Gold Dome Report - Legislative Day 17 - February 2025

The Georgia General Assembly wrapped up its work week on Thursday and vacated the State Capitol for a four-day weekend flanked by Valentine’s Day and the holiday commonly known as President’s Day. But President’s Day is technically Washington’s Birthday, established by the 45th Congress in 1879 to honor the birth of our first President on February 22, 1732. But when the 90th Congress adopted the Uniform Monday Holiday Act in 1968, the observance of Washington’s Birthday was moved to the third Monday in February each year. But that curiously ensured that Washington’s Birthday could never fall on Washington’s actual birthday, since the latest the third Monday in February can fall is February 21. Thanks to the National Archives for this useless tidbit but interesting introduction to this #GoldDomeReport.

Several committees had more productive conversations on Thursday afternoon, including a vetting of Speaker Jon Burns’s comprehensive school safety legislation (HB 268) and Senate President Pro Tem John Kennedy’s school absenteeism bill (SB 123). Legislators return on Tuesday to get back to work.

In this Report:

• Floor Action
• Committee Notes
• New Legislation
• What’s Next

Floor Action

The House took up the following measures on Legislative Day 17:

• HB 36 - Guardian and ward; revise list of providers who are authorized to participate in the processes for appointment of a guardian for an adult (Judy-Leverett-123rd) - PASSED 99-70
• HB 74 - Georgia Lottery for Education Act; correct a reference (RegI-Powell-33rd) - PASSED 169-0
• HB 81 - Interstate Compact for School Psychologists; enter into (Ed-Ballard-147th) - PASSED 165-2
• HB 105 - Public officers and employees; increase indemnification award of certain state public school personnel in the event of death (Ed-Wade-9th) - PASSED 168-0

The Senate took up the following measures on Legislative Day 17:

• SB 21 - Local Governments; violation of the prohibition on immigration sanctuary policies; waive sovereign and governmental immunities (Substitute) (PUB SAF-19th) - PASSED 33-18
• SB 44 - Equalization Grants, Annual Calculations, and Allocation; the definition of the term "qualified local school system" by reducing the minimum required millage rate; revise (Substitute) (RULES-11th) - PASSED 51-0
• SB 76 - License Plates; specialty license plate benefitting the Georgia Veterans Service Foundation; establish (Substitute) (PUB SAF-49th) - PASSED 52-0
• SB 99 - Crimes and Offenses; definition of law enforcement officer; provide (Substitute) (PUB SAF-29th) - PASSED 49-1

Committee Notes

Senate Health and Human Services Committee

The Senate Health and Human Services Committee, chaired by Senator Ben Watson (R-Savannah), met late Wednesday to consider the following measures:

• SB 30, authored by Senator Ben Watson (R-Savannah), seeks to prohibit hormone therapies and puberty-blocking medications to minors for the purpose of gender affirming care. Despite passionate testimony opposing the legislation, the measure received a DO PASS recommendation, moving it forward to the Senate Rules Committee.
• SB 91, authored by Sen. Blake Tillery (R-Vidalia), relating to the state employees’ health insurance plan, prevents the Board of Community Health from contracting with any pharmacy benefits manager (PBM) that owns or has an ownership interest in any retail pharmacy. Senator Tillery explained that his aim is to eliminate monopolistic conditions that come along with such vertical integration when the PBM owns retail pharmacies. This legislation received a DO PASS recommendation to the committee substitute offered, moving it forward to the Senate Rules Committee.
• SB 95, by Senator Ben Watson (R-Savannah), seeks changes in Chapter 6 of Title 31 for an exemption from Certificate of Need requirements concerning life plan communities. This was a hearing-only; no vote was taken.

House Education Committee - Policy Subcommittee

The Policy Subcommittee of the House Education Committee, chaired by Representative Scott Hilton (R-Peachtree Corners), met on Thursday afternoon to hear one measure:

• HB 268, authored by Representative Holt Persinger (R-Winder), is Speaker Jon Burns’s comprehensive school safety legislation. The bill amends multiple Titles to:
  • Mandates reimbursement grants for local school systems that employ qualified mental health coordinators, with eligibility determined by student population size;
  • Requires youth violence and suicide awareness and prevention training, including Tier 1 and Tier 2 behavioral health training;
  • Updates public school safety plans to incorporate behavioral threat assessment management plans;
  • Facilitates the transfer and disclosure of student records among schools and relevant agencies, establishing a framework for memoranda of understanding between state agencies and local administrations;
  • Establishes an Office of Safe Schools within the Georgia Emergency Management and Homeland Security Agency to develop school safety best practices and a state-wide behavioral threat management system;
  • Addresses the handling of students who have committed felony acts, requiring school administrators to inform teachers of such students' disciplinary records while maintaining confidentiality;
  • Mandates that law enforcement officers report official encounters with school-age youth to school officials and parents;
  • Require public school safety plans include behavioral threat assessment management plans, with training and technical assistance provided by the Georgia Emergency Management and Homeland Security Agency;
  • Creates the Office of Safe Schools, which will oversee the development of a state-wide behavioral threat management system and the School and Student Safety Database (S3 Database) to evaluate and manage potential threats;
  • Requires school safety directors complete specific training and oversee all school safety and security personnel, policies, and procedures;
  • Mandates annual unannounced inspections of schools;
  • Requires the development of a family reunification plans in case of school closures or evacuations;
  • Requires schools comply with safety requirements, including keeping exterior doors locked and marking safe areas for emergencies; and
  • Establishes threat management teams at each school to assess and intervene with students who may pose a threat, using a state-wide behavioral threat assessment indicator.

Representative Holt Persinger presented the bill to the subcommittee, providing a broad overview of its components. He was joined in the presentation by Brock Wilson, CEO of K12 Solutions Group (the state’s channel partner for Infinite Campus) and Linda Crimblez; Deputy Director for Homeland Security at the Georgia Emergency Management and Homeland Security Agency.

In response to a question from Representative Rick Townsend (R-St. Simons Island), the author indicated that while the bill establishes a framework, it still gives local control in much of its implementation. Representative Phil Olaleye (D-Atlanta) asked about how access to student records would be managed, to which the author explained that access would be allowed according to a hierarchy of who needs to access what information, just as student records are currency managed. It was also noted that FERPA would also still apply to those records. Representative Todd Jones (R-Cumming) asked if there is an algorithmic approach to reviewing and processing student records to flag students who may be predisposed to violent acts, to which Mr. Wilson said they are already doing that for things like MTSS and 504 reviews. In response to a question about districts that may not already send records digitally, Mr. Wilson noted that there may be some small districts not doing so. Representative David Wilkerson (D-Smyrna) asked how records would be protected when sent electronically, to which Mr. Wilson said that information can be shared seamlessly and with encryption between Infinite Campus districts. Representative Brent Cox (R-Dawsonville) asked about the worst Infinite Campus data breach in Georgia and noted that his biggest concern is maintaining data security when children are being targeted by malicious actors. Representative Jones expressed concern that Georgia does not currently have the connectivity necessary to allow the student data sharing on the timetables established by the bill. Mr. Wilson acknowledged there are challenges, but 174 of 181 school districts use Infinite Campus. He pointed to North Carolina and Delaware as models to consider in implementing a statewide student information system solution. Representative Bethany Ballard (R-Warner Robins) asked if there was any mechanism to deal with schools that don’t enter discipline into the portal (or delete data)? Representative Persinger answered that existing ethics requirements for schools and teachers should cover that.

Public comment was robust, mostly supportive, but with many ideas for improvement. Law enforcement, teachers, students, parents, private citizens, non-profit representatives, and professional associations shared their perspectives with the committee. Many were concerned about data privacy. Two sheriffs spoke and are concerned that for systems which have already developed their own tools for threat assessment, the one-size-fits-all approach through GEMA might be less effective, with no mandate for collaboration. They’re further concerned school superintendents will be making decisions that should be law enforcement decisions, and they caution recording too much data if all official encounters must be reported (like minor traffic offenses): “If we collect too much data, we’ll miss the important data.” A representative from UGA’s student government said that she would like to see mandatory mental health checkups, just like physical checkups.

For those opposed to the bill, concerns include the potential for diminished due process, over-policing, surveillance, and data privacy. One mother told the story of her son, president of his high school class in Cobb County, who created campaign posters where he photoshopped his face onto a movie poster from the recent movie Dune (a sci-fi movie set in an intergalactic desert, costumed in associated garb). The principal of the school, who was unfamiliar with the movie, mistook the posters for something nefarious and threatened to disqualify the student from serving in the student government. She is concerned that under the proposed new law, her son might have been suspended. Another mother, who is a Muslim, is concerned that this bill will encourage profiling for students who look like her children.

There was some discussion proposing amendments to tighten language around timelines for schools sharing records with each other upon students transferring and what happens in the meantime while a receiving school is waiting for records. Running up against the clock, the committee unanimously approved a DO PASS recommendation, with the understanding that the author would work on a substitute incorporating the friendly amendments, which will be taken up in the full committee.

Senate Education & Youth Committee

Chairman Billy Hickman (R-Statesboro) chaired this afternoon’s meeting. These initiatives were on the agenda:

• SB 17, authored by Senator Jason Anavitarte (R-Acworth), passed out of the Senate Committee last year. However, it is back this year amending Titles 20 and 38. This is to be known as Ricky and Alyssa’s Law. It provides that classrooms have alarm buttons which would connect to local public safety points. Atlanta Public Schools utilize this technology — particularly for medical emergencies. Also, it contains a mapping component which will be helpful with school safety plans and security. Mapping is important because of timeliness for response. It is to save time to get to a school to better protect teachers and children. Required emergency alert buttons and mapping of schools, do not prevent a shooting. The bill also contains civil liability protection for the mapping information. Governor Brian Kemp has more funds for school security grants in the FY 2025 Amended budget. Lori Alcabez of Make Our Schools Safe (the measure is named for her daughter, one of the youths who died in the Florida massacre) spoke in support. Shayna Aspinwall, wife of Ricky (a teacher at Apalachee High who was killed), discussed her experience as well. Seven other states have passed Alyssa’s Law. 19 other states in addition to Georgia are working on making students safe in schools. Senator Tim Bearden (R-Carrollton) noted that Columbine High School started the awareness of this concern for school safety. The Committee gave the proposal a DO PASS recommendation.
• SB 63, authored by Senator Clint Dixon (R-Buford), was on the agenda but it was not heard.
• SB 123, authored by Senator John Kennedy (R-Macon), addresses school climate in Chapter 2 of Title 20 in the State Code. It also provides some accountability, starting November 1 with a report being generated and provided to the General Assembly. The Department of Education will make the report available to the public. Attendance review team is also provided to tackle chronic absenteeism of children (excused and unexcused absences will be reviewed). If the rate is 10% or higher then it will require an attendance review team be established for the entire school system (and if school has a rate of 15% or higher then it will have a specialized focus). Kennedy described this as a first step and the work on literacy done by Chairman Hickman and others inspired him for this legislation. Senator Donzella James (D-Atlanta) noted absenteeism stops with a truant officer and when parents are responsible for the child (and when they are punished). Senator Sims (D-Dawson) noted her absenteeism is 18.1%. Senator Chuck Payne (R-Dalton) expressed that his county has a 17.4% absenteeism rate; and Chairman Hickman stated that Bulloch County has a 20.6% absenteeism rate. A motion DO PASS was made on LC 49 2214 and passed unanimously.

Senate Appropriations Committee - Criminal Justice Subcommittee

Chairman John Albers (R-Roswell) and this subcommittee delved further into various agencies’ budget proposals and requests for FY 2025. A couple of noteworthy were from the Departments of Juvenile Justice and Corrections:

• Department of Juvenile Justice - Commissioner Shawanda Cobb-Reynolds shared her agency’s budget needs, explaining initially that the Department had completed a strategic plan with the assistance of Deloitte. Vacancy and turnover rates have improved. In 2022, the rate of turnover was 43.82% and in 2024 had decreased to 30.3%. Additionally, the JCO positions previously turned over at 97.75% and has slowed some in 2024 to 65.64%. Increased pay has helped with these employment efforts. Chairman Albers noted that these employees have some of the toughest jobs. The commissioner requested a $3 million transfer from Community Services to RYDC program with some of the reason for the request for maintenance issues (sewer line repairs; kitchen issues; needed locks and doors; and HVAC system repairs and upgrades). The Community Services program is projecting a $5 million plus surplus — part of this is due to 130 vacancies and needed mental health/autism beds (but which are offline because of needed psychologists and psychiatrists). Chairman Albers inquired about these beds, which are contracted beds used to provide youth who are deemed incompetent but restorable. The department received funding in 2019 for six beds but the need grew to eight beds. Now, there is a need for 10 of these beds. 94 youth have been treated; 75 have been successfully restored by the one single contracted vendor which receives $649.22 per day. The Budget also contemplates funds for seventy-four JCO positions (which previously have been filled but did not receive the $3,000 match; thus, the Department is asking for approximately $681,000 for parity). Senator Randy Robertson (R-Cataula), asked about the “surplus” to get clarity on the beds — which are for funds as providers are needed. Senator Donzella James (D-Atlanta) inquired about youth with autism or were mentally challenged. In the RYDCs, 59% of youth have mental health needs; in YDCs, 73% of youth are on the mental health caseload. The Commission noted these rates were high but they do work with professionals to provide care and treatment to these youth.
• Department of Corrections — Commissioner Tyrone Oliver spent an hour being questioned on his agency’s needs. The department has a long-term initiative to reduce CO position to offender ratios from 1:14 to 1:11 by hiring an additional 882 officers. For FY 2025, there is a net increase of 296 (through December 2025). Presently, the department has 2,600 openings (none are funded). He explained that applicants for positions are often not found because they may not show up for an interview; do not pass a criminal background check; and/or do not interview well. Senator Robertson asked about whether they undergo mental health screenings and polygraph testing; he expressed these are some of the state’s most dangerous jobs. He indicated that the state should do something about morale and treat the DOC staff like those working for the GBI and state patrol. Salary increases at the CO level have created other issues; those CO3 and above need salary increases due to compression issues. The department does work with those incarcerated on training and education; he noted that in 2024 there were 13,746 enrolled in TCSG and received 25,599 certifications. The department shared some needs for Department Administration which includes more resources for recruitment and retention (they work with the Chandley Group and with Guidehouse on training). The department outlined its needs for maintenance and repair funding. The average number of years inmates will be with the department when serving 20-plus-year sentences or life sentences is 42. Chairman Albers asked for a breakdown of the state’s prisons and when each was built; it will take millions to replace these. Now, Georgia’s prisons have the most violent individuals (96 percent are housed in prisons). Healthcare costs have also increased; they have a mental health contract but again it is difficult to retain psychologists and psychiatrists. Inmates in the system do have mental health diagnoses (26% of the total population). Georgia also utilizes private prisons but these facilities house medium security inmates only in open dorm settings. The subcommittee discussed perhaps having the private prisons take more max security inmates (DOC has had conversations recently about this). The subcommittee also discussed security and safety issues within prisons. They have implemented the use of drones in an effort to eliminate contraband being dropped and also have a contract with a vendor to look at all mail (there are processes too for any correspondence an inmate may receive from their attorneys). They have found inmates were receiving mail which had been soaked with illegal substances which they smoked; now mail is washed and scanned before delivering to the inmate.

Senate Regulated Industries and Public Utilities

Chairman Bill Cowsert (R-Athens) swiftly moved into his agenda this afternoon:

• SB 125, authored by Senator Larry Walker, III (R-Perry), presented his initiative which amends O.C.G.A. 43-15-9. It amends the law around licensing of professional engineers and land surveyors. It decouples requirements from examination and experience requirements. The legislation received a DO PASS recommendation as presented, moving the initiative forward to the Senate Rules Committee.
• SB 127, authored by Senator Tim Bearden (R-Carrollton), proposes a new Chapter 12 in Title 13 to address small business service contracts (under $200 paid on a monthly basis). An amendment was proposed to address the effective date so that the legislation, if passed, would apply to contracts entered into on or after the effective date of the law.. The legislation is for 200 employee or less entities; it contains disclosure requirements around contracts and brings transparency; it contains notice and the timing provisions for 12 month and 24 months or more contracts. The version reviewed was LC 55 0462. These are service contracts and not for the provision of goods. Pest control contracts are exempt from the provisions of this law and banking and electric utilities are also exempt from these requirements. The bill received a DO PASS with the amendment 1 AM 550071 added.

Broadband was also on the committee’s agenda and the current status of connectivity. The presentations included these:

• Jessica Simmons with the Georgia Technology Authority provided a broadband update, starting with an availability map (Georgia has the most robust mapping in the country). The funding sources were also shared and what is going to communities across Georgia. ARPA State fiscal recovery fund efforts $400 million used for 175,00 unserved and underserved locations. The awards through this has $254 million dispersed and projects are to be done by the end of 2026. Progress has been made with this grant. ARPA capital projects fund was $246 million awarded for 80,000 locations awarded funds in June 2023. This has a deadline of December 31, 2026. The grants in flight are successful, but there were also matching funds. The BEAD program is $42.5 billion to deploy broadband nationally; Georgia is receiving $1.3 billion and has received approximately $5 million planning funds. The BEAD program has a longer timeline with several deliverables, which are required to be approved by the Department of Commerce. Applications have been accepted; awardees should be announced for round 1 of the grant in the spring. As of August 30, 2024, BEAD had almost 72,000 unserved locations and more than 93,000 underserved locations (these are BEAD eligible) and served 3.6 million locations in the state. The BEAD funding should be sufficient to cover the unserved and underserved areas.
• Jason Bragg with the Georgia EMCs shared a map of the EMC broadband efforts. 25 of 41 EMCs are providing broadband services (7 through an affiliate and 18 through strategic partnership with a third-party). 267,000 homes and businesses have been helped. They have built 28,000 miles of fiber. Some of the EMCs have done their full buildout as well. PSC regulates the cost allocation manual for the EMCs.
• Rhonda Chatham with the Rural Telephone Association (GTBA) also shared some updates and provides high speed broadband in rural areas. They have regulated areas as carriers of last resort. Roughly 80% of membership are fiber to homes with offerings of multi gig speeds. 192,000 locations they pass; now 361 locations they pass. The networks depend on power to operate and their services are in areas where Hurricane Helene hit hard.
• Michael Foor with Windstream also gave an update and expressed issues experienced with Hurricane Helene. 100,000 are planned for this year with the $2 billion investment. They have worked with their southern state partners to build out and plan completion of projects by year end. Windstream has put in a bid for BEAD which will allow the company to go faster in putting in broadband.

House Ways and Means Committee

Chairman Shaw Blackmon (R-Bonaire) convened the House Ways and Means Committee to take up the matter of disaster relief for Hurricane Helene.

• HB 223, brought on behalf of the Governor’s Office by Rep. James Burchette (R-Waycross, Majority Whip) is largely a repeat of what was done in response to Hurricane Michael in 2018. Rep. Burchette described the measure as one of the most important bills that will be undertaken this session, noting that Hurricane Helene was a “100-year storm, maybe a 1,000-year storm” and a generational loss, with estimated damage to Georgia agriculture industry of $5.5 billion. Many people, not just farmers, are invested in timber as a retirement plan. There are 24 million acres of timber land in Georgia, 22 million of which is owned by private individuals. 37% of it sustained major loss. The bill does three basic things:
  • Federal disaster relief payments and crop insurance payments will be exempt from State income tax.
  • Sales tax is suspended for purchase of any materials used for rebuilding poultry houses, livestock houses, or greenhouses.
  • 100% of timber casualty loss can be written off, with a max of $400 per acre. To claim the credit, replanting is required. The aggregate cap for the credit is $200 million.

Rep. Burchette explained that the rationale for the replanting requirement is that some landowners might otherwise choose to cut their losses, being made partially whole through a tax credit, and get out of timber altogether. The governor wants to protect the timber industry in the state, which is a large employer. Burchette also shared that there has been some discussion about raising the per-acre cap, noting that Speaker Burns (R-Newington) would like to see it at $550, and some have floated a number as high as $1000 per acre, though he reminded the committee about the aggregate cap. Rep. Chuck Martin (R-Alpharetta) pointed out that if the fund is oversubscribed, the allocations get prorated, so raising the cap would not risk covering fewer acres, and in the event of oversubscription everyone will end up with the same amount per-acre regardless of the per-acre cap. Only $49 million was claimed for Hurricane Michael, but it’s estimated that the damage from Helene was three times the scope. There was one amendment, at the request of the Department of Revenue, to add that contractors can also use the sales tax exemption for rebuilding on behalf of a property owner. The bill received a unanimous DO PASS recommendation and will move on to the Rules Committee.

House Economic Development and Tourism Committee

The House Economic Development and Tourism Committee, chaired by Representative Ron Stephens (R-Savannah) gathered for a Georgia-grown lunch to hear presentations on different aspects of Georgia’s agriculture industry.

Georgia Grown

Matthew Kulinski, Director of Marketing for the Depatment of Agriculture, presented on the Georgia Grown program. Having celebrated its 150th anniversary in 2024, the Georgia Department of Agriculture is the oldest department of agriculture in the country. Kulinski shared a history of the department, including of the marketing division, which was created in response to the bo weevil epidemic in the early 20th century, to help farmers diversify. Kullinski said the program has been a great uniting force; no matter where someone is located in GA they want to know where their food comes from.

The Georgia Grown program is a marketing and economic development initiative run by the Georgia Department of Agriculture. It aims to support and promote agricultural products grown, raised, and produced in Georgia. The program connects local farmers, agribusinesses, retailers, and consumers to boost the state’s agricultural economy. It’s a membership-based program with membership fees; there are currently 1,570 members. In addition to providing marketing collateral (the Georgia Grown packaging logo that our readers are surely familiar with) other benefits to members include the following:

• Georgia Grown innovation center in Metter (partnership with city and Georgia Southern); provides technical assistance to grow their businesses.
• Emmy-winning television show Fork in the Road (now in its 5th season).
• Food buying programs (supporting food bank of GA).
• Georgia Grown guides (Georgia Grown magazine, and placements in other publications).
• Agritourism signage (partnership with DOT and Ag).
• Trade shows.
• Farm to school program (schools are the largest “restaurants” in the state by far).

Georgia Forestry Commission & Georgia Forestry Association

Georgia Forestry Commission Director Johnny Sabo presented. The Georgia Forestry Commission (GFC) is the state agency responsible for managing and protecting Georgia’s forest resources. It plays a vital role in wildfire prevention and suppression by responding to wildfires, providing firebreak services, and conducting controlled burns to reduce fire risks. GFC also assists private landowners with forest management, offering guidance on sustainable timber harvesting, reforestation, and conservation practices. Georgia has the largest forestry industry in the country, and Georgia currently grows 50% more wood than it cuts. Director Sabo said healthy markets drive healthy forests, noting that growing the market is one of their top priorities. Some efforts to do that include a partnership with Georgia Tech working on a method to replace graphite in battery poles with lignin, exploration of sustainable aviation fuel, and other emerging markets. Jake Matthews, VP of Government Affairs for the GA Forestry Association, also presented, echoing and expanding on Mr. Sabo’s remarks. The association represents the whole sector across the state: landowners, supply chain, timber buyers, loggers. They advocate for private property rights, sensible taxes and regulations, and healthy markets. Mr. Matthews discussed the importance of HB 223, Representative Burchette’s disaster relief bill which was covered at the beginning of this report.

The committee also heard from Georgia Farm Bureau and the Agribusiness Council. No legislation was considered at this meeting.

New Legislation

The following new legislation of interest has been introduced in the House:

The following new legislation of interest has been introduced in the Senate: