In February 2025, the Georgia Bureau of Investigation opened an investigation into the Bulloch County Public Works Department to examine bidding procedures and concerns over invoices stemming from Hurricane Helene.
After the investigation was closed in August 2025, TheGeorgiaVirtue obtained the case file under the Georgia Open Records Act. The file was published in parts culminating to its conclusion and determination. All records provided to TheGeorgiaVirtue have been published.
Each Part includes the audio recording of the interview, a transcription outline, and any relevant case documents.
Part 1 – Interview with County Commissioner Ray Davis
Part 2 – Interview with Clay & Megen Conner, owners of Sand Creek Land Construction
Part 3 – Interview with Public Works Director Dink Butler & Asst. Public Works Director Robert Seamans
Part 4 – Interview with Commission Chairman David Bennett
Part 5 – Interview with Commissioner Timmy Rushing
Part 6 – Interview with Commissioner Anthony Simmons
Part 7 – Interview with Commissioners Ray Mosley & Nick Newkirk
Part 8 – Interview with Commissioner Toby Conner
Part 9 – Interview with Clay Conner & his attorney
Part 10 – GBI Provides Additional Records in Bulloch County Public Works Investigation
Case Timeline
Friday, February 28, 2025 – Commissioner Ray Davis contacts District Attorney Robert Busbee.
Friday, February 28, 2025 – District Attorney Robert Busbee requests assistance from the GBI after receiving information from a concerned resident. The letter says Busbee was notified of concerns regarding 1) bidding, and 2) an unnamed county commissioner, and) a county employee named “Dink Butler.”
Tuesday, March 4, 2025 – Bulloch County Commissioners hold their regular meeting. The issue of invoices and Sand Creek Land Construction are discussed during the public comment portion of the meeting. Meeting can be viewed here.
Wednesday, March 5, 2025 – 8:45 a.m – GBI Interviews Commissioner Ray Davis. Listen to his interview here.
Wednesday, March 5, 2025 – 1:31 p.m. – GBI Interviews Clay & Megen Conner. Listen to their interview here.
Thursday, March 6, 2025 – 8:53 a.m. – GBI Interviews Public Works Director Dink Butler & Asst. Public Works Director Robert Seamans. Listen to the interview.
GBI Interviews Chairman David Bennett Listen to the interview.
GBI Interviews Commissioner Timmy Rushing Listen to the interview.
GBI Interviews Commissioner Anthony Simmons Listen to the interview.
GBI Interviews Commissioner Ray Mosley Listen to the interview.
GBI Interviews Commissioner Nick Newkirk Listen to the interview.
Monday, March 10, 2025 – GriceConnect breaks the news that there is a GBI investigation. TheGeorgiaVirtue also notes an active GBI investigation in an article about the ethical concerns about Commissioner Toby Conner voting on the approval of funding for work completed by his brother.
GBI Interviews Commissioner Toby Conner Listen to the interview.
*No one else was interviewed by the GBI, but in July, the GBI does interview Clay Conner a second time.
April 11, 2025 – The District Attorney’s Office notifies PAC that the GBI investigation, which is still ongoing, will create a conflict for his office. The DA’s office did not formally ‘conflict out’ because the office did not receive the case file since Busbee notified PAC while the investigation was ongoing. The GBI does not forward its eventual findings to the Ogeechee Circuit DA’s office and instead consults with PAC.
Monday, July 14, 2025 – Clay Conner and his attorney submit a proffer to the GBI and Prosecuting Attorney’s Council of Georgia which prohibits the use of the content of Conner’s interview in any criminal or civil proceeding against him so long as the content is truthful and complete. The fact that the proffer has been made is also prohibited from being used in any criminal or civil proceeding against Clay Conner. Read the proffer. A copy of the document signed by the prosecutor in the case is available here.
Tuesday, August 19, 2025 – Conner and his attorney appear at the Bulloch County Commission meeting. Conner’s attorney, Jim Durham, tells the commissioners his client has been treated unfairly and that Conner voluntarily sat down with the GBI with all of the information about his business. Read the story.
Wednesday, Aug 20, 2025 – The Executive Director of the Prosecuting Attorney’s Council signs an order appointing a District Attorney Pro Tem to handle the case. (Note: This is when the order was signed, but PAC was handling the case prior to this date because the PAC prosecutor is referenced in the case file prior to this date and Busbee notified PAC of the potential conflict on April 11, 2025.)
Wednesday, Aug 20, 2025 – The Prosecuting Attorney’s Council pens a letter to the GBI stating, “Based on your findings and our analysis of the case, there is no readily provable criminal intent, and the case is declined.” Read the story.
Thursday, Aug 21, 2025 – TheGeorgiaVirtue filed an Open Records Request for the complete case file. The GBI replies the same day to report that the case is still open and pending and, therefore, the records are not available. View the email response from the GBI indicating that the file was not subject to release.
Tuesday, Aug 26, 2025 – TheGeorgiaVirtue again files an Open Records Request for the complete case file. [Documented in response from GBI here]
Tuesday, Sept. 2, 2025 – The GBI replies with the cost estimate for the case file and states the file will be ready on or before November 19, 2026 at 8:30 a.m. (Not a typo on the part of TGV, the GBI invoice lists the completion date as more than one year from the date of request. View the email response from the GBI.)
Friday, Oct. 3, 2025 – The GBI file is provided to TheGeorgiaVirtue. It notes that some personally identifiable information was redacted during preparation of the file, as is permitted under the Georgia Open Records Act.[View the email dated October 3 indicating that the case file is available for download]
October 14, 2025 – After reviewing and publishing the content case file, it was apparent that documents were missing from the Open Records Request. TheGeorgiaVirtue contacted the GBI by email, requesting the outstanding records.
October 22, 2025 – TheGeorgiaVirtue contacted the GBI by email, again requesting the outstanding records.
October 24, 2025 – The GBI provides additional files.
Case Documents
Request for assistance by Ogeechee Circuit District Attorney
Sand Creek LLC Invoice – 2183
Sand Creek LLC Invoice – 2187
Sand Creek LLC Invoice – 2188
Sand Creek LLC Invoice – 2191
Sand Creek LLC Invoice – 2192
Sand Creek LLC Invoice – 2198
Sand Creek LLC Invoice – 2199
Sand Creek LLC Invoice – 2205
Sand Creek LLC Invoice – 2206
Sand Creek LLC Invoice – 2207
Sand Creek LLC Invoice – 2208
Sand Creek LLC Invoice – 2215
Sand Creek LLC Invoice – 2216
Sand Creek LLC Invoice – 2222
Sand Creek LLC Invoice – 2223
Sand Creek LLC Invoice – 2253
Sand Creek LLC Invoice – 2258
Sand Creek LLC Invoice – 2260
Sand Creek LLC Invoice – 2263
Sand Creek LLC Invoice – 2265
Sand Creek LLC Invoice – 2270
Sand Creek LLC Invoice – 2283
Sand Creek LLC Invoice – 2289
Sand Creek LLC Invoice – 2292
Sand Creek LLC Invoice – 2300
Sand Creek LLC Invoice – 2308
Sand Creek LLC Invoice – 2314
Sand Creek LLC Invoice – 2316
Sand Creek LLC Invoice – 2318
Sand Creek LLC Invoice – 2322
Sand Creek LLC Invoice – 2325
Sand Creek LLC Invoice – 2334
Sand Creek LLC Invoice – 2335
Sand Creek LLC Invoice – 2335 Duplicate
Sand Creek LLC Invoices List
Initial Sand Creek Invoices
Sand Creek Tickets 2316
Sand Creek Tickets 2308
Sand Creek Tickets 2292
Sand Creek Tickets 2283
Derriso Invoice
SDR Invoice
Thompson Invoice
Anthony Simmons Newspaper Excerpt
TarCo Business Search
Bulloch County Public Works Policy
This document was created by the Georgia Bureau of Investigation and was included in the case file under the Georgia Open Records Act. It was watermarked only due to the cost of the case file incurred by TGV.
