Personnel Board of Jefferson County v. City of Trussville

Rel: September 12, 2025

Notice: This opinion is subject to formal revision before publication in the advance sheets of Southern
Reporter. Readers are requested to notify the Reporter of Decisions, Alabama Appellate Courts,
300 Dexter Avenue, Montgomery, Alabama 36104-3741 ((334) 229-0650), of any typographical or other
errors, in order that corrections may be made before the opinion is printed in Southern Reporter.

SUPREME COURT OF ALABAMA
SPECIAL TERM, 2025

_________________________

SC-2024-0298
_________________________

Personnel Board of Jefferson County

v.

City of Trussville

Appeal from Jefferson Circuit Court
(CV-23-903894)

PER CURIAM.

This appeal concerns whether Act No. 2023-460, Ala. Acts 2023,

which is codified at § 11-43-5.2, Ala. Code 1975 ("the Act"), was enacted

in accordance with the Alabama Constitution of 2022. The Act permits
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municipalities that meet certain requirements to remove themselves

from the jurisdiction of their county's personnel board. Shortly after the

Act's adoption, the City of Trussville ("the City") opted out of the

jurisdiction of the Personnel Board of Jefferson County ("the Board").

The Board then sued the City, alleging that the Act's passage was

unconstitutional and, as a result, that the City's departure from the

Board's jurisdiction was void. But in response to a motion from the City,

the Jefferson Circuit Court dismissed the suit with prejudice. The trial

court held that the Board lacked standing to bring this suit and,

alternatively, that the Act's passage was constitutional. The Board

timely appealed. We determine that the trial court erred in dismissing

the Board's complaint, and we accordingly reverse the judgment of

dismissal and remand the case for further proceedings.

I. Facts and Procedural History

The Board administers the civil-service system in Jefferson County

and "ensure[s] that hiring and advancement in public-sector jobs … is

conducted in an impartial, professional manner without political or

personal bias and favoritism." City of Trussville v. Personnel Bd. of

Jefferson Cnty., 365 So. 3d 322, 323 (Ala. 2022). It has statutory

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authority over " 'municipalities [within Jefferson County] having a

population of five thousand or more … whose corporate limits lie wholly

within the county.' " Id. (quoting Ala. Acts 1977, Act No. 782, § 2). The

Board may also exercise jurisdiction over any municipality with

corporate limits partially inside and partially outside Jefferson County

provided that the municipality opts to allow such jurisdiction. Id.

The City, which lies in both Jefferson and St. Clair Counties, has

been subject to the Board's jurisdiction since the early 1990s. Id. at 324.

But in 2019, the City sued the Board in an attempt to separate and create

its own civil-service system. Id. at 327. At that time, the Jefferson Circuit

Court determined that the City lacked the legal authority to leave the

Board's jurisdiction and entered a summary judgment for the Board.

This Court affirmed that decision in City of Trussville.

Following City of Trussville, Representative Danny Garrett, the

City's representative in the State House, sponsored H.B. 471, which later

became the Act. The Act, which became effective on September 1, 2023,

applies to (1) any "Class 8 municipality" with (2) "a corporate limit lying

in two counties" that (3) "has a population equal to or greater than 25,000

according to the last decennial census" and (4) "was subject, on January

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1, 2023, to a county personnel board." § 11-43-5.2(a). The Act grants any

such municipality the right to "opt out" of "the jurisdiction of a county

personnel board" by passing an ordinance to that effect. § 11-43-5.2(b)(1).

The Legislature purportedly passed the Act as a "general law" under

Article IV, § 110, of the Alabama Constitution of 2022.

After the State adopted the Act, the City, which meets the Act's

specifications, passed an ordinance to begin the process of separating

from the Board. The Board then sued the City, seeking a judgment

declaring that the Act is void because its passage violated the Alabama

Constitution. In the Board's view, the Constitution mandated that the

passage of the Act comply with the notice requirements found in Art. IV,

§ 106, Ala. Const. 2022. Because the Legislature failed to post notice in

the City as required by § 106, the Board argued, the Act's passage was

unconstitutional.

In response, the City filed a motion to dismiss. In that motion, the

City argued that the Board lacked standing to challenge the Act because

the Board had actual notice of the Act's impending passage. The City

further argued that, even if the Board did have standing, the suit should

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be dismissed because the Act was a general law not subject to § 106's

notice requirements.

The trial court, after a hearing, dismissed the suit with prejudice.

The trial court determined that the Board lacked standing and, in the

alternative, that the Act's passage complied with the Alabama

Constitution. Specifically, the trial court held that the Act's passage was

not subject to the mandates of § 106. The Board timely appealed.

II. Standard of Review

This Court reviews the trial court's decision to dismiss de novo.

Munza v. Ivey, 334 So. 3d 211, 215 (Ala. 2021).

III. Analysis

We determine that the trial court erred in granting the City's

motion to dismiss. At the time the complaint was filed, the Board had

the requisite standing to bring this suit. And, as for the trial court’s

alternative holding, more fact-finding is required to determine whether

the Act was adopted in a manner that complies with the Alabama

Constitution. We discuss each issue in turn.

A. The Board's Standing to Sue

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Under our traditional test for standing in public-law actions, a

plaintiff must demonstrate (1) that they have " 'an actual, concrete and

particularized "injury in fact" ' "; (2) that there is a " ' "causal connection

between the injury and the conduct complained of" ' "; and (3) that there

is also " 'a likelihood that the injury will be "redressed by a favorable

decision." ' " Ex parte Merrill, 264 So. 3d 855, 862 (Ala. 2018) (citations

omitted).

At the pleading stage, when determining whether this standard has

been met, the trial court must " ' "accept all of the factual allegations in

the complaint as true." ' " Ex parte Safeway Ins. Co. of Alabama, Inc., 990

So. 2d 344, 349 (Ala. 2008) (citations omitted). The trial court can,

however, " ' "consider documents outside the pleadings to assure itself" ' "

that the plaintiff has the requisite standing to establish the court's

jurisdiction. Id. (citations omitted).

The Board's complaint, and a later affidavit submitted by the

Board, provide the facts against which we review the trial court's

decision. In the complaint, the Board alleged that the Act's passage was

unconstitutional under Art. IV, §§ 105, 106, and 110, of the Alabama

Constitution. The Board further alleged that the City's decision to

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separate from the Board deprives the Board of jurisdiction over the City.

And, as highlighted in an affidavit submitted by the Board's executive

director before the entry of the trial court's judgment of dismissal, the

Board will lose $300,000 annually if the City is allowed to separate from

the Board.

In its judgment, the trial court reasoned that the Board lacked

standing as follows:

"The purpose of the notice requirements contained in § 106 (if
required by § 110) 'are principally designed to assure that
notice of legal or official proceedings is given to those persons
who may have an interest therein.' Jefferson County v.
Weissman, 69 So. 3d 827, 836 (Ala. 2011) (quoting Gulf Coast
Media, Inc. v. Mobile Press Register, Inc., 470 So. 2d 1211,
1213 (Ala. 1985). Because the [Board] in this case possessed
actual notice of the pendency of [the Act], it was not deprived
of the opportunity to take whatever steps it deemed necessary
in response to the legislation and the purposes of § 106 notice
have not been frustrated. Actual notice deprives the [Board]
of the ability to demonstrate an 'adverse impact on [its] own
rights' as required by Express Enterprises v. Waites, 979 So.
2d 754, 755 (Ala. 2007). In the absence of this showing, the
[Board] cannot demonstrate 'standing' which deprives this
Court of subject matter jurisdiction."

Notably, the trial court relied upon a test for standing articulated

in Express Enterprises, Inc. v. Waites, 979 So. 2d 754 (Ala. 2007).

However, as discussed in Merrill, this Court has traditionally employed

the test derived from Lujan v. Defenders of Wildlife, 504 U.S. 555 (1992).
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Because both tests are plausibly applicable here, we provide an analysis

of each.

The traditional Lujan test requires courts to first determine

whether the plaintiff has suffered an "injury in fact," or an injury that is

actual, concrete, and particularized. 504 U.S. at 560. Rather than relying

on the traditional Lujan test, however, the Waites Court articulated a

different test for standing:

" ' "A party has standing to challenge the constitutionality of a
statute only insofar as it has an adverse impact on his own
rights." ' State v. Woodruff, 460 So. 2d 325, 328 (Ala. Crim.
App. 1984) (quoting Bland v. State, 395 So. 2d 164, 166 (Ala.
Crim. App. 1981)). See also Mosley v. State, 255 Ala. 130,
132, 50 So. 2d 433, 435 (1951) ('The discriminatory feature of
the act must directly affect the constitutional rights of the
person complaining.'). 'Where a particular litigant is not
within the group of persons affected by a statute or portion
thereof which is allegedly unconstitutional, such litigant lacks
standing to raise such constitutional issue.' Fletcher v.
Tuscaloosa Fed. Sav. & Loan Ass'n, 294 Ala. 173, 178, 314 So.
2d 51, 56 (1975)."

979 So. 2d at 755.

Therefore, instead of requiring a concrete injury to a legally

protected right as the test derived from Lujan does, the test in Waites

requires a litigant to be within the circle of persons or entities protected

by the statute being challenged. The Lujan and Waites tests, then,

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despite surface-level similarities, differ in focus: Lujan concentrates on

the nature of the injury allegedly sustained by the plaintiff, while Waites

considers first who is protected by the challenged statute.

We recognize that the Waites test may be better suited for

analyzing some situations. But our precedent has made it clear that our

default test for determining standing is the test derived from Lujan. See

Town of Cedar Bluff v. Citizens Caring for Children, 904 So. 2d 1253,

1256-57 (Ala. 2004). Consequently, it was incumbent upon the trial court

to explain why it applied the Waites test instead of the test derived from

Lujan. But the trial court provided no such explanation. Regardless, the

Board has the requisite standing to bring this action under either test.

Applying the Waites test that the trial court relied on, the Board

has standing because it is squarely within the group affected by the Act.

The Act concerns whether a municipality may opt out of the jurisdiction

of a county personnel board. The Board is, by the Act's express terms,

within the group affected by the Act, as is required to meet the

requirements of the Waites test. The trial court erred by looking at the

wrong legal provision when applying the Waites test: it examined

whether the Board is a group protected by the notice requirements of Art.

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IV, §§ 110 and 106, Ala. Const. 2022, when it should have considered

whether the Board was within the group affected by the challenged

statute. Waites, 979 So. 2d at 755.

Applying the traditional test for standing derived from Lujan, the

Board likewise has standing here. A party has standing under the

traditional test when " 'that person is the proper party to bring the

action.' " Town of Cedar Bluff, 904 So. 2d at 1256 (citation omitted). And

" '[t]o be a proper party, the person must have a real, tangible legal

interest in the subject matter of the lawsuit.' " Id. (citation omitted). This

Court has taken pains also to stress that any such injury must truly be

"tangible," see Reid v. City of Birmingham, 274 Ala. 629, 639, 150 So. 2d

735, 744 (1963), and that a party must have a " 'concrete stake,' " not only

in the issue underlying the suit, but also " 'in the outcome of the court's

decision.' " Kid's Care, Inc. v. Alabama Dep't of Human Res., 843 So. 2d

164, 167 (Ala. 2002) (quoting Brown Mech. Contractors, Inc. v.

Centennial Ins. Co., 431 So. 2d 932, 937 (Ala. 1983)).

Further elaborating on this test, our Court has held that the

plaintiffs, to have standing, must allege " 'specific concrete facts

demonstrating that the challenged practices harm [them], and that [they]

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personally would benefit in a tangible way from the Court's

intervention.' " Ex parte HealthSouth Corp., 974 So. 2d 288, 293 (Ala.

2007) (quoting Warth v. Seldin, 422 U.S. 490, 508 (1975)). At a minimum,

the plaintiffs "must show that they personally have suffered some actual

or threatened injury as a result of the purportedly illegal conduct."

Merrill, 264 So. 3d at 863 (citing Stiff v. Alabama Alcoholic Beverage

Control Bd., 878 So. 2d 1138, 1141 (Ala. 2003)).

Based on the Board's complaint and its executive director's

affidavit, we determine that the Board easily meets this more traditional

test for standing. The Board's loss of jurisdiction -- jurisdiction that is

the Board's legally protected right -- alone is sufficient to establish such

an injury. See Act No. 284, Ala. Acts 1935, and Act No. 248, Ala. Acts

1945 (granting the Board legal jurisdiction over certain municipalities

without any means for the municipalities to opt out of such jurisdiction);

see also Merrill, 264 So. 3d at 862. Even if it were not, the imminent loss

of $300,000 annually satisfies any fair-minded definition of an " 'actual,

concrete and particularized injury.' " Id. (citation omitted); see also Stiff,

878 So. 2d at 1143 (holding that a consumer of table wine had standing

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to bring a suit challenging the constitutionality of an excise tax simply

because the consumer would pay that tax).

And this concrete injury has a direct causal link to the Act's

passage. The injury is caused by the City's decision to separate from the

Board -- a decision based on the authority granted to the City under the

Act. If the Act's passage was unconstitutional, the City's decision is void;

and if the City's decision is void, the Board's injury would be remedied.

This is sufficient to establish a causal connection between the

complained-of conduct (the allegedly unconstitutional passage of the Act)

and the Board's injury, and it is also sufficient to demonstrate that a

favorable decision would redress that injury. See Alabama Alcoholic

Beverage Control Bd. v. Henri-Duval Winery, L.L.C., 890 So. 2d 70, 75

(Ala. 2003) (holding that a plaintiff had standing to challenge an act's

constitutionality if the act negatively impacted him and his business).

But, in his dissent, Justice Cook disagrees, arguing that there is no

"causal connection between the injury and the conduct complained of,"

Lujan, 504 U.S. at 560. The dissent rests this argument on the assertion

that "the conduct complained of" is a lack of notice to the Board that the

Act was pending passage. In this view, because the Board had "actual

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notice" of the Act's pendency, demonstrated by its repeated warnings

about the Act to those under its jurisdiction, the "conduct complained of"

can have caused no injury.

There are at least two problems with the reasoning in the dissent.

First of all, the relevant constitutional provisions, Art. IV, §§ 110 and

106, do not vest individuals with a right to notice, nor do they discuss

"actual notice." Rather, they detail the specific type of notice due to the

general public as a requirement for promulgating any "general law which

at the time of its enactment applies to only one municipality of the state."

§ 110. As a result, even if a lack of individual notice was the legal harm,

the dissent in this regard has redefined it in a way that is contrary to the

plain text of the Constitution, which is discussed in further detail in the

subsequent section.

Additionally, but relatedly, the dissent misidentifies the legal

injury to the Board. The harm in this case is not the lack of notice -- it is

the Board's loss of jurisdiction over the City. As discussed, this

jurisdiction is worth $300,000 annually to the Board. And this harm was

a direct result of the Act, which grants the City the right to opt out of the

Board's jurisdiction. Our traditional standing test simply requires that

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the injury be " 'fairly … trace[able] to the challenged action,' " and not

" 'th[e] result [of] the independent action of some third party not before

the court.' " Lujan, 504 U.S. at 560 (quoting Simon v. Eastern Ky. Welfare

Rights Org., 426 U.S. 26, 41-42 (1976)). It beggars belief to suggest that

the Board's injury -- loss of jurisdiction -- is not fairly traceable to the

City's conduct -- opting out of the Board's jurisdiction as authorized by

the Act. Once we acknowledge that the legal harm here is loss of

jurisdiction, then it becomes clear that the Board has standing. 1

The Board has a clear and tangible stake in the outcome of this

dispute. Indeed, no other party suffers such a direct adverse effect as a

result of the City's decision to opt out of the Board's jurisdiction. And

1We can additionally demonstrate the error in the dissent's
formulation of the legal injury here by using an analogy. Suppose a
legislator proposes a law that all businesses be closed on Sunday. Once
this law is put to a vote, it is passed -- but without a quorum in either
chamber present. Nevertheless, the governor signs the law as though it
had been passed appropriately, and the governor proceeds to enforce the
law rigorously. If a business then brought an action, arguing that the
enforcement of the law is unconstitutional due to its improper passage,
it would be difficult to imagine a court denying that the business had
standing. The legal harm, both in this analogy and in this case, is an
action being carried out on the basis of an improperly adopted statute.
That is sufficient to meet even a stringent reading of our traditional
standing test.

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because the City's decision is, in turn, a direct result of the Act's passage,

the Board's challenge to the constitutionality of the Act's passage is

directly relevant to the Board's legal rights. Therefore, our decision

determining that the Board has standing does not turn the courts into

"roving commissions assigned to pass judgment on the validity of the

[State's] laws" but, rather, confirms the judiciary's limited role

adjudicating actual, not hypothetical, disputes. Broadrick v. Oklahoma,

413 U.S. 601, 611 (1973) (citing Younger v. Harris, 401 U.S. 37, 52

(1971)).

In conclusion, because the requirements of both our traditional

standing test and the alternative Waites test are met, we determine that

the Board has standing to bring this suit. But this does not end the

matter. Because the trial court provided an alternative ground for its

dismissal of the Board's complaint, we now analyze the alternative basis

for the dismissal.

B. The Constitutionality of the Act's Passage

In its complaint, the Board alleged that the State adopted the Act

in a manner that violated Art. IV, §§ 105, 106, and 110, of the Alabama

Constitution. On appeal, the Board argues that the trial court erred in

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dismissing this claim. The Board argues that further fact-finding is

required to determine (a) whether the Act was passed as a general or

local law and (b) whether, even if the Act was passed as a general law, it

was nonetheless subject to § 106's requirements.

Section 110 defines a general law as follows:

"A general law is a law which in its terms and effect
applies either to the whole state, or to one or more
municipalities of the state less than the whole in a class. A
general law applicable to such a class of municipalities shall
define the class on the basis of criteria reasonably related to
the purpose of the law, provided that the legislature may also
enact and change from time to time a general schedule of not
more than eight classes of municipalities based on population
according to any designated federal decennial census, and
general laws for any purpose may thereafter be enacted for
any such class."

A special or private law, on the other hand, is one that applies to an

individual, an association, or a corporation. Id. And a local law is a law

that is neither a general law nor a special or private law. Id.

In interpreting § 110, this Court has identified three categories of

general laws:

" '[G]eneral laws now appear to be defined in at least three
categories: a law which in its terms and effect applies either
(1) to the whole state, or (2) to one or more municipalities of
the state less than a whole in a class where the classes are
defined on the basis of criteria reasonably related to the
purpose of the law, or (3) to one or more municipalities of the
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state less than the whole in a class based upon a general
schedule of not more than eight classes of municipalities
based on population.' "

Alabama Citizens Action Program v. Kennamer, 479 So. 2d 1237, 1242-

43 (Ala. 1985) (quoting Opinion of the Justices No. 256, 373 So. 2d 1051,

1053 (Ala. 1979)).

The Act appears to fall under the third category of general laws set

forth in Kennamer. It neither applies to the whole state nor to

municipalities of a class where the class is defined by the law's purpose.

See § 11-43-5.2. Instead, it applies to a subset of Class 8 municipalities -

- one of the "eight classes of municipalities based on population" that the

Legislature created after the ratification of § 110. See id.; see also § 11-

40-12 et seq., Ala. Code 1975.

Ordinarily, the Constitution does not impose any notice

requirements on the Legislature in passing and adopting such a general

law. In most circumstances, the notice requirements contained in Art.

IV, § 106, apply only to local laws. In those circumstances, then, the trial

court would have been correct to grant the City's motion to dismiss.

However, § 110, in addition to defining a general law, stipulates

that "[n]o general law which at the time of its enactment applies to only

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one municipality of the state shall be enacted, unless notice of the

intention to apply therefor shall have been given and shown as provided

in Section 106." (Emphasis added.) In its complaint, the Board alleged

that the City was the only municipality of the State that met the Act's

requirements at the time of its enactment; thus, the Act may be a rare

example of a general law that is subject to the requirements of § 106. It

is undisputed that the Legislature did not comply with the notice

requirements contained in § 106; 2 therefore, if the allegations contained

in the Board's complaint are true, the Legislature enacted the Act in a

manner inconsistent with § 110's plain text.

When ruling on a motion to dismiss, the trial court must accept the

complaint's allegations as true, Newman v. Savas, 878 So. 2d 1147, 1149

(Ala. 2003); in this case, therefore, the trial court was required to accept

as true the allegation that the City was the only municipality of the State

that met the Act's requirements at the time of its enactment. The trial

court thus erred in granting the City's Rule 12(b)(6) motion to dismiss.

At a minimum, the trial court must conduct further fact-finding to

2Those notice requirements include, among others, publishing the

substance of the proposed law in a local newspaper for at least four
consecutive weeks.
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determine whether the Act, at the time it was enacted, applied to

municipalities other than the City.

As a result, we reverse the trial court's judgment dismissing the

Board's complaint, and we remand the case for further proceedings

consistent with this opinion.

REVERSED AND REMANDED.

Bryan, McCool, and Lewis, JJ., concur.

Stewart, C.J., concurs specially, with opinion, which Mendheim, J.,

joins.

Shaw, J., concurs in the result, with opinion.

Wise, J., dissents.

Sellers and Cook, JJ., dissent, with opinions.

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STEWART, Chief Justice (concurring specially).

I concur fully with the main opinion. To the extent that § 11-43-

5.2, Ala. Code 1975 ("the Act"), applied to only one municipality at the

time of its enactment, Article IV, § 110, Ala. Const. 2022, mandated

publication of notice pursuant to Article IV, § 106, Ala. Const. 2022.

Section 106 requires each house of the legislature to verify compliance

with the publication and notice provisions of that section, absent which

"[t]he courts shall pronounce [a nonconforming act] void." Actual notice

of a proposed act by an affected person is of no consequence in

determining whether the passage of an act complied with § 106. See

Bank of Gordo v. Bank of Reform, 457 So. 2d 392, 393 (Ala. 1984) ("It has

long been an established principle in Alabama that when a court is

reviewing whether an Act has complied with [the publication

requirement of] § 106, that court is limited to searching the journals of

the House and Senate."). Nor does actual notice to one or more affected

persons necessarily satisfy § 106's purpose to "inform all persons"

affected by the act and to prevent fraud on the community. Deputy

Sheriffs Law Enf't Ass'n of Mobile Cnty. v. Mobile Cnty., 590 So. 2d 239,

241 (Ala. 1991) (stating purposes of notice provisions in § 106) (emphasis

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added). Accordingly, the Act's legality is determined by its compliance

with § 106, not whether § 106's "purpose" was served by different "more

effective" forms of notice. Additionally, I agree that the Personnel Board

of Jefferson County has standing in this case to challenge the legality of

the Act notwithstanding its "actual notice" regarding the Act.

Mendheim, J., concurs.

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SHAW, Justice (concurring in the result).

I have in the past expressed concerns regarding whether the test

for standing in a public-law case articulated in Lujan v. Defenders of

Wildlife, 504 U.S. 555 (1992), is always applicable under Alabama law.

"As I have previously written, I do not believe that the
test for determining standing under federal law set forth in
Lujan … is always applicable to determine whether standing
exists for purposes of Alabama law. … '[T]he focus of Alabama
law regarding standing, generally, is on whether the parties
have a "sufficient personal stake in the outcome" in the case,
whether their interests are sufficiently "adverse," and
whether the plaintiff is "so situated" that he or she will bring
"the requisite adverseness" to the proceeding.' Ex parte
Alabama Educ. Television Comm'n, 151 So. 3d 283, 294 (Ala.
2013) (Shaw, J., dissenting).

"As I discussed in my dissent in Ex parte Alabama
Educational Television Commission, 151 So. 3d at 293-94
(Shaw, J., dissenting), the standing analysis in Lujan is
closely tied to the 'case or controversy' provision in Article III
of the United States Constitution, but the Alabama
Constitution of 1901, Art. VI, § 139(a), does not have the same
language as is found in Article III. Nevertheless, 'I believe
that in ... general challenges to government action, the Lujan
analysis is helpful.' Ex parte Alabama Educ. Television
Comm'n, 151 So. 3d at 294 n.11 (Shaw, J., dissenting)."

Ex parte Merrill, 264 So. 3d 855, 864-65 (Ala. 2018) (Shaw, J., concurring

specially).

It is not clear to me whether Lujan always provides the correct

analysis to determine whether a government agency has the ability to
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maintain a justiciable action. The interest of such an entity to avail itself

of, or to seek a determination concerning, its own statutory authority,

obligations, or prerogatives does not seem reducible to an analysis of

whether it is "injured," has suffered damage, or will lose income.

Nevertheless, Lujan has been addressed by the parties, and its

application is correctly resolved by the main opinion. To me, the parties

otherwise appear to have a sufficient stake in the outcome in the case

and their interests are adverse. Ex parte Merrill, 264 So. 3d at 864-65

(Shaw, J., concurring specially).

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SELLERS, Justice (dissenting).

I respectfully dissent from the Court's decision to reverse the

judgment of the Jefferson Circuit Court, which, in part, determined that

the passage of § 11-43-5.2, Ala. Code 1975 ("the Act"), did not violate the

Alabama Constitution. I agree with the main opinion's conclusion that

the Act is a general law. On its face, the Act applies to one of the

statutorily authorized classes of municipalities namely -- Class 8

municipalities -- and that includes municipalities other than the City of

Trussville. The Act, by its operative terms and conditions, applies to all

municipalities within Class 8, notwithstanding the fact that the Act sets

forth other conditions that a Class 8 municipality would have to satisfy

to use the Act to its advantage.

Nevertheless, the Personnel Board of Jefferson County argues that

the passage of the Act was unconstitutional because formal notice was

not provided pursuant to Art. IV, § 106, Ala. Const. 2022. Assuming the

Act fits within the limited category of general laws that are subject to §

106, it is undisputed that the Board received actual notice of the

Legislature's intent to consider passing the Act months beforehand and

took actions clearly showing its awareness and concern regarding the

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Act. Thus, regardless of the amorphous and shifting concept of

"standing," the purpose of § 106's notice requirements was more than

satisfied from the Board's point of view. Because the Board has not

demonstrated, either in the trial court or on appeal, that the lack of

technical formal notice under § 106 renders passage of the Act

unconstitutional, I respectfully dissent.

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COOK, Justice (dissenting).

This lawsuit is the most recent battle in a nearly 30-year war

between the Personnel Board of Jefferson County ("the Board") and the

City of Trussville ("the City"). In lawsuits filed in 1991 and again in 2019,

the City sought to remove itself from the Board's jurisdiction so that it

could form its own personnel system for its merit-system employees. In

each case, the City was unable to do so. See City of Trussville v. Personnel

Bd. of Jefferson Cnty., 365 So. 3d 322 (Ala. 2022).

In response, the City went to the Legislature in 2023 and eventually

won the political battle among our State's elected representatives. At that

time, both the Alabama House and the Alabama Senate voted for the bill

that officially authorized the City to withdraw from the Board's

jurisdiction. Then, the Governor signed it into law. That bill has now

been codified as § 11-43-5.2, Ala. Code 1975 ("the Act").

The political battle over this legislation was very public. Over two

months before the Act was passed by the Legislature, the Board, fully

aware of the bill, began sending emails to the City's merit-system

employees because they were the ones who were going to be directly

affected. Under the bill, those employees would no longer be subject to

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regulation by the Board but by a new entity. The emails, sent on three

separate occasions -- April 14, 2023, May 1, 2023, and June 1, 2023 --

specifically referenced "HB 471," which later became the Act. Those

emails also advised the merit-system employees that HB 471 "has been

voted and passed the House of Representatives and is currently at the

Senate level." The emails further informed the merit-system employees

that, "if adopted into law, [HB 471] would allow for the City to withdraw

from the Merit System through majority vote of their governing body."

None of the City's employees have filed a lawsuit challenging the

Act. In fact, the Board has not alleged that a single employee has even

complained about the Act. Not one.

While the merit-system employees may not be upset about the

political battle in the Legislature, the Board certainly is. Despite its

actual knowledge of the pending legislation and despite its own efforts to

publicize that legislation by sending hundreds of emails, it now claims

that the Legislature and the City failed to provide the publication notice

that it contends was required by the Alabama Constitution, thus

rendering the Act "unconstitutional." The Board's brief at 28-29.

In my view, the Board's lawsuit elevates form over substance in an

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attempt to set aside a law that was enacted by a majority vote of both

houses of our State Legislature -- the very group of elected officials that

should be deciding these types of political disputes. 3 Because such

disputes should be left to the Legislature and because the Board has no

standing to bring this action, which I explain below, I respectfully

dissent.

The Board Has Failed to Establish Legal Standing

As explained in the main opinion, the Jefferson Circuit Court

dismissed the Board's suit against the City with prejudice after

concluding, among other things, that the Board lacked standing to bring

the present lawsuit. Our Court has repeatedly stated that in "public-

law cases," such as this one, standing is a necessity for a court to obtain

subject-matter jurisdiction. See Ex parte BAC Home Loans Servicing,

3As the United States Supreme Court has recognized:

" 'The province of the court,' as Chief Justice Marshall said in
Marbury v. Madison, 5 U.S. (1 Cranch) 137, 170 (1803), 'is,
solely, to decide on the rights of individuals.' Vindicating the
public interest (including the public interest in Government
observance of the Constitution and laws) is the function of
Congress and the Chief Executive."

Lujan v. Defenders of Wildlife, 504 U.S. 555, 576 (1992).
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LP, 159 So. 3d 31, 44 (Ala. 2013); State v. Property at 2018 Rainbow Dr.,

740 So. 2d 1025, 1028 (Ala. 1999).

To determine whether a plaintiff has standing, our courts employ

the test set forth by the United States Supreme Court in Lujan v.

Defenders of Wildlife, 504 U.S. 555 (1992). See, e.g., Ex parte King, 50

So. 3d 1056, 1059 (Ala. 2010). To establish standing, Lujan requires

plaintiffs to demonstrate the following:

"First, the plaintiff must have suffered an 'injury in fact' -- an
invasion of a legally protected interest which is (a) concrete
and particularized, and (b) 'actual or imminent, not
"conjectural" or "hypothetical." ' Second, there must be a
causal connection between the injury and the conduct
complained of -- the injury has to be 'fairly ... trace[able] to the
challenged action of the defendant, and not ... th[e] result [of]
the independent action of some third party not before the
court.' Simon v. Eastern Ky. Welfare Rights Organization, 426
U.S. 26, 41-42 (1976). Third, it must be 'likely,' as opposed to
merely 'speculative,' that the injury will be 'redressed by a
favorable decision.' Id., at 38, 43."

504 U.S. at 560-61 (footnote and some citations omitted; emphasis

added). 4

4As I have previously stated, I believe that we should evaluate
standing based upon the Alabama Constitution, which is the ultimate
source of the subject-matter jurisdiction of our courts. See, e.g., Hanes v.
Merrill, 384 So. 3d 616, 623 (Ala. 2023) (Cook, J., concurring specially)
(stating that "this Court should consider, in the right case, the proper
standard for standing under the Alabama Constitution" and that we
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On appeal, the Board contends that it had standing to challenge the

Act because it was not given prior notice of the legislation and it suffered

an "actual, concrete, and particularized injury" -- a loss of jurisdiction

over the City that will lead to the Board's losing $300,000 annually if the

City is allowed to separate from the Board as provided in the Act. The

main opinion concludes that this "concrete injury has a direct causal link

to the Act's passage" because the City's decision to separate from the

Board is based on the authority granted to the City under the Act. 5 ____

"should not simply adopt the federal standard without considering any
relevant differences between the Alabama Constitution and the
Constitution of the United States"). In other words, similar to Justice
Shaw, I believe that we need to consider whether the test for standing
under the Alabama Constitution should be the same as the test under
the United States Constitution as announced in Lujan.

However, none of the parties in this case have questioned our
Court's adoption of Lujan or suggested that a different test should apply
to standing for public entities. Therefore, we need not reach these
questions today. However, I encourage parties in future cases to fully
brief these questions.

5In reaching this conclusion, the main opinion provides an
extensive analysis of this issue under both Lujan and Express
Enterprises, Inc. v. Waites, 979 So. 2d 754 (Ala. 2007), the case on which
the circuit court relied in concluding that the Board lacked standing to
bring its lawsuit against the City. I note, however, that the standards in
Lujan and Waites differ. Lujan concentrates on the nature of the injury
allegedly sustained by the plaintiff, while Waites centers on who is
"affected" by the challenged statute. I see no reason to spend time
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So. 3d at ____.

Lujan makes clear "there must be a causal connection between the

injury and the conduct complained of." 504 U.S. at 560-61 (emphasis

added). There is simply no "causal connection" between the Board's

alleged "injuries" -- the loss of funding and jurisdiction -- and the "conduct

complained of" -- the lack of prior notice of the Act. As noted above, the

record indicates that over two months before the Act was passed by the

Legislature, the Board was fully aware of the bill regardless of the lack

of publication notice, and the Board itself began sending emails to the

City's merit-system employees because those employees were the ones

who were going to be directly affected by the bill's passage.

Although the City spends a number of pages in its brief on appeal

discussing the causation requirement for standing, the Board mostly fails

to respond to the City's causation arguments regarding those emails,

other than to assert that its emails should not be considered by this Court

addressing the circuit court's reliance on Waites in its decision below or
whether the Waites test is the better test for situations like those
presented in this case because, as the main opinion acknowledges, "our
precedent has made clear that our default test for determining standing
is the test derived from Lujan." ____ So. 3d at ____ (citing Town of Cedar
Bluff v. Citizens Caring for Children, 904 So. 2d 1253, 1256-57 (Ala.
2004)).
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at all. 6 It certainly does not make any effort to tie the "conduct

complained of" -- the lack of notice -- to its alleged injury -- the loss of

jurisdiction and subsequently $300,000 in annual revenue.

Given that the record undisputedly reflects that the Board knew

about the legislation and had taken affirmative steps to oppose that

legislation by notifying all of the City's merit-system employees who

might have had an interest in the passage of that legislation, I agree with

the City that the Board has failed to establish a causal connection

6In its opening brief, the Board contends that the publication notice

requirements in Art. IV, § 106, of the Alabama Constitution are
"mandatory" regardless of its own actual knowledge and sending of the
emails. Board's brief at 24-27. However, without standing, our courts
have no subject-matter jurisdiction to reach the merits of whether the
notice was "mandatory." It is standing that is mandatory first. The
Board cites no authority that lack of standing can be ignored because the
notice was allegedly "mandatory" or that somehow the causation
requirement of standing was satisfied because the notice was mandatory.

The Board also argues that the emails were sent when the bill was
still a "draft." Board's brief at 27-29. In support of this argument, the
Board cites ripeness cases. First, ripeness is a different doctrine from
standing. Second, ripeness is a doctrine addressing when lawsuits can
be brought in court; however, its logic does not translate into the
legislative arena. While lawsuits cannot be brought before they are ripe
(for very good reasons), it is actually beneficial to contact legislators
before a bill is finalized. Earlier notice provides more opportunity to stop
legislation or to convince legislators to revise it.

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between the conduct complained of and its alleged injury for the purposes

of standing. These steps were almost certainly far more effective than

the publication notice that it claims should have been made based upon

Art. IV, § 106.7 And, that notice was far more effective as to the Board

itself -- which had actual knowledge -- as well the remaining interested

parties -- the merit-system employees themselves who received

individual notice because of the actions of the Board.

Moreover, despite receiving actual notice from the Board about the

Act before its passage, not a single City employee -- the parties who

undisputedly have been affected by it -- has joined this lawsuit, even

7That provision states, in relevant part:

"No special, private, or local law shall be passed on any
subject not enumerated in section 104 of this Constitution …
unless notice of the intention to apply therefor shall have been
published, without cost to the state, in the county or counties
where the matter or thing to be affected may be situated,
which notice shall state the substance of the proposed law and
be published at least once a week for four consecutive weeks
in some newspaper published in such county or counties or if
there is no newspaper published therein, then by posting the
said notice for two consecutive weeks at five different places
in the county or counties prior to the introduction of the bill
…."

(Emphasis added.)

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though it has now been pending for nearly 20 months.

The main opinion disagrees with my conclusion and asserts that I

have "misidentified" the "legal injury" in this case as being the lack of

notice when, it says, the Board's legal harm is its loss of jurisdiction over

the City.8 The main opinion is mistaken.

8The main opinion also includes a hypothetical about enacting a bill

without a quorum and then enforcing that law, which, it claims, supports
its conclusion. See ____ So. 3d at ____ n.1. However, in almost every
situation, the question of whether a quorum exists is a political question
for a separate branch of government. See, e.g., United States v. Ballin,
144 U.S. 1, 6 (1892) (recognizing the "competency of [each] house" of
Congress to "prescribe any method which shall be reasonably necessary
to" ascertain a quorum); and Texas v. Bondi, [No. 24-10386, Aug. 15,
2025] ____ F.4th ____, ____ (5th Cir. 2025) (noting that the Constitution
includes a " ' broad delegation of authority to the [House] to "determine
how and when to conduct its business" ' " and explaining that a court's
only duty is "to ensure that the House, as it wielded its broad power to
determine how and when to conduct its business …[,] did not cross
certain constitutional limits" (quoting NLRB v. Noel Canning, 573 U.S.
513, 550 (2014))). Moreover, the failure to have a quorum is
fundamentally different from the failure to provide notice to persons who
already have notice of a bill. Assuming that the question of a quorum is
justiciable in some circumstances (for instance, when there has been
actual fraud by legislative leaders), no law would even exist in that
situation. Thus, the Governor would be acting without the force of a law
of any kind. In contrast, in the failure-to-provide-notice example, both
houses of the Legislature have voted and the Governor has signed the bill
into law. The alleged wrong here is a failure of a formality (notice) that
may never be raised by anyone because nobody objects. Thus, until it is
raised by someone with actual standing, the law remains effective.

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For purposes of argument, I am willing to assume that the Board's

loss of jurisdiction and revenue constitutes an "actual, concrete, and

particularized injury" in this case. However, even with this assumption,

there is still no "causal connection" between this "legal injury" and the

"complained of conduct." Contrary to the main opinion's assertion, the

record clearly indicates that the "complained of conduct" alleged by the

Board in this case is the lack of notice. For instance, the complaint states:

"26. By passing H.B. 471 as a general law rather than a
local act as it should have been, representative Garrett and
the City were able to bypass the notice requirements of
Section 106….

"….

"28. H.B. 471 was passed without notice and publication
as required by the Constitution.

"29. This notice is mandatory to give the public and the
City’s nearly 200 merit system employees who have vested
rights under the [Board] the opportunity to have their voices
heard in connection with the new law…."

(Emphasis added); see also Board's brief at 21 ("As a result, the [Board],

Consider a hypothetical with facts more similar to this case. What
if the City had sent a letter or text to every resident but then failed to
publish notice in the local newspaper? Surely the main opinion would
not argue that the Board -- having actual notice -- would have standing
to raise a lack of notice in that situation.
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[the City's] citizens, and its merit-system employees lost the

constitutional right to notice and an opportunity to be heard prior to the

enactment of [the] Act …. This is a concrete injury …." (emphasis added));

id. at 20-21 (quoting Jefferson Cnty. v. Braswell, 407 So.2d 115, 118 (Ala.

1981)) (" ' The purpose of [§] 106 is to prevent the deception of those

immediately affected by local legislation to the end [that] they may have

an opportunity to protect against the proposed enactment.' " ) (emphasis

added)); Board's reply brief at 7 ("[The Board] and [the City's] merit

system employees were denied their constitutional right to formal notice

and an opportunity to be heard on [the] Act … prior to its enactment.

This is a concrete injury …." (emphasis added)).

The requirement of a causal connection is especially important

when the alleged wrong is the violation of a procedural right -- a right to

have notice and input -- not a right to a particular outcome. Here, the

Board had actual notice and took steps to oppose the Act (including, for

instance, emailing the City's employees). Thus, we know that publication

notice would not have changed the actions of the Board (since it did

know). See, e.g., Summers v. Earth Island Inst., 555 U.S. 488, 497 (2009)

(indicating that plaintiffs would have had standing regarding an

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environmental project because they "alleged such injury in their

challenge to the [project], claiming that but for the allegedly unlawful

abridged procedures they would have been able to oppose the project that

threatened to impinge on their concrete plans to observe nature in that

specific area" (emphasis added)).

Because the Board has failed to meet all of the elements for

standing under Lujan, I would affirm the circuit court's dismissal of the

Board's action against the City.

Why Standing is Important

Standing is a Constitutional requirement, and there is no

applicable exception in this case. Moreover, there are important reasons

for following this Constitutional requirement. Standing exists, in part, to

maintain the separation of powers between the three branches of

government. In particular, standing helps keep our courts "within certain

traditional bounds vis-à-vis the other branches," Lewis v. Casey, 518 U.S.

343, 353 n.3 (1996), and "prevent[s] the judicial process from being used

to usurp the powers of the political branches," Clapper v. Amnesty Int'l

USA, 568 U.S. 398, 408 (2013). 9

9See also Lujan, 504 U.S. at 576-77 (recognizing the "separation of

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Standing also exists to make sure we get the answers right to legal

questions presented by those who have demonstrated that they have a

personal stake in the outcome of the dispute presented to us. Specifically,

it " 'tends to assure that the legal questions presented to the court will be

resolved … in a concrete factual context conducive to a realistic

appreciation of the consequences of judicial action.' " FDA v. Alliance for

Hippocratic Med., 602 U.S. 367, 379 (2024) (quoting Valley Forge

Christian Coll. v. Americans United for Separation of Church and State,

Inc., 454 U.S. 464, 472 (1982)).

In other words, standing exists to ensure that courts do not decide

hypothetical disputes or questions that may never become actual,

adversarial disputes. See FDA, 602 U.S. at 380 (explaining that the

"standing requirement means that the federal courts decide some

contested legal questions later rather than sooner, thereby allowing

issues to percolate and potentially be resolved by the political branches

in the democratic process").

powers" basis for standing); and FDA v. Alliance for Hippocratic Med.,
602 U.S. 367, 378 (2024) (quoting United States v. Texas, 599 U.S. 670,
675 (2023)) ("Standing is 'built on a single basic idea -- the idea of
separation of powers.' ").

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The traditional rules of standing "reflect the conviction that under

our constitutional system courts are not roving commissions assigned to

pass judgment on the validity of the Nation's laws." Broadrick v.

Oklahoma, 413 U.S. 601, 611 (1973) (citing Younger v. Harris, 401 U. S.

37, 52 (1971)) (emphasis added).10 For example, we are not called to

search the Alabama Code to find statutes that may be unconstitutional.

See Massachusetts v. Mellon, 262 U.S. 447, 488 (1923) ("We have no

power per se to review and annul acts of Congress on the ground that

they are unconstitutional. That question may be considered only when

the justification for some direct injury suffered or threatened, presenting

a justiciable issue, is made to rest upon such an act").

Instead, courts must wait. We must wait until there is an actual

dispute, brought by someone who has actually experienced an

identifiable, concrete loss that our courts can redress. Except in rare

circumstances, we do not allow persons to bring complaints on behalf of

other persons and vicariously assert their rights. We must wait for

10See also FDA, 602 U.S. at 379 (quoting Valley Forge, 454 U.S. at

487) (explaining that standing "helps ensure … that courts do not opine
on legal issues in response to citizens who might 'roam the country in
search of governmental wrongdoing' ") (emphasis added)).

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someone with standing, exercising their own autonomy, 11 to come

complain -- if they ever do so. As the United States Supreme Court has

stated:

"Embedded in the traditional rules governing
constitutional adjudication is the principle that a person to
whom a statute may constitutionally be applied will not be
heard to challenge that statute on the ground that it may
conceivably be applied unconstitutionally to others, in other
situations not before the Court. See, e.g., Austin v. Aldermen,
7 Wall. 694, 698-699 (1869); Supervisors v. Stanley, 105 U.S.
305, 311-315 (1882); Hatch v. Reardon, 204 U.S. 152, 160-161
(1907); Yazoo & M.V.R. Co. v. Jackson Vinegar Co., 226 U.S.
217, 219-220 (1912); United States v. Wurzbach, … 280 U.S.
399 [(1930)]; Carmichael v. Southern Coal & Coke Co., 301
U.S. 495, 513 (1937); United States v. Raines, 362 U.S. 17
(1960). A closely related principle is that constitutional rights
are personal and may not be asserted vicariously. See
McGowan v. Maryland, 366 U.S. 420, 429-430 (1961). These
principles rest on more than the fussiness of judges."

Broadrick, 413 U.S. at 610 (emphasis added).

Conclusion

11See FDA, 602 U.S. at 379-80 (explaining that the "standing
doctrine serves to protect the 'autonomy' of those who are most directly
affected so that they can decide whether and how to challenge the
defendant's action" (emphasis added)). This makes perfect sense. Each
person is entitled to decide if they want to bring suit. For instance, a
citizen may have a procedural right that was violated but they agreed
with the ultimate government action. Such a citizen would likely choose
not to bring a lawsuit. Standing means that the courts must respect their
decision not to file suit.

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Standing is an important part of judicial restraint. We must stay

within our limited role 12 and accord deference to the other branches of

government when it is necessary to do so. It is our role to strike down

unconstitutional laws passed by the Legislature. However, we should

only do so as a last resort, and only when a proper party with standing

brings the action.13

Here, the City went to the Legislature and asked it to pass a law

that would allow it to withdraw from the Board's jurisdiction. The

Legislature then passed the Act. The Board had actual knowledge of the

Act before its passage, and so did the City's merit-system employees, and

yet none of them have complained. Because the Board lacks standing to

now challenge that legislation, our role is to leave this political dispute

for the Legislature to handle.

It is for all of these reasons that I respectfully disagree with the

main opinion's conclusion that the circuit court erred in dismissing the

12See Warth v. Seldin, 422 U.S. 490, 498 (1975) (recognizing that

standing "is founded in concern about the proper -- and properly limited
-- role of the courts in a democratic society").

13See Valley Forge, 454 U.S. at 474 (stating that striking an act as

unconstitutional is a "tool of last resort").

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Board's action based on its clear lack of standing. The Board's lack of

standing deprived the circuit court of jurisdiction over its action. Because

I would affirm the circuit court's dismissal of the Board's suit on this

basis, I see no reason to reach the question of whether the passage of the

Act was constitutional.14

14The Board briefly makes the point that it has standing --
regardless of the notice issue -- because the Act is a local law and
therefore completely prohibited under Art. IV, § 105, Ala. Const. 2022.
Even if I were to assume that standing exists for this one question, the
main opinion disagrees with the Board and concludes that the Act is a
general law. See ____ So. 3d at ____. I take no position on this conclusion.
42