THI RD DI VI SI ON

DI LLA R D, C. J.

, GOBEI L and HODGES, JJ.

N O T IC E : M otions for r e c ons i de r a tion m us t be

ph y sic a l ly r e ce iv ed i n our c le r k ’s offic e w ithin te n

da y s of the da te of de c is ion to be de e m ed tim e ly file d.

http://w w w .ga a ppe a l s .us /r ule s

June 28, 2019



# I n th e Co u r t o f

A p p eals o f

G eo r g ia

A1 9 A0 61 5

. GEORGIA DEPARTM ENT OF COM M U NITY

HEALTH v

. EM ORY UNIVERSITY, et al

.

G O B E I L

, J u d g e.

T h e Co m m is s i o n er o f t h e Geo rg i a Dep art m en t of Co m m u ni t y Heal t h (“ t h e

C o m m i s s i o n er”) ru l ed t h at Em o ry Un i v ers i t y Ho s p it al (“ EUH”) co u l d n o t s ev er i t s

cert ifi cat e o f n eed (“ CON”) fo r a 1 6 -b ed , i n -p at ien t reh ab i l i t at i o n p ro g ram fro m i t s

h o s p it al li cen s e 1 an d t h ereaft er t ran s fer bo t h t h e p r o g ram an d t h e CON t o an o t h er,

s ep arat el y -l i cen s ed faci l i t y l o cat ed o n t h e Em o ry Un i v ers i t y c a m p u s

. In s t ead

, t h e

Co m m i s s i o n er d et erm in ed t h at t h e s ep arat el y l icen s ed faci li t y

, Em o ry Reh ab i l i t at i o n

Ho s pi t al (“ Em o ry Reh ab ”), wo u l d b e req u i red t o o b tai n i t s own CON fo r t h e 1 6

1 In t h i s co n t ex t

, t h e term “ l i cen s e” refers t o a p erm i t i ss u ed t o a h eal t h care

faci li t y by t h e Dep art m en t o f Co m m u n i t y Heal t h ’ s Heal t h car e F a c i l i t y Reg u l at i o n

Di v is i o n

, p u rs uan t t o OCGA § 3 1 -7 -1

, et s eq

. A faci li t y ’ s l i c e n s e i s s ep arat e an d

d i s t i n ct fro m i t s CON au t h o ri zat i o n

, wh i ch i s g ov ern ed b y OCGA § 3 1 -6 -4 0 et s eq

.ad d it i o n al b ed s i t s o u g h t t o acq u i re fro m EUH. EUH an d Em o ry Reh ab (co l l ect i v el y

,

“ Em o ry ”) ap p eal ed t h e Co m m i s s i o ner’ s d eci s i o n to th e Su p eri o r Co u rt o f DeKal b

Co u n t y

, wh i ch rev ers ed t h e Co m m i s s i o n er an d hel d t h at E UH co u ld t ran s fer t h e CON

fo r i t s i n-p at i en t reh ab i l i t at i on p ro g ram an d t h e 1 6 b ed s as so ci at ed wi t h th at p ro g ram

t o Em o ry Reh ab

, wi th ou t Em o ry

Reh ab h av in g t o o b t ai n i t s p ri o r CON ap p ro v al

.

Th e Dep art m en t o f Co m m u n i t y Heal t h (“ DCH”) n o w ap p eal s t h e s u p eri o r

co u rt ’ s ru l i n g, arg u i n g t h at t h e co u rt co m m it t ed l eg al erro r i n fi n d in g : (1 ) th at a CON

i s su ed t o a s p eci fi c p art y fo r a s p eci fi c p ro g ram co u l d be t ran sferred (t o get h er wi th

t h e p ro g ram ) t o a d i fferen t h eal t h care faci l i t y n o t n am ed o n t h e o ri g in al CON; an d (2 )

t h a t E m o ry Reh ab ’ s ad d it i o n o f 1 6 b ed s to i t s ex i s t in g i n -p at i en t reh ab i l i t a t i o n

p ro g ram d i d n ot co ns t it u t e an ex p an s i o n o f th at p ro g ram req ui ri n g CON rev i ew an d

ap p ro v al

. 2 Fo r reas o n s ex p l ai n ed m o re fu ll y b el o w

, we ag ree th at th e s up eri or co urt ’ s

o rd er co n fl i ct s wi th t h e p l ai n l an g u ag e o f Geo rg i a’ s CON s t at u te (OCGA § 3 1 -6 -4 0,

2 Em o ry d ev o t es a s ig ni fi can t po rt i o n o f i t s b ri ef to arg u i n g t h at DCH has fai l ed

t o i d en t i fy w i t h t h e req u i si t e s p eci fi ci t y an y ru l i n g b y th e s u p eri o r co u r t t h a t

co n st i t u t es l eg al erro r. W e a g r e e t h at DCH co u ld h av e b et ter art i cu l at ed i t s

en u m erat i o n o f erro r. Nev ert h el es s

, d e s p i t e Em ory ’ s arg um en t s t o t he co n t rary

, an

a s s ert i on t h at t h e t ri al co u rt ’ s ho l d i n g o n o n e o r m o re i s s u es is i n co n fl i ct w i t h t h e

rel ev an t s t at u t o ry l aw i d en t i fi es a s p eci f i c ru l in g b y t h e s u p eri o r co urt co n s t i t u t i n g

l eg al erro r. M o reo ver, i t ap p ears t h at Em o ry h ad n o p ro b l e m d i s cern in g DCH’ s cl ai m s

o f erro r, as i t s b ri ef res p on d ed t o t h e s am e.

2et seq

. ) an d t h e ad m in i s t rat i ve reg u l at i o ns p ro m u l g at ed t h ereu n d er. Acco rd i n g l y

, we

rev ers e t hat o rd er.

Th e Un d er l yi n g Fa ct s

Th e fact s un d erl y i n g t hi s ap p eal are u nd i s pu t ed an d s h ow t h at EUH i s o wn ed

b y Em o ry Un i v ers i t y an d i s l o cat ed at 1 3 6 4 Cl i ft o n Rd

. , N E o n t h e Un i v ers i t y ’ s

cam p u s

. Fro m 1 9 7 7 u n t i l J u l y 1

, 2 0 1 4

, E UH o p erat ed an i n

- p a t i e n t reh ab i l i t at i o n

faci li t y k n o wn as th e Cen t er fo r Reh ab i l i t at i o n M ed i ci n e (t h e “ CRM ”). Th e CRM was

l o cat ed at 1 4 4 1 Cl i ft o n Rd

. NE, i n a frees t an d in g b u i l d i n g o n t h e Em o ry U ni v ers i t y

cam p u s

. Th e CRM o p erat ed u n d er EUH’ s l i cen s e, an d EUH h ad a CON t h at al l o wed

the C R M t o o perat e a 5 6 -b ed co m p reh en s i v e i n-p at i en t reh abilita tion pr ogr a m ( “ C I P R

p ro g ram ”). In 20 1 3

, EUH s o u g h t t o “ d eco u p l e” t h e CRM fro m it s l i cen s e, o b t ai n a

s ep arat e l i cen s e fo r t h e C R M

, a n d th en t ran s fer t h e CON fo r t h e CRM (wh i ch h ad

b een h el d u n d er EUH’ s li cen s e) t o t he n o w in d ep en d en t l y l i cen s e d C R M

. T h u s

, in

No v em b er 2 0 1 3

, EUH req u es t ed a let t er o f d et erm i n at io n fro m DCH co n fi rm i n g t h at

i t d i d n o t n eed t o o bt ai n p ri o r CON rev i ew an d ap p ro v al t o deco u p l e bo t h t h e CRM

an d t h e CRM ’ s CON fro m EUH’ s l i c e n s e. DCH i s s u ed t h e req u es t ed l et t er o f

d e term in at io n

, co n fi rm i n g t h at EUH co u ld p ro ceed wi t h i t s p l an wi t h o u t o b t a i n i n g

a n ew CON fo r t h e CRM

. DCH d et erm i n ed t h at a n ew an d s ep arat e C O N w a s n o t

3req u i red becau s e “ [t ] h e p ro p o s ed deco up l i n g o f t h e heal t h care faci l i t y li cen s e d o es

n o t i n v o l v e an y d efi n ed n ew i n st i t u t i o n al h eal t h s erv i ce becau s e t h ere wi l l be n o b ed

i n creas e, n o n ew s erv i ces o ffered at EUH o r th e CRM

, an d n o cap i t al ex pen d i t u re

ab o ve th e [s t at u t o ry ] t h res h o l d .” Ad d it i o n al l y, D C H n o t ed t h at ev en aft er t h e

d e c o u p l i n g “ [t ] h ere wi l l s ti l l b e o n l y on e CIPR s erv i ce at t h e CRM l o cat i o n wi t h i n

t h e s co p e o f t h e [ex i s t in g CON] .”

Aft er t h e DCH l et t er o f d et erm i n at i o n i s s u ed

, EUH d eco up l ed t h e CRM fro m

i t s l i cen s e, o bt ai n ed a s ep arat e li cen s e fo r t h e faci l i t y

, an d t ran s ferred t h e CON t o t h e

n ew l i cen s e. On J u l y 1

, 2 01 4

, th e CRM was acq u i red b y ES R e h a b i l i t at i o n

, LLC, 3

wh i ch no w o perat es t h e faci li t y an d it s CIPR p ro g ram un d er t h e n am e Em o ry

Reh ab i l it at i o n Ho s pi t al

. In d ep en d en t of t he C RM / Em o ry Reh ab

, h owev er, EUH

co n t i n u e d t o m ai n t ai n a CON fo r i t s o w n 16 -b ed CIPR p ro gram

. 4 T hat pro g ram i s

h o u s ed i ns i d e t h e h o s pi t al

, i s ad m i n i s t e r e d b y EUH fo r i ts p at ien t s

, an d o p erat es

u n d er EUH’ s h o s p i t al l i cen s e.

3 ES Reh ab i l it at i o n

, LLC i s a jo i n t v en t u re t h at is m ajo ri t y o wn ed b y Em o ry

Reh ab i l it at i o n

, LLC, a wh ol ly -o wn ed s ub s id i ary o f Em o ry Heal t h care, In c. Em o ry

Heal t h care, i n t u rn

, i s wh o l l y own ed b y E m o ry Un i v ers i ty

, d / b /a E m o r y U ni v ers i t y

Ho s pi t al

.

4 It i s u n di s pu t ed t h at t hi s CON i s s ep arat e fro m EUH’ s CON fo r an acu t e care

h o s p it al

.

4Ad

mi n i s t r a t i ve Pr o ceed i n g

s

In 2 0 1 6

, E UH an d Em o ry Reh ab ag reed t h at EUH wo u l d d e c o u p l e i t s CIPR

p ro g ram an d t h e as s o ci at ed CON fro m i ts h o s p i t al l i c e n s e an d t ran sfer b o t h t h e 1 6

b ed s as s o ci at ed wi th t he p ro g ram an d t h e CON t o Em o ry Reh ab . On Decem

b er 1 6,

2 0 1 6

, EUH an d Em o ry Reh ab s u b m i t t ed a jo i n t re q u e s t fo r det erm in at io n t o DCH

s eek i n g co n fi rm at i o n th at s u ch a deco u p l in g an d tran s fer wo u ld n o t req u i re p ri o r

CON rev i ew an d ap p ro val

.

On Feb ru ary 2 4

, 2 01 7 DCH pro v i ded t h e req u es t ed let t er o f d et erm i n at i o n,

i n fo rm i n g E m o ry t h at i t co u l d r e l o cat e th e EUH CIPR p ro g ram b ed s t o t h e Em o ry

R e h a b f a c i l i t y

, b u t t h at i t co u l d n o t t ran s fer ei t h er t h e CON fo r t h at p ro g ram o r t h e

p ro g ram i t s el f t o E m o ry Reh ab

. DCH ex pl ai n ed t h at s t at u t o ry l aw d i d n o t al l o w o n e

l i cen sed h eal t hcare faci l it y to t ran s fer a CON t o an o t h er l i cen s ed h eal th care faci l i t y

,

u n l es s t h e t ran s fer o ccu rs as p art o f a t ran s act i o n wh ereb y t he t ran s feree i s acq u i ri n g

t h e tran s fero r. DCH fu rt h e r n o t ed t h at t h e t ran s fer i n t h i s cas e wo u l d res u l t i n an

ex p an s i o n of Em o ry Reh ab ’ s ex i s t i n g CIPR p ro g ram fro m 5 6 b ed s t o 7 2 bed s

. Th u s

,

u n d er ap p l i cab l e reg u l at i o n s, b efo re acquiri n g t h e E U H CIPR p ro g ram

, E m ory Reh ab

wo u l d n eed to ob t ai n p ri o r CON rev i ew an d ap p ro v al al l o wi n g i t t o ex p an d i t s

ex i s t in g p ro g ram

.

5Em o ry fi l ed a req ues t fo r an ad m i n i s t rat iv e h eari n g on DCH’ s d et erm i n at i o n,

an d th at h eari n g o ccu rred i n J un e 2 0 1 7

. Th e h eari n g o ffi cer t h ereaft er i ss u ed a wri t t en

o rd er i n wh i c h h e rev ers ed DCH’ s i n i t ial det erm in at io n an d g ran t ed s u m m ary

ad ju d i cat i o n in fav o r o f Em o ry

. In do i n g s o

, t he h eari n g o ffi cer rel i ed on p ri o r DCH

d et erm i n at i o n s t o co n cl u d e t h at EUH co u l d d eco u pl e t he CON fo r i t s CIPR p ro g ram

fro m i ts h o s p i t al l i cen s e, as s u ch d eco u p li ng w ou l d n o t res u l t i n an y n ew s e r v i c e s

,

n ew b ed s

, o r cap i t al ex p en d i t u res ab ov e t h e s t at u to ry t h res h ol d s et fo rt h in t h e CON

s t at u te. Th e h eari n g o ffi cer fu rt h er co n cl u ded t h at Em o ry Reh ab co u ld acq ui re EUH’ s

CIPR p ro g ram wi th ou t p ri or CON rev i ew an d ap p ro v al

. In s up p o rt o f t h i s co n cl u s i o n,

t h e h eari n g o ffi cer fo u n d t h at EUH’ s CIPR p ro gram

, s t an d in g al o n e, m et t h e st at u t o ry

d efi n i t i o n of a “ h eal t h care fa c i l i t y. ” Th u s

, b ecau s e Em o ry Reh ab was acq u i ri n g a

h eal t hcare faci l i t y

, i t c o u l d al s o acq u i re t h e CON b el on g in g t o t h at faci l i t y

.

Ad d i t i o n al l y

, t h e o ffi cer fo u nd t h at Em o ry Reh ab ’ s ad d i t i o n o f 1 6 b ed s t o i t s CIPR

p ro g ram d i d n o t co n s t i tu t e an ex p an s i o n o f i ts ex i s t in g p ro g ram req u i ri n g p ri o r CON

rev i ew an d ap p ro v al

. Th e o ffi cer ag ai n reas o n ed t h at t h e acq u i s i t i o n o f EUH’ s CIPR

b ed s was t h e eq u i v al en t o f a m erg er o f t wo h eal t h care faci l i t i es

, wh o were co m b i n i n g

t h ei r CO N s u n d er a s i n g l e l i cen s e, an d t h erefo re n o ad di t i o n al b ed s were “ act u al l y

b ei n g creat ed o r co n s t ru ct ed .”

6DCH ap p eal ed t h e h eari n g o ffi cer’ s ord er t o t h e Co m m i s s i o ner. Rel y i ng o n t h e

rat i o nal e s et fo rt h i n DCH’ s o ri g i n al l et t er o f det erm in at i o n

, t h e C o m m i s s i o n er

r e v e rs ed t h e o rd er of t h e h eari ng o ffi cer an d fo u n d t h at EUH co u ld n o t t ran s fer t h e

CON fo r i t s CIPR p ro g ram an d t h at Em o ry Reh ab co u l d n o t acq u i re th at p ro g ram

wi t h o u t fi rs t o b t ai n in g CON rev i ew an d ap p ro v al

.

Th e S u p er i o r Co u r t Or d

er

Em o ry ch al l en g ed t h e Co m m i s si o n er’ s d eci si o n

, fi l i n g a p et i t i o n f o r ju d i ci al

rev i ew i n DeKal b Co u n t y Su p eri o r Co u rt

. Fo l l o wi n g a h e ari n g

, t he s u p eri o r co u rt

g r a n t e d E m o ry ’ s p et i ti o n an d rev ers ed t h e d eci s i o n of t h e Co m m i ss i o ner. W i th

res p ect t o i t s rev ers al o f t h e Co m m i s s i o n er’ s co n cl u s io n t h at EUH co u l d no t d eco u p l e

a CON f r o m i ts l icen s e an d t h en t ran s fer t h e CON t o an o t her l i cen s ed h eal t h care

faci li t y

, t h e su p eri o r co u rt ’ s rat i o n al e i s u n cl ear. It ap p ears

, ho wev er, t h at t h e co u rt

fo u n d, at l eas t i m

pl ici t l y

, t h at EUH’ s CIPR p ro g ram co n s t i tu t e d a “ heal t h care

faci li t y ” b ei n g acq u i red b y E m o ry Reh ab

. Bas ed o n t h i s fi nd i n g

, t h e co u rt co n cl u d ed

t h at DCH v i o l at ed t he CON st at u t e an d ex ceed ed i t s au t h o ri t y t h ereu n der b e c a u s e

t ran s fer o f t h e CIPR pro gram d i d “ n o t i n v o lv e t he es t ab l i s h m en t o f a n ew h eal t h care

7faci li t y o r o t h er n ew i n s t it u t i o n al h eal t h serv i ce.” 5 Ad d it i o n al l y

, t he co u rt co n cl u d ed

t h at D CH’ s d et erm i n at io n wi t h res p ect t o t h e d eco u p li n g an d t ran s fer o f th e CON was

“ arb i t rary an d cap ri ci o us ” b ec a u s e DCH h ad m i s ch aract eri zed EUH’ s req u es t as

i n v o l v i n g t h e s ev eri n g an d t ran s ferri n g o f “ p o rt i o n s o f an ex i s t i n g CON” rat h er t h an

a d eco up l i n g o f a p r o g r a m

- s p eci fi c CON fro m EUH’ s h o sp i t al l i cen se. Pu t an o t h er

way

, t h e co u rt fo u n d th at DCH h ad at t em pt ed t o t reat th e CON fo r t h e CIPR p ro g ram

as p art o f E UH’s C O N f o r a n acu t e care h o s p i t al

. Th e co u rt al s o rel i ed o n p ri o r

d et erm i n at i o n s b y DCH ad d res s i n g wh en a h o s p i t al m ay d eco u pl e a CON fro m i t s

l i cen se an d t ran sf

e r i t t o t h e l i cen s e o f an ot h er faci li t y t o fi n d t h at DCH’ s d eci s i o n

was arb i t rary an d cap ri ci o u s

.

W i t h res p ect t o t h e Co m

m i s s i o n er’ s ru l i ng t h at E m o ry Reh ab was req u i red to

o b t ai n CON rev iew an d ap p ro v al b efo re ex p an d i n g i t s CIPR p ro g ram fro m 5 6 t o 7 2

b ed s, t he s u p eri o r co u r t f o u n d t h at Em o ry Reh ab ’ s acq u i s i t i o n o f EUH’ s CIPR

p ro g ram was t he eq u i val en t o f Em o ry Reh ab acq u i ri ng a h eal th care fac i l i t y. T h u s

,

t h e co u rt co n cl u d ed t h at Em o ry Reh ab co u l d co m b i n e b o t h CONs u n d er it s l i cen s e.

5 Un der O CGA § 3 1 -6 -4 0

, a CON m u s t b e ob t ai n ed fo r “ an y n ew i n s t i t u t i o n al

h eal t h serv i ce,” wh i ch i s d efi n ed to i n cl u d e, i n t er al i a, t h e “ co n s t ru ct i o n,

d ev el o p m en t

, o r o t h er es t ab l i s h m en t o f a n ew h eal t h care faci l i t y

. ” OCGA § 3 1 -6 -4 0

(a) (1 ).

8Th e co u rt al so fo u n d t hat t h e Co m m is s i o n er’ s ru l in g o n t h i s i s s u e was arb i t rary an d

cap ri ci ou s b e c a u s e it vi ol at ed t h e CON s t at u te an d ex ceed ed DCH’ s au t h o ri t y

t h ereu n d er. Th e co u rt fu rt h er co n cl u ded t hat i n m ak i n g h i s ru l i n g

, t h e Co m m i s s i o n er

h ad m i s ch aract e ri zed t h e fact s u n d erl y i n g Em o ry ’ s req u es t fo r a d et erm i n at i o n.

Acco rd in g t o t h e s u p eri o r co u rt

, t h i s m is ch aract eri zat i o n res u l t ed fro m DCH’ s

“ i n si s t en ce” t h at E UH w as s eek i n g t o t ran s fer o n ly h os p it a l b e d s

, as o p p o s ed to

EUH’ s en t ire CIPR p ro g ram

.

Qu es t i o n s o n Ap

p ea l

DCH fi l ed an ap p l icat i o n fo r d i scret i o n ary ap p eal fr o m t he su p eri o r co urt ’ s

o rd er. W e g ran t ed t h at ap p l i cat i o n , an d t h i s ap p eal fo l l o wed

.

A co u rt cal led u p on t o rev i ew a fi n al ag en cy deci s i o n “ s h al l no t s ub s t i t u t e i t s

ju d g m en t fo r t h at of t he ag en cy as t o t h e wei g h t o f t h e ev i d en ce o n q u es t io n s o f fact .”

OCGA § 5 0 -1 3 -1 9 (h ). Th us

, th e rev iewi n g co u rt m ay rev ers e an ag en cy d eci s i o n

o n l y i f:

s u b s t an t i al ri g h ts o f t h e ap p el l an t h av e b een p reju d i ced b ecau s e th e

ad m i n i s trat iv e fi nd i n g s, i n feren ces

, co n cl us i o n s

, o r d eci s i o n s are: (1 ) In

v i o l at i o n o f co n s t i t u t i o n al o r s t at u t o ry pr o v i s i o ns ; (2 ) In ex ces s o f th e

s t at u t o ry au t h o ri t y of t h e ag en cy ; (3 ) M ad e u p o n u nl awfu l p ro ced u re;

(4 ) Affect ed by o t h er erro r o f l aw; (5 ) Cl earl y erro neo u s i n v i ew o f th e

rel i ab l e, p ro b at i ve, an d s u b s t an t i al ev i d en ce on t he wh o l e reco rd ; o r (6 )

9Arb i t rary o r cap ri ci o u s o r ch aract eri zed b y ab u s e o f d is cret i o n o r cl earl y

u n warran t ed ex erci se o f d i s cret i o n.

Id

.

In l i g h t o f t h is s t at u to ri l y l i m i t ed s co p e of rev i ew, a rev i ewi n g co u rt i s l i m i t ed

t o d et erm i n i ng t wo t hi n g s

. Fi rs t

, t h e rev i ewi n g co u r t m u s t d et erm in e wh et h er an y

ev i d en c e s u p p o rt ed t h e ag en cy ’ s fi n d i ng s of fact

. Pr u i tt Co r p. v. Ga

. Dep t

. of

C o m m u n i t

y Hea l t h

, 2 8 4 Ga. 1 5 8

, 1 6 1 (3 ) (6 6 4 SE2 d 2 23 ) (2 0 0 8 ). Nex t, t h e co u rt

as s es s es w h et h er t h e ag en cy ’ s l eg al co ncl u s i o ns b as ed o n t h o s e fact u al fi nd i n g s are

erro n e o u s

. Id

. Th u s, i n an ap p eal fro m a s u p eri o r co u rt ’ s rev i ew o f a fi n al ag en cy

d eci s i o n

, “ o u r du t y i s n o t t o rev i ew wh et h er t he reco rd s u p po rt s t h e s u p eri o r co urt ’ s

d eci s i o n

, b ut wh et h er t h e reco rd s u p p o rt s [t h e fact u al fi n d i n gs u n d erl y i n g ] t h e fi n al

d eci s i o n o f t h e ad m i n i s t rat i v e ag en cy .” No r t h Ea s t G a

. Med

. Cen t er v. W i nd er HMA,

In c.

, 3 0 3 Ga. Ap p. 5 0

, 5 5 (2 ) (6 9 3 SE2 d 1 1 0 ) (2 0 1 0 ) (ci t at i o n a n d p u n c t u a t i o n

o m it t ed ). W e al s o “ d et e r m i n e wh et h er th e su p eri o r co u rt h as [,] i n i t s o wn fi n al

ru l i n g[,] co m

m i t t ed an erro r o f l aw.” Ca r o l in a To b a cco Co . v. Ba ker

, 2 95 Ga. Ap p.

1 1 5 , 1 1 8 (1 ) (6 7 0 SE2 d 8 11 ) (2 0 0 8 ) (ci t at i o n an d p u n ct u at i o n o m i t t ed ).

Th e cu rren t ap p eal pres en t s t wo leg al q u es t i o n s

. Fi r s t

, d i d t h e su p eri o r co u rt

err i n fi nd i n g t h at Geo rg ia’ s CON s t at u t e al l o ws EUH t o s ev er th e CON fo r it s 1 6 -b ed

10CIPR p ro g ram fro m i t s ho sp i tal l i cen s e an d t h ereaft er t ran s fer b o t h t h e CON an d t h e

p ro g ram t o an o t h er l i cen sed h eal t h care faci l i t y ? Seco n d

, d i d t h e s u p eri o r co u rt err in

co n cl u d in g th at t he CON s t at u t e an d rel at ed reg u lat i on s al l o w Em o ry Reh ab to

ex p an d i t s 5 6-b ed CIPR p ro g ram t o 7 2 b ed s b y acq u i ri n g EUH’ s p ro gram an d CON,

an d wi t h o u t o b t ai n in g p ri o r CON rev i ew an d ap p ro v al fo r an ex p an ded p ro g ram ? W e

ad d res s each o f t h es e q u es ti o ns b el ow.

1

. W e fi rs t co n s id er wh et h er Geo rg i a’ s CON s t at u t e al l o ws EUH t o d eco u p l e

i t s CIPR p ro gram an d rel at ed CON fro m i t s h o s p i tal li cen s e an d t h ereaft er t ran s fer t h e

s am e t o Em o ry Reh ab

. At t h e o u t s et o f o u r an al y s i s, we n ot e t h at in co n cl u d i n g t h at

E UH c o u l d en g ag e i n t h e p ro p o s ed t ran sact i o n

, t h e s u p eri o r co u rt rel ied o n p r i o r

d et erm i n at i o n s b y DCH ad dres s i n g wh en a h o s p i t al m ay d eco u pl e a CON fro m i t s

l i cen se a n d t ran s fer i t t o t h e l i cen se o f an o t h er faci l i t y

. W e fi n d t h i s rel i an ce

m i s p l aced , fo r s ev eral reas o n s

.

Fi rs t

, a s ex p l ai n ed m o re fu l l y b el o w, co u rt s are n o t bo u nd by ad m in i s t rat i v e

ru l i n g s

. S a wn ee El ec. Memb er

s h i p Co r p

. v. Ga

. P u b l i c Ser v. Co mm.

, 2 7 3 Ga. 7 0 2,

7 0 6 (5 44 SE2 d 1 5 8 ) (2 0 0 1 ). M o reo ver, as art i cu l at ed in th e ad m inistr a tive r eg u l at i on s

ap p li cab l e t o t h e CON p ro ces s , d et erm i n at i on s b y DCH

11are co n cl u s i o ns o f [DCH] t h at are b as ed o n s p eci fi c fact s an d are li m i ted

t o t h e s p eci fi c i s s u es ad d res s ed i n t h e req u es t fo r d et erm i n at i o n

. . . .

Th erefo re, t h e co n cl u s i o n s o f a s p eci fi c d et erm i n at i o n

. . . s h al l h av e n o

b i n d i n g p reced en t i n rel at i o n t o p art i es n o t s u b ject t o t h e req u es t an d t o

o t h er fact s o r fact u al s it u at i o n s t h at are n o t p res en t ed i n t h e req u es t

.

Ga. Co m p

. R. & Reg s. 1 11 -2 -2 .1 0 (1 ) (a). An d h ere, t h e p ri o r d et erm in at i o n s rel i ed

o n b y th e s u p eri or co u rt h av e l i t t l e, i f an y , rel ev an ce t o t h e cas e at h an d.

Each of t ho s e d e t e r m i n at i o n s i nv o l ved a s i t u at i o n wh ere a h o s p i t al h el d a

s ep arat e CON f

o r a d i s t i n ct p h y s i cal faci l i t y t h at i t op erat ed u n d er t h e ho s p i t al ’ s

l i cen se. Th u s

, i n th os e cas es

, t he h o s p i t a l was s eek i ng t o d eco u p le b ot h t h e faci l i t y

an d t h e s ep arat e CON i t h el d fo r t h at faci l it y fro m t h e h o s p it al ’ s l i cen s e, h av e t h e

s ep arat e faci l i ty o bt ai n i t s o w n l i cen s e, an d t h en t ran s fer t h e CON f o r t h a t fa ci l i t

y to

t h e faci l i ty ’ s l i cen s e. An d i n each o f t h o s e cas es

, DCH fo u n d t h at t h e h o s p i tal co u ld

en g ag e i n t h at p ro ces s w i t ho u t ob t ai n i n g p ri o r CON rev i ew an d au t h o ri zat i o n

. See In

Re: S a va n n a h Reh a b i l i t at io n Ho s p i t a l

, DET 2 0 14 -1 1 0; In Re: Ho s p it a l Au t h o r i t

y of

Lo wn d es Co u n t y, et a l

. , DET 2 0 1 2 -1 5 6 ; In Re: S o u t h er n Reg i on a l Hea l t h S ys t em, et

a l

. , DET 2 0 0 8 -0 13 ; In R e: Gwi n n et t Ho sp i t a l Sys t em, et al

. , DET 2 0 0 8-0 0 8

. Th e fact s

u n d erl y i n g t h es e d et erm i n at i o n s

, h o wev er, are n ot an al o g o u s t o t h e fact s un d erl y i n g

t h i s ap p eal

. Sp e c i f

i c al ly

, E UH i s n o t s eek i n g t o d eco u p l e a CON t h at i t h ol d s fo r a

12p ro g ram ad m i n i s t ered b y an d l o cat ed at Em o ry Reh ab

. I n s t e ad

, EUH i s s eek i n g to

d eco up l e a CON fo r a pro gram fo r EUH p at i en ts th at is ad m i n i s tered b y EUH, u n d er

EUH’ s h o s p i tal l i cen s e, an d t h at i s l o cat ed i n EUH’ s h o sp i t al faci l i t y

. 6

Fi n al l y

, an d m o s t i m

po rt an t l y

, t h e su p eri o r co u rt erred i n rel y i n g o n t hes e p ri o r

DCH det erm i n at i o n s becau se t h e q ue stion b efo re th e co urt was n o t w h et h er D CH h ad

,

i n o t h er s i t u at i o n s

, p rev i ou s l y p erm i t t ed a d eco u p li n g of a C O N f r o m a h o s p i t al

l i cen se. Rat h er

, a s n ot ed ab o v e, t h e q u es ti o n was wh et h er Geo rg i a’ s CON s t at u t e

al l o ws Em o ry t o av oi d p ri o r CON rev i ew an d ap p ro v al fo r t h e t ran s act i o n p ro p o s ed

i n t hi s cas e. W e t u rn n o w t o t h at q u es t i on

.

Geo rg i a’ s CON s t at u t e p ro v i d es , i n rel ev an t p art :

A cert i fi cat e o f n eed sh al l b e v al i d o n l y fo r t h e d efi n ed s co p e, l o cat i o n

,

c o s t

, s erv i ce area, an d p ers o n n am ed i n an ap p li cat i o n

, as it m ay b e

am en d ed

, an d as s u ch sco p e, l o cat i o n

, s erv i ce area, co s t

, an d p ers o n are

ap p ro v ed b y [DCH]

, u n l es s s u ch cer t i f i c a t e o f n eed own ed by a n

exi s t i n g h ea l t h ca r e

f a ci l i t y i s t r a n s fer r ed t o a p er

s o n wh o a cq u ir es s u ch

exi s t i n g f a ci l it y. In su ch ca s e, t h e cer t i

f i ca t e o f need sh a ll b e va li d f

o r

6 In req u es t i n g a l e t t er o f d et erm i n at i o n

, EUH d es cri b ed i t CIPR p ro g ram as

“ s i x teen (1 6 ) i n-p at ien t reh ab i l it at i o n b ed s ” l o cat ed at EUH (1 3 6 4 Cl i ft on Rd .) EUH

al s o ex pl ai n ed t h at t h e pro gram i s o ffered “ as p art o f [EUH’ s ] in -p at ien t h o s p i t a l

co m p l em en t u n d er i t s g en eral acu t e care l i cen s e.” Th u s

, t h e p ro g ram i s o p erat ed by

EUH, fo r p at i en ts o f EUH, i n t h e EUH h os p it al faci l i t y

.

13t h e p er s on wh o a cq u i r es s u ch a f aci l it y an d fo r th e s co p e, l o cat io n

, co s t

,

an d s erv i ce area ap pro ved b y [DCH]

.

OCGA § 3 1 -6 -4 1 (a) (em p h as i s s u p p l ied ).

Pres u m a b l y rel y i n g o n t h e ab o v e-i t al i ci zed l an gu ag e, t he su p eri o r co u rt

i m p l i ci tl y fo u n d t h at E UH’ s CIPR p ro gram

, s t an d i n g al o ne, co n s t it u t es a “ h eal t h care

faci li t y ” wi t h i n t he m ean i ng o f OCGA § 31 -6 -4 1 (a). Th u s, t he co u rt ap p aren t l y

reas on ed t h at Em o ry Reh ab ’ s acq u i s i t i on o f EUH’ s CIPR p ro g ram m ean t th at EUH

co u ld t ran s fer to Em o ry Reh ab t h e CON as so ci at ed w i t h t h at p ro g ram

. W e di s ag ree.

Fo r p u rp o s es o f t h e CON s t at ut e, “ h eal t h care faci l i t y ” i s d efi n ed as :

h o s p i t al s ; d es t i n at i o n can cer h o s p i t a ls ; o th er s p eci al care u n i t s

,

i n cl u d i n g b u t n o t li m it ed t o p o d i at ri c faci l i t i es ; s k i l led n u rs in g faci l i t i es ;

i n t erm ed i at e care faci l it i es ; p e r s o n al care ho m es ; am b u l at o ry su rg i cal

cen t ers or o bs t et ri cal faci l i t i es ; h eal t h m ai n t en an ce org an i zat i o n s ; h o m e

h eal th ag en ci es ; an d di ag n o s t i c, t reat m en t

, o r reh ab i l i t at i on cen t ers

. . .

OCGA § 3 1 -6 -2 (1 7 ). 7

7 N o t a b l y

, Em o ry ’ s bri ef fai l s t o ack n o wl ed g e t h i s d efi n i ti o n

. As a res u l t

, Em o ry d o es n ot o ffer an y reas on ed arg um en t o r ci t at i on t o l eg al au th o ri t y t o s u p p o rt

i t s arg u m en t t h at EUH’ s CIPR pro g ram fal l s wi t h i n t he s t at u t ory d efi n i t i on o f “ h eal th

care faci l i t y .”

14Th e s t at u t e fu rt her d efi n e s d i fferen t t y pes o f h eal t h care faci l i t i es as

“ i n s t i t ut i o n s ” or “ faci l it ies ,” i n d i cat i n g th at

, as a g en eral ru l e, heal t h care faci l i t i e s

h av e a d i s t in ct an d s el f- c o n t ai n ed p h y s i cal l o cat i o n. See O CGA § 3 1 -6 -2 (1 )

(“ ‘ [a] m bu l at o ry s u rg i cal cen t er o r o b s t et ri cal faci l it y’ m ean s a p u b l i c or p ri v at e

faci li t y

, n o t part o f a h o s pi t al

, . . . ” ) ; O CGA § 3 1-6 -2 (1 3) (“ ‘ [d ] es t in at i o n can cer

h o s p it al ’ m ean s an i n s t it u t i o n wi t h a l i cen s ed b ed cap aci t y o f 5 0 o r l es s

. . . “ ); OCGA

§ 3 1-6 -2 (1 6 ) (“ ‘ d i a g n o s t i c, t reat m en t

, o r reh ab i l i t at i o n cen ter’ m ean s an y

p ro fes s i on al or b u s i n es s u n d ert ak i n g

. . . wh i ch o ffers

. . . an y cl i n i cal h eal t h s erv i ce

i n a s et t in g wh i ch i s n o t p art o f a h o s p it al

. . .”); OCGA § 3 1 -6 -2 (2 1 ) (“ ‘ [h ] o s p i t al ’

m ean s an i n s t i t u t i o n wh i ch is p ri m ari l y en g ag ed i n p ro v i d i n g [s erv i ces ] t o i n -p at i en t s

. . .”); OCGA § 3 1 -6 -2 (2 2 ) (“ ‘ [i ] n t erm ed i at e care faci l i t y ’ m ean s an i n s t i t u t io n wh i ch

p ro v id es

. . . h e a l t h r e lat ed care an d s erv i ces t o i n d i vi d u al s

. . .”); OCGA § 3 1 -6 -2

(3 4 ) (“ ‘ [s ] k i l l ed nu rs i n g faci l it y ’ m ean s a p ub l i c o r p ri v at e i n st it u t i o n o r a d i s t i n ct p art

[t hereo f] wh ich i s p ri m ari l y en g ag ed i n pro v i di n g i n -p at i en t s k i l l ed n u r s i n g care

. .

.”). In o t h er wo rd s

, th e l an g uag e o f t h e s tat u t e i n di cat es t h at a h eal t h care faci l i t y d o es

n o t gen eral l y h o u se an d ad m in i s t er a s eco nd h eal t h care faci l i t y fo r t h e b en efi t o f t h e

fi rs t faci li t y ’ s p at i en ts

.

15Read i n g OCGA § 3 1 -6 -2 as a wh o le, t h erefo re, i t i s cl ear t h at th e d efi n i t i o n o f

“ h eal t h care faci l i t y ” d o es n o t en co m p as s a sp eci al i zed p ro g ram o p erat ed b y an d

wi t h i n a l i cen s ed h eal t h care faci l i t y

, su ch as a h os p it al

. See D ea l v. Co l ema n

, 2 9 4 Ga.

1 7 0

, 1 7 2 -7 3 (1 ) (a) (7 5 1 SE2 d 3 3 7 ) ( 2 01 3 ) (wh en co n s tru i ng a s t at u t e, “ we m u s t

p res u m e t h at t h e Gen eral As s em b l y m ean t wh at i t s ai d an d s ai d wh at i t m ean t

. To t h at

en d

, we m

u s t affo rd th e st at u to ry t ex t i t s p l ai n an d o rd in ary m ean i ng

, w e m u s t v i ew

t h e s t at ut o ry tex t i n t h e c o n t e x t i n wh i ch i t ap pears

, an d we m u s t read t h e st at u t o ry

t e x t i n i t s m o s t n at u ral an d reas o n ab l e way

, as an ord i n ary s peak er o f t h e En g l i s h

l an g u ag e wo u l d”) (ci tat i o n s an d p u nct u at i o n o m i t t ed ). A nd t h i s co n cl u s i o n h o l d s t ru e

ev en t h ou g h t h e s peci al ized p ro g ram – s uch as t h e CIPR p ro g ram at i s s u e

– h as i t s

o wn C O N. See OCGA § 3 1-6 -2 (2 1 ) (d efi n in g “ ho s pi t al ” as an i n s t i t u t i o n t h at

p ro v id es “ t o i n -p at ien t s

, b y o r u n d er t he s u perv i s i o n o f p h y s i ci an s

, . . . Reh ab i l i t at i o n

s erv i ces fo r t h e reh ab i l i tat i o n o f i n ju red , d i s ab l ed , o r s i ck

p ers o n s . . .”).

I n an effo rt to av o i d t hi s co ncl u s io n

, Em ory rel ies o n DCH’ s d et er m i n a t i o n

l et t er, i s s u ed i n Feb ru ary 2 01 7

. As s et fo rt h i n t h e l et t er, DCH co n cl u ded t h at EUH

co u ld rel o cat e i t s 1 6 CIPR b ed s t o Em ory Reh ab ’ s lo cat i on wi t h o u t p ri o r CON rev i ew

an d ap p ro v al

. DCH fu rt h er s t at ed t h at i t s co n cl u s i o n was b as ed o n an ex cep t i o n t o t h e

16CON s tat u t e fo u n d at OCGA § 3 1 -6 -4 7 (a) (2 4 ). Un der t h at st at ut o ry p ro v i s i o n

, t h e

CON s t at u t e d oes n o t ap p l y t o

[t ] h e rel o cat i on o f an y sk i l l ed n urs i n g faci l i t y

, in t erm ed i at e care faci l i t y

o r m i cro -h o s pi t al wi t h i n t h e s am e co u n t y

, . . . an d an y o t h er h eal t h care

faci l it y i n an u rb an co u nt y wi t h i n a th ree-m i l e rad i u s o f t h e ex i s t i n g

faci l it y s o lo n g as t h e f

a c i l i t y d o e s n ot p ro p o s e t o o ffer an y n ew o r

ex p an d ed cl in ical h eal t h s erv i ces at t h e n ew l o cat i on

.

Ci t i n g th i s l an g u ag e, DCH co n cl u ded t h at “ E UH i s au t h o ri zed to rel o cat e i t s s i x t een

(1 6 ) CIPR b ed s o n i t s cam p us as l o n g as t h e v ary i n g l o cat io n s are n o t m o re t h an t h ree

(3 ) m i l es ap art o r wi t h i n m o re t h an o n e co un t y .”

On ap p eal

, Em o ry arg ues (as i t d id b el o w ) t h at DCH co u l d n o t t reat th e EUH

CIPR p ro g r a m a s a h eal t h care faci l i t y fo r p u rp o s es of al l o w i ng t h e p ro g ram to

rel o cat e, b u t refu s e t o t reat i t as s u ch a faci l i t y w h en d et erm i n i n g wh et h er EUH co u ld

d eco up l e an d t ran s fer t h e p ro g ram an d acco m

p an y i ng CON. W e are n o t p ers u ad ed

.

W e fi rs t n o t e t h at g i v en th e s t at u t o ry d efi n it i on o f h eal th care faci l it y

, DCH’ s

d eci s i o n

, s et fo rt h i n t h e Feb ru ary

, 2 0 1 7 d et erm i n at i on let t er, t o t reat EUH’ s CIPR

p r o g ram as a h eal t h care faci l i t y u n der OCGA § 3 1 -6 -4 7 (a) (2 4 ) v i o l at ed t h e p l a i n

l an g u ag e o f t h e CON s t at u t e an d t h erefo re ex ceed ed DCH’ s au t ho ri t y

. See OCGA §

3 1 -6 -2 1 (d el e g a t i n g t o DCH t h e au t h o ri t y t o ad m i n i s t er t h e CON p ro g ram in

17acco rd an ce wi t h t h e s t at u te); Al b a n y S u rg i ca l, P. C. v. Dep ’t

o f Co m mu n it

y Hea l t h

,

2 5 7 Ga. Ap p

. 6 3 6

, 6 3 8 (2 ) (5 7 2 SE2 d 6 3 8 ) (2 0 0 2 ) (“ co u rt s h av e co n s i s t en t l y h el d t h at

[DCH] l ack s au t h o ri t y t o ex p an d [t h e s t at u to ry ] ex cep t i o ns ” t o t h e CON s t at u t e); N.

Fu l t o n Med

. Cen t er v. S t ep hen s o n

, 26 9 Ga. 5 4 0

, 5 4 3 (1 ) (5 0 1 SE2 d 79 8 ) (1 9 9 8 )

(“ ad m i n i st rat i v e ag en ci es

. . . are n o t au t ho ri zed t o en l arg e t h e s co p e o f

. . . a

p ro p erl y -en act ed s t at u te”). See al s o S a wn ee El ec. Memb er

s h i p Co r p

. , 2 73 Ga. at 7 0 4

(“ l eg i s l at i v e ex cep t i on s i n s t at u t es are to b e s tri ct l y co n s tru ed an d s h ou l d b e ap p l i ed

o n l y s o far as t hei r l an gu ag e fai rl y warran t s ”) (ci t at i o n an d p un ct u at io n o m i t t ed ).

M o re i m p o rt an t l y

, t h i s Co u rt i s n o t b o u n d b y a ny DCH d et erm i n at i o n t h at

EUH’ s CIPR p ro g ram

, st an d i n g al o n e, co n s ti t ut es a h eal t h care faci l i ty

. Th e p ri n ci p l e

t h at co u rt s are n o t b o u n d b y an ad m i n i s t rat i v e ag en cy ’ s i n t erp ret a t i on o f a s t at u t e,

i n cl u d i n g a s t at ut e t h e ag en cy i s ch arg ed wi t h ad m i n i s teri n g

, i s wel l -es t ab l i s h ed

.

S a wn ee El ec. Memb er

sh i p C o r p

. , 2 7 3 Ga. at 7 0 6

. In s t ead

, t h e ju d i ci al b ran ch m u s t

“ m ak e an i n d ep en d en t d et erm i n at i o n as t o wh et h er th e in t erp ret at i o n o f t h e

ad m i n is t rat i v e ag en cy co rrect ly refl ect s t h e p l ai n l an g u ag e o f t h e s t at ut e.” Id

. See al s o

Pa l myr a Pa r

k Ho s p

. v. Ph o eb e S

u m t er Med

. Cen t er

, 3 1 0 Ga. Ap p

. 4 8 7

, 4 9 1 (1 ) (7 1 4

SE2 d 7 1 ) (2 0 11 ) ( “ [ w ]h i le rev i ewi ng co u rt s d efer t o ag en cy i n t erp ret at i o n s o f t h e

s t at u tes [an ag en cy is ] ch arg ed wi t h ad m i n i st eri n g

, t h at d eferen ce ap p l i es o n l y as far

18as t h e ag en cy i n t erp ret at i o n i s co n s i s t en t wi t h th e s t a t u t e ” S ee Ci t y o f Gu yt o n v.

Ba r ro w

, Cas e N o

. S1 8 G0 9 4 4

, 2 0 1 9 W .L. 21 6 7 4 6 0

, at 1 (Ga. M ay 2 0

, 20 1 9) (“ At t h e

co re o f t he ju d i ci al po wer is th e au t h o ri t y an d t h e res p o n s i b i i t y t o i n t erp ret l eg al

t ex t ”). An d as ex p l ai n ed s u p ra, we fi n d t h at t h e p l ai n lan g u ag e o f OCGA § 3 1 -6

- 2

fo recl o s es an y arg u m en t t h at a s p eci al i zed p ro gram fo r w h i ch a ho s pi t al h o l d s a CON,

wh i ch i s ad m i n i s t ered b y t h e ho s p i t al fo r i t s p at ien t s, an d wh i ch is p h y si cal l y l o cat ed

wi t h i n t h e h o s p i t al i t s el f, co n s t i t u t es a h eal t h care faci l i t y u n d er t h e CON s tat u t e.

In l i g h t o f t he fo reg o in g

, we fi n d t h at t h e s u p eri or co u rt co m m i t t ed leg al erro r

wh en i t co n cl u d ed th at EUH co u l d d eco u p l e t h e CON fo r i t s CIPR pro g ram fro m i t s

h o s p i tal li cen s e an d t ran s fer t h e p ro g ram an d th e CON t o t h e s ep arat el y -l i ce n s e d

Em o ry Reh ab wi th ou t Em o ry

o b t ai n i n g p ri o r CON rev i ew an d ap p ro v al

.

2

. We n ex t co n s i d er wh et h er Em o ry Reh ab can ex p an d i t s 5 6 -b ed CIPR

p r o g r am t o 7 2 bed s b y acq u iri n g EUH’ s p ro g ram an d acco m p an y in g CON, an d

wi t h o u t o b tai n i n g p ri o r CON rev i ew an d ap pro v al

. Li k e th e fi rs t i s s ue, t h i s q u es t i o n

i s co n t ro l l ed b y

t h e p l ai n l an g u ag e o f t h e CON s t at u t e.

OCGA § 3 1 -6 -4 0 p ro v id es , i n rel ev an t p art :

On an d aft er J u l y

1 , 2 00 8, an y n ew i n s ti t ut i on al h eal t h s erv i ce s h al l be

req u ired t o o b tai n a cert i fi cat e o f n e e d p urs u an t t o t h i s ch ap t er. New

19i n s t i t u t i o n a l h ea l th s e r vi ces i n cl u d e:

. . . [ a ] n y i n cr ea s e i n t h e b ed

ca p a ci t y o f a h ea l t h ca r e f

a ci l i t y ex cep t as p ro vi d ed in Co d e Sect i on 3 1

-

6 -4 7

.

OCGA § 3 1 -6 -4 0 (a) (4 ) (em p h as i s s up p l ied ). Ad d i t i o nal l y

, Ch ap ter 1 11 -2 -2 .3 5 8 o f

Geo rg i a’ s Ad m i n is t rat i ve Co d e p ro v i d es t h at “ [a] Cert if i c a t e o f Need s h al l b e

req u i red pri o r t o t h e

. . . ex p an s i o n o f an ex i st i ng [CIPR] Ad u l t Pro g ram .” Ga. Co m p.

R & Reg s

. 1 1 1 -2 -2

. 3 5 (1 ) (a). A n d t h e ch ap t er defi n es “ ex p an s i o n” as m ean i n g “ t h e

ad d it i o n of b ed s t o an ex i s t i n g CON-au t ho ri zed

. . . [CIPR] Pro g ram .” Ga. Co m p

. R

& Reg s . 1 1 1 -2 -2 .3 5 (2 ) (c).

It is u n d i s p u t ed t h at Em o ry Reh ab i s a h eal t h care faci l i ty u n der t h e CON

s t at u te. See OCGA § 3 1-6 -2 (1 7 ). An d i f E m o ry Reh ab acq u i res EUH’ s 1 6 -b ed CIPR

p ro g ram , t h en Em o ry Reh ab ’ s CIPR p ro gram wi l l ex p an d fro m 5 6 b ed s t o 7 2 b ed s

.

Un d er t h e p l ai n l an gu ag e o f bo th OCGA § 3 1 -6 -4 0 (a) (4 ) an d Ga. Co m p

. R & Reg s

.

1 1 1 -2 -2

. 3 5

, t h erefo re, Em o ry Reh ab m us t o b t ai n a CON t o ad d 1 6 ad d i t i on al b ed s to

i t s CIPR p ro gram

. 9 A cco rd i n g l y

, we fi n d t h at t h e su p eri o r co urt erred as a m at t er o f

8 Th i s reg u lat i o n ad d res s es s p eci fi c rev iew co ns i d erat i o n s fo r CIPR s erv i ces

.

9 Fo r t h e reas o n s ex p lai n ed i n Di v i s i o n 1

, i n acq u i ri n g EUH’ s CIPR p ro g ram

, Em o ry Reh ab wo u l d n o t b e acq u i ri n g a s ep arat e heal t h care faci l i t y

. Acco rd i n g l y

, t h e

ex cep t i o n to t h e CON s tat u t e fo u n d at OCGA § 3 1 -6 -4 7 (a ) ( 2 4) d o es n o t ap p ly to

Em o ry Reh ab ’ s p ro p o sed ex p an s i o n t o 7 2 b ed s.

20l aw i n co n cl u d i n g t hat Em o ry Reh ab ’ s acq ui s i t i o n o f EUH’ s CIPR p ro g ram d i d n ot

req u i re p ri o r CON rev i ew an d au t h o ri zat i o n

.

Fo r t h e reas o n s s et fo rt h ab o v e, we rev ers e t h e o rd er o f t h e su p eri o r co u rt

g ran t i n g Em o ry ’ s p et i ti o n fo r ju d i ci al rev iew.

Ju d g men t r ever sed . Di l l a r d

, C. J., a n d Ho d

g es , J., co n cu r

.

21