i v e ag en cy wh i ch h as t h e d u t y o f en fo rci n g o r ad m i n i s t eri n g

i t i s t o b e g i ven g reat wei g h t an d d eferen ce.” T h e ap pel l at e co u rt wi l l “ d efer t o an ag en cy ’ s

i n t erp ret at i o n wh en i t refl ect s t he m e a n i n g o f th e s t at u te an d co m p ort s wi t h l eg i s l at i v e

i n t en t .” Th i s d eferen ce i s p art i cu l arl y w a r r a nte d [ in m a r shla

nds ju ri s d ict i o n cas es ] b ecau s e,

i n craft i n g t h e [Act ]

, t he G en eral As s em b l y s p eci fi cal l y s t at ed t h at t h e D ep art m en t o f

Nat u ral Res o u rces i s au th o ri zed t o d et erm i n e ju ri s d i ct i on u n d er t h e [Act ] .”) (ci t at i o n s an d

p u n ct uat i o n o m i t t ed ).

19fi rs t d i s t urb ed t h e ri verb an k i n Ap ri l 2 0 0 8 (as C&M co n t en d s ) or wh ere i t was

i m m ed i at el y b efo re C&M ’ s co n s t ru ct i o n act i v i t i es i n M arch 20 0 9 (as t h e ALJ fo u n d ).

In su p p o rt of t h i s arg u m en t

, C&M co n t en d s t h at t h e m ean h i gh t i d e li n e, wh ich i s t h e

b as i s o f t h e Dep art m en t’ s ju ri s d i ct i o n

, “ i s d eem ed t o m o v e (o n l y ) as a res u l t o f n at u ral

ero s i on or accret i o n ” an d t h at “ t i d al b o u n d ary l i nes are n o t al t ered b y h u m an act i v i t y ”

s u ch as d red g i ng o r fi ll i ng

. Bas ed on t h i s , C&M co nt en d s t h at CRD erred i n b as i n g

t h e J D l i n e o n t h e reach o f t i d ewat ers a f t er C&M ’ s d em o l i t i o n a n d e x cav at i o n

act i vi t i es rat h er th an o n h i s t ori cal co n d i t i o n s b efo re s u ch act iv it i es al tered t h e n at u ral

b o u n d ary

. C&M co n t en d s t h at i f t he s eco n d rep l acem en t b u l k head were ju d g ed

acco rd i n g t o a p re-Ap ri l 2 0 0 8 b o u n d ary

, i t wo u l d b e en t i rel y o ut s i d e o f j u ri s d i ct i o n al

m ars h l an d s an d n ot i n v i o l at io n o f t h e Act

.

As t h e ALJ fo un d, t h e u n au t h o ri zed act i o n at i s s ue i n t h e March 2 0 16 rem o v al

o rd er i s C&M ’ s co n s t ru ct i o n o f t h e s eco n d rep l acem en t b u lk h ead b eg i n n in g i n M arch

2 0 0 9

. Th e ev i d en ce au t h o ri zed t h e ALJ t o fi n d t h at t h e d es t ru ct i on o f th e o ld wo o d en

b u l k h ead an d co n cret e b o at ram p an d t h e co n s t ru ct io n of t h e f i rs t rep l acem en t

b u l k h ead i n Ap ri l 2 00 8 was a s ep arat e co urs e o f co n d u ct fro m t h e co n st ru ct i o n o f t h e

s eco n d rep l acem en t b u lk h ead b eg i n n i n g i n M arch 2 00 9

. C&M ’ s vi o l at i o ns o f t h e Act

i n Ap ri l 2 0 0 8 were ad d res s ed i n t h e fi rs t en fo rcem en t p ro ceed in g s

, res o l v ed by

20ag reem en t

, an d co n cl u d ed n o lat er t h an M arch 20 0 9, w h en CRD cert ifi ed C&M ’ s

co m p l ian ce wi t h t h e co n s en t o rd er. W e co n cl u de t h at t he ALJ d i d n o t act arb i t rari l y

o r c a p r i c i o u s l y an d di d n o t ab u s e o r ex ceed i t s d i s cret io n i n ru l i n g t h at t h e

ju ri s d i ct i o n al b o u n dary rel ev an t t o t h es e en fo rcem en t p ro ceed i n g s i s t he m ars h l an d s

b o u n d ary as it ex i s t ed i m

m ed i at el y b efo re C&M ’ s b eg an i t s u np erm i t ted co ns t ru ct i o n

o f t h e s eco nd rep l acem en t b u l k h ead i n M arch 2 0 0 9

. 1 4

1 4 Al t h o u g h t h e p art i es i d en t i fi ed n o Geo r g i a cas es d i rect l y o n p o i n t

, cas es

i n t erp ret i n g an al o g ou s fed eral l aw s u pp o rt th is i n t erp ret at i o n

. See Un i t ed S t at es v. Ma li b u

Bea ch

, In c.

, 7 1 1 FSu p p. 1 3 0 1, 1 3 1 1 (III) (A) (1 ) (a) (D.N.J

. 1 9 8 9 ) ( I n an act i o n fo r an

i n ju n ct i o n ag ai n s t fi l l act iv it i es at a b each si t e, w h et h er a p o ol was wi t h i n t he ju ri s d i ct io n al

wat ers o f t h e Un i ted St at es w as to b e b as ed on wh et h er t h e p o ol was s u bject t o t h e eb b an d

fl o w o f t he t i d e at t h e ti m e o f t h e fi l l act i v i ti es

. ); Tr ack 1 2

, In c. v. U.S

. Ar my Co r

p s o f

En g i n eer s

, 6 1 8 F S u p p

. 4 4 8 (D. M i n n. 1 9 85 ) (Th e Co rp s h ad ju ri s d i ct i o n o v er a t ract o f

l an d ev en t h o u gh t he lan d w as n ot a n at u ral wet l an d b u t was an art i fi ci al w et l an d res u l ti n g

fro m t h e co n s t ru ct i on o f a h i g h way an d a s to rm s e w a g e s y s tem b y s t at e an d l o cal

a u t h o r i t i es .); Un i t ed St at es v. Ci a mp i t t i

, 5 8 3 FSu p p

. 48 3

, 4 9 1 -4 9 4 (D.N.J

. 1 9 8 4 ) (Th e

h i s t o ry o f a s i t e, i n cl u d i n g t he fact t h at p art of t h e area m ay h av e b eco m e wet l an d s b ecau s e

o f a m an -m ad e co n nec t i o n b e t we e n t h e s it e an d t i d al wat erway s

, i s n o t rel ev an t t o t h e

g o v ern m en t’ s ju ri s d i ct i o n un l es s i t i n di cat es t h at t he l an d was n o t w et l an d s at th e t i m e t h e

g o v e rn m en t cl ai m ed ju ri s di ct i o n

, i n t h at cas e, wh en t h e fi l l act iv i t y b eg an

. “ [F] ed eral

ju ri s d ict i o n i s d et erm i n ed b y wh et h er t he s i t e i s p res en t l y wet l an ds an d no t b y h o w i t cam e

t o b e wet l an d s .”); Un i t ed S ta tes v. Br a d s h a w

, 5 4 1 FSu p p

. 8 8 0

, 8 8 3 (II) (D. M d

. 1 9 8 1 )

(Al t h o u g h t h ere w as ev i den ce t h at t h e area wh ere a l an do wn er was d u m pi n g d em o l i t i o n

d eb ri s an d s an d h ad been h i g h l an d s b ef o r e t h e g ov ern m en t d ug m o s q u i t o d i t ch es

, t h e

d et erm i n at i on o f a vi o l at i on w as b as ed o n t h e co n d i t io n of t h e area as wet l an d s at t h e t i m e

o f t h e d u m

p i n g .)

21Fu rt herm o re, C&M ’ s b ro ad co n t en t i o n t h at t i d al b o u n dary l i n es are n o t al t ered

b y h u m an act i v i t y is no t warran t ed

. T h e Dep art m en t

, wh i ch i s c h arg ed wi th

d et erm i n i n g ju ri s di ct i o n u n d er t h e Act

, h as i nt erp ret ed t h e A c t t o m ean t h at

, i f t h e

co n to u rs o f l a n d are ch an g ed b y h u m an act i v i t i es

, res u l t i ng i n t h e m o vem en t o f

t i dewat ers i n to an area t h at w as p rev i o u s ly u p l an d s

, t h en an y m ars h lan d s t hat res u l t

fro m s u ch art i fi ci al wat erco u rs e co n s t i t u t es ju ri s d i ct i on al m ars h l an d s

. See OCGA §

1 2 -5 -2 8 2 (3 ) (m ars h l an d s are defi ned b y wh et h er an are a i s r e a c h ed b y t i d ewat ers

“ wh et h er o r n ot t he ti d ewat ers reach t h e l i t t o r a l areas t hro u g h nat u ral o r art i fi ci al

wat erco u rs es ”). 1 5 In d eed

, C&M co n ced es th a t i t s 2 0 0 8 ex cav at i o n o f t h e ri v erb an k

creat ed ad d i t io n al t i d e-i n fl u en ced areas

. 1 6 It fo l l o ws t h at

, i m m ed i at el y b efo re C&M

1 5 Ag ai n, an al o g o u s fed eral l aw s u p po rt s t h is i n t erp ret at i on

. See cas es ci ted i n fn

. 1 4

. M o reo v er, i t i s co ns i st en t wi t h t h e p u rp os es o f t h e Act to t reat m an m ad e cr ea t i o n o f co as t al

m ars h l an d s d i fferen t l y fro m m an m ad e d es t r uct i on o f m ars h l an d s

. A l an d o wn er wh o

i l l eg al l y pl aces fi ll i n an area t o t he ex t en t th at ti d ewat ers n o l o n g er reach t h e area s h o u l d

n o t b e reward ed wi t h a seaward s hi ft o f th e ju ri s d i ct i on al b ou n dary t h at tak es th e area o u t

o f t h e D e p a r t m en t ’ s ju ri s d i ct i on

. Bu t if h um an act iv i t y al l o w s t i d ewat ers t o reach a n ew

area, d ep en d i ng o n t h e ci rcu m s t an ces

, a l an d ward s h i ft o f th e b o u n d ary m ay b e ri g h t fu l l y

reco g ni zed

.

1 6 Acco rd in g t o CRD’ s Karl Bu rg es s, C&M ’ s rem ov al o f t h e fi rs t rep l acem en t

b u l k h ead li k el y res u l t ed i n an ex p an s i o n o f t h e m ars hl an d s i n t o p art s o f C&M ’ s p ro p ert y

t h at

, b efo re t h e rem ov al o f th e o l d wo o d en b u lk h ead an d b o at ram p

, w o u l d h a v e b een

co n s i d ered u p l an d s

. In it s ap p el l an t b ri ef, C&M i t sel f s t at es t h at i t s d em ol i t i o n an d

d red g in g act i vi t ies i n A p ri l 2 0 0 8

, i n rem o v i n g t h e o l d wo od en b u l k head an d co n cret e b o at

ram p an d b ui l d i n g t h e fi rs t co n cret e rep l acem en t bu l k h ea d

, a l t ered t he reach o f t h e t i d e

22b u i l t th e s eco n d rep l acem en t b ul k h ead

, ad d it i o n al ju ri s d i ct i o n al m ars hl an d s s u b ject

t o p ro t ect i o n u n d er t h e Act ex i s ted co m p ared t o C&M ’ s preferred h i s to ri cal b o u n d ary

l i ne. At n o p oi n t d o es C&M p o i n t t o an y ev i d en ce, t h at

, i f CRD h ad d el i n eat ed a J D

l i ne acco rd in g t o th e co n t o urs o f t h e l an d in M arch 2 0 0 9

, t hen t he s eco n d rep l acem en t

b u l k h ead wo u l d h av e b een en t i rel y l an d ward o f t h at l in e.

(b ) W e n o t e th at C&M al s o ar g u e s t h at CRD v i o lat ed ag en cy p o li cy wh en i t

d el i n eat ed t h e Ap r i l 2 0 0 8 JD l i n e, wh i ch i t d eem s “ t h e di s p os i t i v e i s su e.” Bu t t h i s

arg u m en t i s a red h erri n g

. A s d i s cu s s ed in D i v i si o n 3 (a), s u p ra, t h e ALJ co rrect l y

ru l ed th at t he d i s p os i ti v e i ss u e is wh et h er t h e s eco n d b u l k h ead v i o l at ed t h e A ct wh en

ju d g ed b as ed o n t h e m ars h l a n d s

- u p l an d s i n t erface as i t ex i s t ed i m m ed i at el y b efo re

C&M b eg an co n s tru ct i n g t h at b u l k h ead i n M arch 2 0 0 9. Pret erm i tt i n g w h et h er t h e

ALJ err e d i n r u l i n g t hat t h e Ap ri l 2 0 0 8 J D l i n e was th e J D l i n e o f reco rd fo r t h e

s eco n d rep l acem en t b u lk head

, s u ch erro r wo u l d p res en t n o b as i s fo r rev ers al

. Th e

reco rd s h o ws t hat CRD co n s id ered u s i n g t he Ap ri l 2 0 0 8 J D l i n e i n co n nect i o n wi th

t h e s eco n d rep l acem en t b ul kh ead t o b e an acc o m m o d a t i o n to C&M b ecau s e i t s

act i vi t i es i n co nn ect i on wi t h t h e fi rs t rep l acem en t b u l k h ead al l o wed t he i n t erface to

s h i ft l an d ward

. Becau s e t h e s eco n d rep l acem en t b u lk h ead was in vi o l at i o n o f t h e Act

i n l an d b y ei gh t t o t en feet

. Th i s is su p p o rt ed b y t h e t es ti m o n y o f C&M ’ s co n s u l t an t

, Sl i g h

.

23w h e t h er ju dg ed b y th e Ap ri l 2 00 8 J D l i n e, ev en i f wro n gl y d el i n eat ed

, o r b y a n e w

l i ne t h at CRD wo u ld h av e d rawn b as ed o n M arch 2 0 0 9 co n d i t i o n s

, i t do es no t m at t er

wh et h er t h e Ap ri l 2 0 0 8 J D l i n e was co m p l et el y accu rat e wh en d el i n eat ed

.

In l i g h t o f t h e g reat wei g h t an d d eferen ce t o b e acco rd ed t o t h e D ep art m en t ’ s

i n t erp ret at io n o f t he Act i n t erm s o f t h e o perat i v e p oi n t i n t i m e fo r d e t e r m i n i n g t h e

Dep art m en t ’ s ju ri s d i ct io n o v er m ars h lan d s wi t h reg ard t o d red g i n g

, co n s t ru ct i o n

, an d

o t h er act i v i t i es t h a t m a y al t er t h e m ars h l an d s -u p l an d s in t erface, an d becau s e i t i s

u n d i s p u t ed t h at t h e s eco n d rep l acem en t b u l k h ead

, wh en ju dg ed ac c o r d i n g t o t h e

b o u n d ar y o f t h e m ars hl an d s as i t ex i s t ed im m ed i at el y b efo re C&M b eg an

co n st ru ct i n g t h e b u l k head i n March 2 0 0 9

, en cro ach ed o n ju ri sd i ct i o n al m ars h l an d s

,

t h e M arch 2 0 1 6 rem o v al o rd er h ad a rat i o n al b as i s an d m u st b e affi rm ed

.

Ju d g men t a f f ir med

. Bet h el

, J., a n d S en i o r Ap p el l a te Ju d

g e Her ber t E. Ph i

pp s

co n cu r

.

24