Blue Ridge Mountain Fisheries, Inc. v. Department of Natural Resources

456 S.E.2d 651, 217 Ga. App. 89, 95 Fulton County D. Rep. 1701, 1995 Ga. App. LEXIS 350
CourtCourt of Appeals of Georgia
DecidedMarch 16, 1995
DocketA94A2003
StatusPublished
Cited by1 cases

This text of 456 S.E.2d 651 (Blue Ridge Mountain Fisheries, Inc. v. Department of Natural Resources) is published on Counsel Stack Legal Research, covering Court of Appeals of Georgia primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Blue Ridge Mountain Fisheries, Inc. v. Department of Natural Resources, 456 S.E.2d 651, 217 Ga. App. 89, 95 Fulton County D. Rep. 1701, 1995 Ga. App. LEXIS 350 (Ga. Ct. App. 1995).

Opinion

Beasley, Chief Judge.

This case comes to us on the denial of plaintiffs’ motion for partial summary judgment and the grant of defendants’ motion for summary judgment. It is an action based on 42 USC § 1983 and state tort law.

On May 1, 1990, the Georgia Department of Natural Resources (DNR) searched the Wilson Spring Fish Hatchery owned by Blue Ridge Mountain Fisheries, Inc. Officers seized approximately 1,223 white sturgeon fish being held for breeding and eventual caviar production. David Cochran, president and principal stockholder of Blue Ridge, was arrested. He was charged with violating OCGA § 27-5-5 (b) (6), based on allegations that the sturgeon were “exotic fish” possessed by him without a wild animal permit. The fish were seized as contraband pursuant to OCGA § 27-5-8 (a).

In 1977, the General Assembly enacted the “Game and Fish Code.” OCGA § 27-1-1 et seq. Under it, animals and fish are generally classified as either domestic species, wildlife, or wild animals. A license or permit is generally required for all wild animals either listed in OCGA § 27-5-4 or OCGA § 27-5-5, or specified by regulation of the board pursuant to either Code section. OCGA § 27-5-5 (b) (6) lists as [90]*90wild animals “[a]ll exotic fish which are not held in aquaria or tanks.” Neither the Game and Fish Code nor any DNR regulation contained any definition of “exotic fish” when the DNR seized the plaintiffs’ sturgeon.

Apparently, as evidenced by a trade journal article from 1987 submitted by appellees, it has been the DNR’s position that under the Game and Fish Code, the term “exotic fish” means all fish species not native to Georgia. The DNR held this position notwithstanding the fact that in the fisheries trade or profession, the generally accepted meaning of the term “exotic fish” is fish “not native to the country where found” (just as the generally accepted meaning of the term “exotic” is “not native to the country where found”). The stated reason for the DNR’s more inclusive definition is that the introduction into Georgia lakes and streams of fish not native to Georgia, even though native to other parts of the United States, poses dangers to Georgia’s native fish.

Cochran began fish farming in this state in 1975. An outspoken critic of the DNR, his primary objection was to the DNR’s position that pond-raised fish are wildlife and thus subject to state ownership and regulation. His position was that they are domestic species. He maintains that in the early 1980’s, Ledbetter (then Commissioner of the DNR), Kirkland (then Director of the Game and Fish Division of the DNR), and Gennings (Chief of the Fisheries Section of the Game and Fish Division) told him of their opposition to his position because its acceptance would result in a loss to the DNR of major revenue sources. He also testified that the DNR used its veto power with the United States Corps of Engineers in an attempt to block an application by Blue Ridge to dam a creek in Gilmer County for the purpose of building a trout farm. Another member of Georgia’s aquaculture industry testified that after state legislative hearings in 1987 at which Cochran made certain accusations against the DNR, Gennings threatened to “get” him.

The first investigation of Cochran began in May 1987. In 1988, he was arrested by DNR rangers at Blue Ridge’s Price Creek Fish Hatchery and charged with possession of “exotic fish” without a wild animal permit. The fish were Coho Salmon, which are native to the United States but not to Georgia. As a result of the state charges, the United States Fish and Wildlife Service charged Cochran and Blue Ridge with violations of the federal Lacey Act. In 1989, all Lacey Act charges were dismissed against Cochran, but Blue Ridge entered an Alford plea to one Lacey Act misdemeanor and was placed on probation. This did not constitute either admission on the part of Cochran or a judicial determination that the salmon or other fish native to the United States but not to Georgia are “exotic fish.” In entering an Alford plea, which must be voluntarily and intelligently arrived at, a [91]*91defendant claims innocence but concludes it is in his best interest to do so. Freeman v. State, 211 Ga. App. 716, 717 (1) (440 SE2d 490) (1994). The underlying state charges were dismissed in April 1990.

According to Kirkland, the second investigation of Cochran began in 1989 because of information received by the DNR from special investigators that Cochran and Blue Ridge were committing continuing violations of Georgia’s game and fish laws. DNR investigator Parrish testified that during the course of a state-wide investigation into unlicensed commercial hatcheries in October 1989, it was determined that the Wilson Spring Fish Hatchery and another hatchery were being operated without a commercial license, and that in March 1990 investigators went to the Wilson Spring Hatchery for the first time and discovered the white sturgeon.

Cochran testified that in the spring of 1990, he secured financing commitments for the sturgeon project, one condition of which was elimination of the conflict between him and the DNR. He wrote a letter in March to Gennings, stating that he wanted to discuss the required permits for his planned production of the sturgeon as well as salmon. He also purchased a license for his Price Creek Hatchery. Although he was advised by letter from Gennings that licenses were required for each hatchery, he did not purchase any additional licenses.

After the sturgeon were observed at the Wilson Spring Hatchery, Parrish asked Black (the Chief of the Law Enforcement Section of the Game and Fish Division) for an opportunity to discuss this finding. On April 3, 1990, a meeting was convened by Kirkland. He and Gennings were present, as was Primmer (DNR Regional Supervisor and Fishery Biologist), Walden (executive legal assistant to the DNR Commissioner), and others. The question for decision was whether the sturgeon should be seized as contraband. Walden testified that based on the expertise of the biologists, it was the collective opinion of the meeting participants that the sturgeon, being a fish not native to Georgia, constituted an “exotic fish” under the Game and Fish Code and that Cochran’s possession of the sturgeon was thus unlawful. No final decision was made at the meeting.

Thereafter, Gennings sent Walden a memo recommending prosecution of Cochran for, among other things, possession of white sturgeon without a wild animal license. He referred to Cochran’s longstanding and “blatant disregard” of Georgia’s game and fish laws, and he stated that in order to maintain credibility with other members of Georgia’s aquaculture industry, it was necessary for the DNR to respond to Cochran’s “frontal assault” on state laws. He also expressed concern that the white sturgeon posed a threat to Georgia’s indigenous sturgeon. Walden then sent Ledbetter a memo recommending that Cochran be prosecuted for, among other things, possession of sturgeon without a wild animal license.

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Related

Price v. State
553 S.E.2d 194 (Court of Appeals of Georgia, 2001)

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Bluebook (online)
456 S.E.2d 651, 217 Ga. App. 89, 95 Fulton County D. Rep. 1701, 1995 Ga. App. LEXIS 350, Counsel Stack Legal Research, https://law.counselstack.com/opinion/blue-ridge-mountain-fisheries-inc-v-department-of-natural-resources-gactapp-1995.