Wilson v. Sanders, 23763

• Decision Date: 20 October 1966
• Docket Number: No. 23763,23763
• Citation: 151 S.E.2d 703,222 Ga. 681
• Parties: Joe Mack WILSON et al. v. Carl E. SANDERS, Governor, et al.
• Court: Georgia Supreme Court

Page 703

151 S.E.2d 703

222 Ga. 681

Joe Mack WILSON et al. v. Carl E. SANDERS, Governor, et al.

No. 23763.

Supreme Court of Georgia.

Oct. 20, 1966.

Rehearing Denied Nov. 3, 1966.

Syllabus by the Court

1. The judicial power will not be used to enjoin enactment of legislation or adoption of a proposed constitutional amendment, and when designated state officials determine how a proposed constitutional amendment will be submitted to the voters, such submission, being a part of the legislative process, will not be enjoined.

2. The writ of mandamus will not be used to change an official decision or compel a different decision where officials are allowed discretion in making it.

Arthur L. Crowe, Jr., G. Robert Howard, Robert E. Flournoy, Jr., Marietta, for appellants.

Arthur K. Bolton, Atty. Gen., Harold Hill, Asst. Atty. Gen., Alexander Cocalis, Atlanta, for appellees.

ALMAND, Justice.

Par. I, Sec. I of Article XIII of the Georgia Constitution of 1945 (Code Ann. § 2-8101) as amended by Ga.L.1956, p. 637 and ratified on November 6, 1956, provides: 'The Governor, the Attorney General, and the Secretary of State shall meet and determine whether a proposed amendment is general, and if not general, shall determine what political subdivision or subdivisions are directly affected by such proposed amendment. If a proposed amendment is general, the Governor shall cause such proposed amendment to be published in full once each week for three consecutive weeks immediately preceding the date of the election at which such proposed amendment is submitted, in one newspaper of general circulation in each Congressional District of the State. If such proposed amendment is not general, the Governor shall cause such proposed amendment to be published in full in one newspaper of general circulation in each county in which the directly affected political subdivision or subdivisions are located. In the event no such newspaper is located in such county, a newspaper in an adjoining county shall be used.'

In 1965, the Georgia General Assembly passed a resolution proposing to amend Sec. I of Art. II of the Georgia Constitution as follows: 'No territory located within the boundaries of Cobb County shall be incorporated within the limits of any municipality, the major portion of which is located outside the territorial limits of Cobb County, without the approval of a majority of the qualified voters of Cobb County voting in an election held on that question.' Ga.L.1965, p. 741.

On September 8, 1966, Joe M. Wilson and others alleging themselves to be citizens and taxpayers of Cobb and DeKalb Counties brought their petition in Fulton Superior Court against Carl E. Sanders, Ben W. Fortson and Arthur K. Bolton in their respective capacities as Governor, Secretary of State and Attorney General alleging that they were acting under the provisions of Par. I, Sec. I, of Art. XIII of the Georgia Constitution.

It was alleged that on August 31, 1966, the defendants met and determined that the proposed amendment should be voted on (a) by the people residing in Cobb County and (b) in all municipalities in Georgia. Their petition was brought in four counts.

Counts 1 and 2 sought injunctive relief. Counts 3 and 4 sought the issuance of the writ of mandamus. In counts 1 and 3 petitioners contend that the proposed amendment should be submitted only to the voters of Cobb County. In counts 2 and 4, they contend that it should be submitted to all of the voters in the state. The prayers in count 1 were that the defendant Fortson be restrained from holding the election on any other basis than a general basis so that only the voters of Cobb County would be permitted to vote on the proposed amendment. In count 2, it was prayed that Fortson be restrained from submitting the proposed amendment on any other basis than as a general amendment. As to the prayers for a writ of mandamus, count 3 prayed for defendants to show cause 'why a mandamus should not be issued against them requiring them to declare said constitutional amendment directly affecting only Cobb County and requiring defendant Fortson to submit this amendment only to the registered voters of Cobb County qualified to vote for members of the General Assembly.' Count 4 prayed that defendants show cause 'why a mandamus should not be issued against them requiring them to declare that said constitutional amendment directly affects the entire State of Georgia and requiring defendant Fortson to submit this amendment to the registered voters of the entire State of Georgia, qualified to vote for members of the General Assembly.'

In response to a rule nisi, and on a hearing thereof, the motion of the defendants to dismiss the petition was sustained. The case is here on appeal for us to review this order.

We agree with counsel for appellees that the two decisive issues raised by their motion to dismiss are '(a) Will the judicial power be exerted to stay the course of legislation while it is in the process of enactment? (b) Will the writ of mandamus or an injunction lie to control or change action taken by the Governor, the Secretary of State, and the Attorney General, in the exercise of the discretion vested in them by the Constitution?'

1. Injunctive relief. In the case of Gaskins v. Dorsey, 150 Ga. 638, 104 S.E. 433, the plaintiffs sought to enjoin the Governor of Georgia and other officials from submitting a proposed constitutional amendment to a vote of the people. In a full bench decision it was there held: 'Considering the steps necessarily taken in the course of legislation and submission of the proposed amendment to the people, an amendment to the Constitution is in its formative stages until the electorate of the state have cast their ballots thereon in a general election. While the amendment is in such formative state and in the course of progression from the proposal to the general election and ratification, it is analogous to ordinary legislation by the General Assembly, which is in its formative state or state of progression from the time of the introduction of a bill in the legislature until it is finally passed by the requisite constitutional majority and has received the signature of the Governor. The judicial power will not be exerted, by writ of error or otherwise, to stay the course of legislation while it is in process of enactment.' Id. at 639, 104 S.E. at 433.

The principle that the judicial department will not interfere with the legislative department in the enactment of legislation or adoption of proposed amendments to the constitution is applicable here. The reason is that the action of the defendants in determining 'whether a proposed amendment is general, and if not general, shall determine what political subdivision or subdivisions are directly affected by such proposed amendment' is a part of the legislative process in submitting a proposed amendment to the Constitution to the voters of the state.

Counts 1 and 2 of the petition stated no cause for injunctive relief.

2. The writ of mandamus. Par. I, Sec. I of Art. XIII of the Georgia Constitution vests in the...