FOURTH D I VI SI ON

DI LLA R D, C. J.

, D OYLE, P. J.

, and M ERCI ER, J.

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 21, 2018



# I n th e Co u r t o f

A p p eals o f

G eo r g ia

A1 8 A 0 5 9 5

. G E O R G I A L O T T E R Y C O R P O R A T I O N v

. TABLETOP M EDIA LLC. DO-0 2 1

D O Y LE , Pres i d i n g J u d g e.

Tab l et o p M e d i a, LLC, d / b / a Zi o s k (“ Tab l et o p ”) d ev el o p s , p ro du ces , an d

d i s t ri b u t es i t s Z i o s k b ran d t ab l et o p c o m p u t er t ab l et s , wh i ch i t l eas es t o res t au ran t s

.

Aft er th e Geo rg i a Lo t tery Co rp o rat i o n (“ GLC”) i s s u ed an ex ecu t i v e ord er fi nding th at

t h e Z i o s k was a co i n-o perat ed am u s em en t m ach i ne (“ COAM ”) 1 s u b ject t o l i cen s i n g

req u i rem en t s an d reg ul at i o ns o f GLC p u rs u an t t o OCGA § 5 0-2 7 -7 0, T ab l et o p fi l ed

a p et it i o n fo r ju d i ci al rev i ew i n s u p eri o r c o u r t

. Th e s up eri o r co urt rev ers ed GLC’ s

d eci s i o n , fi n d i ng t h a t t h e Zi os k was n o t a COAM

, an d t h i s Co u rt g ran t ed GLC’ s

ap p li cat io n fo r d i s cret i o n ary rev i ew. On ap p eal

, GLC arg u es th at t h e t ri al co u rt erred

1 See OCGA § 5 0 -2 7 -7 0 (b ) (2 ) (A).b y : fai l i n g t o g i v e d eferen ce to GLC’ s i n t erp ret at i o n o f t h e rel ev an t st at ut e, OCGA

§ 5 0 -2 7 -7 0 (b ) (2 ) (A); fai l i ng t o c o n s i d e r t h e l eg is l at iv e hi s t o ry b eh i n d th at Co d e

s ect i on ; an d u l t i m at el y co n cl u d i n g t h at t h e Zi o s k d i d n o t co n s t i t u t e a COAM s u b ject

t o l icen s i n g an d reg u l at io n b y GLC. Fo r t h e reas o ns t h at fo l l o w, we affi rm

.

Th e fact s i n t h i s cas e are u n di s pu t ed

. Th e Zi o s k i s a s ev en -i n ch

, An d ro i d -b as ed

t o u ch s creen t ab l et th at Tab let o p s el l s o r l eas es (al o ng wi t h a c c o m p an y i n g

cu s t o m izab l e s oft w are an d s erv i ces ) t o res t au ran t s , wh i ch pl ace t h e t ab l et s o n t ab l es

an d bars

. Th e Z i o s k i s u sed fo r t wo p u rp o s es : (1 ) a res tau ran t m an ag em en t fu n ct i o n,

an d (2 ) am

u s em en t

. Th e res t au ran t m an ag em en t fu n ct io n , wh i ch is fre e f or c us t o m ers ,

p erm i t s cu st o m ers t o v i ew nu t ri t i o n al i n fo rm at i o n , p l ace fo o d an d d ri n k o rd ers ,

s u m m o n a s erv er, co m

p l et e s u rv ey s, en r o l l or p art i ci p at e i n lo y al t y o r reward

p ro g ram s , vi ew p ro m o t i o n s an d ad v ert i s em en ts

, s can co u po n s, p ay fo r t h ei r m eal s ,

l eav e co m m en t s , an d em ai l o r p ri n t a co p y o f t h ei r recei p t

. Cu s t o m ers can al s o u s e t h e

Zi o s k t o p l ay free g am es

. 2 Cu s t o m ers can al s o, h o wev er, p ay a o n e-t i m e fee t o acces s

“ p rem i u m en t ert ai nm en t ,” i n cl ud i n g vide o s, spor t s ne w s, an d u n l i m i t ed g am es , wh i ch

req u i re t h e u s e o f s k i l l b y t he p l ay er. Rev en u e fro m t h e p rem i u m en t ert ai n m en t i s s p l i t

2 Th e free g am es d o n o t req u i re t h e i n s ert i o n o f a card o r a co i n t o p l ay

.

2b et ween Tab l et o p an d t h e res t au ran t s ; cu s t o m ers d o n o t r e c e i v e a reward o r

red em pt i o n wh en p l ay i n g p rem i u m g am es

.

On Sep t em

b er 17

, 2 0 1 5, GLC i s s u ed a n o t i ce en t i t led “ Tab l et s as Cl as s A Co in

O p e r a ted Am

u s em en t M ach i n es ” (“ No t ice”) i n res p on s e t o a q u es t i o n fro m Ry an ,

LLC, reg ard i n g wh et her “ t ab let s t h at are b eco m i n g m o re co m m o n in res t au ran t s an d

ret ai l es t ab l i s h m en t s as a fo rm o f en t ert ai n m en t” are co ns i d ered Cl as s A COAM s

s u b ject t o St at e COAM ru l es an d l aws . Th e No t i ce s t at ed :

each t ab l et offered t o t he p u b l i c b y a b u s i n es s th at al lo ws a cu s t o m er t o

p ay fo r acces s t o g am es o r m us i c i s co n s i d ered a Cl as s A COAM wi t h i n

t h e St at e o f Ge o r g i a. E v en i f a t ab l et i s n o t fo r th e so l e an d ex cl u s iv e

p u rp o s e o f p l ayi n g g am es / m u s i c b u t al l o w s i t as an op t i o n , t h e t ab l et

wo u ld s t i ll be a Cl as s A COAM

. . . [as d efi n ed b y ] OCGA § 5 0-2 7 -7 0

(b ) (3 ) an d GLC Ru l e 1 3 .1 .2

. . . .

In o t h er wo rd s , an y t ab let t h at a b us i n es s u s es t o al l o w cu st o m ers t o p ay

t o p l ay g am es (t h at in v o l v e s k i l l

, i n cl ud i n g t ri vi a) o r m u si c i s s u b

ject t o

COAM l aws an d ru l es , i n cl u d i n g l i cen s i n g req u i rem en t s fo r t h e en t i t y

t h at o w n s t h e d ev ices an d t h e l o cat i o n i n wh i ch t he d ev i ces are u s ed

.

If a l o cat i o n i s o fferi ng Cl as s A COAM s [i ] n t h e fo rm o f t ab l et s t o i t s

cu s t om e r s , s u ch l o cat i o n m u s t b e l i cen sed as a Cl as s A COAM

l o cat i o n [,] an d t h e en t i ty t h at o w ns s u ch t ab let s m u s t al s o b e l i cen s ed as

a Cl as s A COAM m as t er. Ad d it i o n al l y , each Cl as s A COAM p l aced i n

3a l i cen s ed l o cat i o n m u s t h a v e a v al i d Cl as s A COAM p erm i t s t i ck er

affi x ed t o i t [p u rs u an t t o ] OCGA § 5 0 -2 7-7 8 (b ). Acco rd i n g ly

, a Cl as s

A COAM perm i t s t ick er s h o u l d b e p u r c h a s e d fo r each tab l et m ad e

av ai lab le t o t he p ub l i c at t h e l o cat i o n.

On Sep t em

b er 2 1

, 2 0 1 5 , GLC s en t a l et t er to Ry an , LLC, ad vi s i n g t h at t h e An d ro id

t ab l et s ad d res s ed i n Ry an ’ s i n q u i ry are co n s id ered COAM s b y GLC p u rs uan t t o t h e

No t ice. 3

Tab l et o p fo rm al l y ch al l en g ed t h e No ti ce, an d fo l l o wi n g a h eari n g , GLC i s s u ed

an ex ecu t i v e o rd er fi n d i ng t h at t h e Zi os k w as a COAM

. Aft er GLC d en i ed Tab l et o p ’ s

m o ti o n f o r reco n s i d erat i o n an d i t s m o t i o n fo r rev i ew, 4 Tab l et o p fi l ed a p et i t i o n fo r

ju d i ci al rev i ew i n s u p eri o r co u rt

. 5

Th e ap p eal t o s u p eri o r co u rt was “ co n fi n ed t o t h e reco rd ” an d was d eci d ed by

t h e co u rt wi t h o u t a ju ry p u rs u an t t o OCGA § 5 0-2 7 -7 6 (a). Th e p art i es ag reed t h at t h e

fact s were n o t i n d i s p u te an d th at t he i s s u e was pu rel y on e o f l aw. Th e s u peri o r co u rt

3 Ry an ’ s l et t er i s n o t co n tai n ed i n t h e ap pel l at e reco rd

.

4 GLC’ s Ch i ef Ex ecu t i v e Offi cer d i d n o t i ss u e an o rd er on T a b l et o p ’ s m o t i o n fo r

rev i ew wi t h i n 3 0 d ay s, an d t h erefo re, t h e m o t i o n was d eem ed d e n i e d u n der GLC Ru l e 1 3 .2 .5 (1 ) (b ) (4 ).

5 “ Ap p eal by an affect ed p ers o n fro m al l act i o ns o f th e co rp o rat i o n o r ch i ef ex ecu t i v e

o ffi cer s hal l b e t o t he Su p eri o r Co u rt o f Fu lt o n Co u n t y

. Th e rev i ew s h al l b e co n d u ct ed b y

t h e co u rt an d s h al l b e co n fi n ed t o t h e reco rd .” See OCGA § 5 0 -2 7 -7 6 (a).

4rev ers ed GLC’ s d eci s i o n , co n cl u d i n g t h at t h e Zi o s k d o es n o t co n s t i tu t e a COAM

u n d er OCG A § 5 0

- 2 7 -7 0 (b ) (2 ) (A). Th i s Co u rt g ran t ed GLC’ s ap pl i cat i o n fo r

d i s cret i o n ary

rev i ew, an d t h i s ap p eal fo l l owed

.

1

. G L C arg u es t h at th e t ri al co u rt erred b y fai li n g t o g i v e d eferen ce t o t h e

GLC’ s i nt erp ret at i o n o f t h e COAM s t at ut e. W e d i s ag ree.

OCGA § 5 0 -2 7 -7 6 (b ) p ro v i d es t h e s t an d ard o f rev i ew a s u peri o r c o u r t m u s t

ap p ly wh en rev i ewi n g a d eci s i o n b y GLC:

Th e co u rt sh al l no t s ub s ti t u t e i t s ju dg m en t fo r t h a t o f [ G LC] as t o th e

wei g h t o f t he ev i d en ce o n q u es t i on s o f fact co m m i t t ed t o t h e d i scret i o n

o f [GLC]

. Th e co u rt m ay affi rm t h e d eci si o n o f [GLC] i n wh o l e or i n

p art ; t he co u rt s h al l rev ers e o r rem an d t h e cas e fo r fu rt her p ro ceed i n g s

i f s u b s t an t i al ri gh t s o f t h e ap p el l an t h av e been p reju d i ced b ecau s e
[GLC’ s ] fi n d i n g s , i nferen ces , co n cl u s i on s , o r d eci s i o n s are:

(1 ) In v io lat i o n o f co n st i t u ti o n al o r s t at u to ry p ro v i s i o n s ;

(2 ) In ex ces s o f t h e s t at u t o ry au t h o ri ty o f [GLC] ;

(3 ) M ad e u po n u n l awfu l p ro ced u res ;

(4 ) Affect ed b y

o th er erro r o f l aw;

(5 ) No t reas on ab l y s up p o rt ed b y s u b s t an t i al ev i d en ce i n v i ew o f th e

rel i ab l e an d p ro b at iv e ev i d en ce i n t he reco rd as a wh o l e; o r

5(6 ) Arb 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 di s cret i on or cl earl y

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

.

Th i s Co de s ect i o n i s “ es s en t i al ly i d en t i cal ” to th e s t an d ard o f rev i ew p ro v i d ed

i n t h e Ad m i n i s t rat i v e Pro ced u re Act

. 6 Th us , al t h ou g h G LC i s “ an i n s tru m en t al i ty o f

t h e [S] t at e, an d n o t a [S] t at e ag en cy ,” 7 we co n cl u d e t h at t he t ri al co u rt p ro p erl y

ap p li ed t h e s t an dard o f rev i ew ap p l icab l e t o ad m i n is t rat i v e d eci s io n s.

In Ha n d el v. P o wel l

, 8 t h e Su p rem e Co u rt o f Geo rg i a ap p l i ed th i s s am e s t an d ard

o f rev i ew t o a d eci s i on b y t h e Secret ary o f St at e o n th e Secret ary ’ s ch a l l e n g e t o a

can d id at e’ s q u al i fi cat i o n s

. 9 Th e s am e rat i o nal e ap pl i es t o t h e in s t an t cas e. Th u s ,

co n si s t en t wi t h th e Su p rem e Co u rt ’ s d e c is i o n i n Ha n d el

, we h o ld t h at wh en rev i ewi n g

a d eci s i o n o f t h e GLC o r i t s CEO,

[t he su p eri o r co urt ] m

u s t accep t [GLC’ s] fi n d in g s o f fact i f t h ere i s an y

e v i d e n ce t o s u p p o rt t h e fi n d in g s [. T] h e co u rt m u s t fi rs t det erm i n e i f

t h ere i s ev i d en ce t o s u pp o rt t h e fact u al fi n d i n g s ; t h e co u rt t h en i s

6 See OCGA § 5 0 -1 3 -1 9 (h ).

7 Kyl e v. G a

. Lo t t er

y Co r p

. , 2 9 0 Ga. 8 7

, 9 1 (1 ) (7 1 8 SE2 d 8 0 1 ) (2 0 1 1), ci t i n g OCGA § 5 0 -2 7 -4

.

8 2 8 4 Ga. 5 5 0 (6 7 0 SE2 d 6 2 ) (2 0 0 8 ).

9 See i d

. at 55 2

, ci t in g P r ui t t Co r p

. v. Ga

. Dep t

. o

f Co mmu n i t

y Hea l t h

, 2 8 4 Ga. 5 5 0 (6 7 0 SE2 d 6 2 ) (2 0 08 ).

6s t at u t o ri l y req u i red t o ex am i n e th e s o un d n es s o f t h e co ncl u s i o ns o f l aw

d rawn fro m

t h e fi n d in gs o f fact s u p p o rt ed b y an y ev i d en ce. 1 0

In t h i s cas e, as i n Ha n d

el

, t h e fact s are u nd i s p u t ed

, an d t h e t ri al co u rt co n fi n ed

i t s rev i ew t o t h e s o u nd nes s o f GLC’ s l eg al co n cl u s i o n s

. As t he S u p r e m e Co u rt

ex p lai n ed :

Wh i le ju d i ci al d eferen ce i s affo rd ed an ag en cy ’ s in t erp ret at i o n o f

s t at u t es i t i s ch arg ed wi t h en fo rci n g o r ad m i n i s teri n g , t h e ag en cy ’ s

i n t erp ret at i o n i s n o t b i n d i n g o n th e co urt s , wh i ch h av e t h e u l t i m at e

au t h ori t y t o co n s t ru e st at u t es

. It i s t h e ro l e o f t h e ju d i ci al b ran ch t o

i n t erp ret th e s t at u t es en act ed b y t h e l eg is l at i v e b ran ch an d en fo rced b y

t h e ex ecu t i ve b ran ch ), an d ad m i n is t rat i v e ru l i n g s wi l l b e ad o p t ed o n l y

wh e n t h ey co n fo rm t o t h e m ean i n g w h i ch t h e co u rt d eem s s h o u l d

p ro p erl y b e g i v en

. Th e ju d i c i a l b ran ch m ak es an i n d ep en d en t

d et erm i n at io n as t o wh et h er t h e in t erp ret at i o n o f t he ad m i n i s t rat i v e

ag en cy co rrect l y refl ect s t h e p l ai n l an gu ag e o f t h e s t at u t e an d co m p o rt s

wi t h t he l eg i s l at i v e i n t en t

. 1 1

1 0 (Pu n ct u at i o n o m it t ed .) H a n d el , 2 8 4 Ga. at 5 5 2

.

1 1 (Ci t at i o n s an d pu n ct u at i o n o m i t ted .) Id . at 5 5 3

, ci t in g Ha r b u ck v. S t a t e , 2 80 Ga.

7 7 5 (3 ) (6 3 1 SE2 d 3 5 1 ) (2 0 0 6 ), McKee v

. Ci t y o f Gen eva , 2 8 0 Ga. 4 1 1, 4 1 3 (6 2 7 SE2 d

5 5 5 ) (2 0 0 6), an d S

a wn ee EMC v. Ga

. Pu b l i c S vc. Co mm. , 2 7 3 Ga. 70 2

, 70 6 (5 4 4 SE2 d

1 5 8 ) (2 00 1 ).

7As t h e s u p eri o r co u rt p ro p erl y co n cl u d ed i n t h i s cas e, t h is s am e rat i o n al e ap p l i es t o

a s u p eri o r co u rt ’ s rev i ew o f a GLC d eci s i o n

. Acco rd i n g l y , t h i s en um erat i o n p res en t s

n o b as is fo r rev ers al

.

2

. GLC arg u es t h at t h e s u p eri o r co urt erred b y co n cl u d i n g t h at t h e Zi o s k was

n o t a COAM as defi n ed b y OCGA § 5 0-2 7 -7 0 ( b ) (2 ) (A). Th e i s s u e befo re t h e

s u p eri o r co u rt was wh et h er GLC’ s d eci s i o n v i o l at ed t h e p l ai n l an g u ag e o f t he s t at u t e;

ex ceed ed i t s s t at u to ry au t h o ri t y ; o r co n s t i t u t ed an ab us e of d i s cret i o n b y m i s ap p l y i n g

t h e s t at u t e. W e fi n d n o b as is fo r rev ers al

.

Ou r an al y s i s o f t h e p ro p er i n t erp ret at i o n o f OCGA § 5 0

- 2 7 -7 0 (b ) (2 ) (A) i s

g u i d ed b y t h e fo l l o wi n g p ri n ci p l es :

A s t a t u te d raws i t s m ean i n g , of co u rs e, fro m i t s t ex t. Un d er o u r

w e l l -es t ab l i s h ed ru l es o f s t at ut o ry co n st ru ct i o n , we 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 w h a t i t m e a n t

. To t hat

en d

, we m

u st affo rd t h e s t at u t o ry t ex t i t s “ pl ai n an d o rd i n ary m ean i n g ,”

we m u s t v i ew t h e s tat u t o ry t ex t i n t h e co n t ex t in wh i ch i t ap p ears , an d

we m u s t read t h e s t at u t o ry

t ex t i n i t s m o s t n at u ral an d reas o n ab le way

,

as an o rd i nary s p eak er o f t h e En gl i sh l an g uag e wo u ld

. Th ou g h we m ay

rev i e w t h e t ex t o f t h e p ro v i si o n i n q u es ti o n an d i ts co n t ex t wi t h i n th e

l arg er l eg al fram ewo rk t o d is cern th e i n t en t o f t h e l eg i s l at u re i n en act i n g

8i t

, wh er e t h e s t a t ut o r y text i s cl ea r an d u n a m b i g uo u s, we a t t r i b u t e to th e

s t at u t e i t s p l a i n mea n i n g

, a n d o u r s ea r ch f

o r s t a t ut o ry mea n i n g en d s

. 1 2

(a) Tab l et o p arg u es t h at t h e COAM s tat u t e m u s t be co n st r u ed s t ri ct l y an d

ag ai n s t G LC b ecau s e (a) COAM l aws au t h o ri ze G LC t o i m p o s e fi n e s a n d f

e e s fo r

n o n co m p l i an ce, 1 3 an d s t at ut es t h at im p o s e fees an d fi n es are co n s tru ed n arro wl y

ag ai n s t St at e act o rs 1 4 ; (b ) COAM m an ufact u rers m u s t o b tai n a l i cen s e, 1 5 an d l i cen s i n g

s t at u tes are co ns t ru ed s t ri ct l y ag ai n s t t h e g o v e rn m en t as an i n t erferen ce wi t h t h e

1 2 ( C ita tions a nd pu n ct uat i o n o m i t t ed ; em p has i s su p p l i ed .) Pa t t o n v. Va n t er p o o l

, 302

Ga. 2 5 3, 2 5 4 (8 0 6 SE2 d 4 9 3 ) (2 0 1 7 ), q u o t i n g Dea l v. Co l ema n , 2 9 4 Ga. 1 7 0

, 1 7 2 -1 7 3 (7 5 1

SE2 d 3 37 ) (2 0 13 ).

1 3 See OCGA § 5 0-2 7-7 1 (n ) (“ Fai l u re t o o bt ai n a l i cen se as req ui red b y t h i s Co d e

s ect i o n s h a l l s u b

ject t he p ers o n t o a fi n e o f u p t o $ 2 5,0 0 0 [] an d rep ay m en t o f al l fees o r recei p t s d u e t o t h e co rp o rat i on p u rs u an t t o t hi s art i cl e.

. . “ ); OCGA § 5 0 -2 7 -8 2 (a) (“ If an y

o wn er o r o perat o r o f an y b o n a fi de [COAM ] i n th i s s tat e s h al l vi o l at e an y p ro v is i o n o f t h i s

art icl e o r an y ru l e an d reg u l at i o n p ro m u l g at ed u n der t h i s art i cl e, [GLC] co rp o rat i o n m ay i n v es t i gat e t h e v io lat i o n an d m ay s eek s an ct i o n s , i n cl u di n g l at e fees . . . . “ ).

1 4 See S t a t e E t h i cs Co mmr

. v. Mo o r e , 2 1 4 Ga. Ap p . 2 36 , 2 37 -2 3 8 (4 4 7 SE2 d 6 8 7 ) (1 9 9 4 ) (“ [W ] hen a s t at u t e i m p os es a fi n e o r p en al t y , s t ri ct co n s t ru ct i on i s req u ired i n fav o r

o f t h e p ers o n p en al i zed

. Th e ap p l i cab le ru l e o f s t at u to ry co ns t ru ct i o n i s t h at fo rfei t u res an d

p en al t i es are no t fav o red an d s t at u t es rel at i n g t o t h em m u s t b e s t ri ct l y co n s t ru ed

, an d i n a

m an n er as fav o rab le t o t he p ers o n ag ai n s t wh o m th e fo rfei t u re o r p en al t y wo u ld b e ex act ed

as i s co n s i s t en t wi t h fai r p ri nci p l es o f i n t erp ret at i o n .”) (p u n ct u at i o n o m i t t ed ).

1 5 See OCGA § 5 0-2 7-7 1 (a) (4 ).

9o p erat i o n o f b u s i n es s 1 6 ; (c) v i ol at i o n s of COAM l aws can co n s t i t u t e a m i s d em ean o r, 1 7

an d cri m in al s t at u t es are co n s t ru ed s t ri ct l y ag ai n s t t h e S t a t e 1 8 ; a n d (d ) COAM laws

were en act ed t o “ s afeg u ard t h e fi s cal s o u nd n es s o f t h e [ S ]t at e, en h an ce p u b l i c

w e l f a r e , an d s u p p o rt th e n eed t o ed u cat e Geo rg i a’ s ch i l d ren th ro u gh th e HOPE

s ch o lars h i p p ro g ram an d p re-k i n d erg art en fu n d in g ;” 1 9 an d l aws t h at rai s e rev en u e are

co n st ru ed ag ai ns t t h e St at e. 2 0

GLC, on t h e o t h e r h an d, arg u es t h at th e COAM laws s h ou l d b e co n s t ru ed

l i beral l y i n i t s fav or b ecau s e t h e l aws are rem ed i al i n n at ure, ci t i n g OCGA § 5 0 -2 7 -7 0

(a ), w h i ch st at es th at t h e l eg i s l at u re en act ed t h e COAM l aws “ t o p rev en t t h e

u n reg u l at ed o p erat i o n of [COAM s ]

, . . . wh ich wi l l ai d i n t h e en fo rcem en t o f t h e t ax

o b l i g at i o ns t h at ari s e fro m t h e o p erat i o n o f [COAM S] as wel l as p rev en t u n au t h o ri zed

cas h p ay o u t s

. ”

1 6 See Ma yo r o f S a va nn a h v. S

a va n n a h El e c

. & P o w e r Co

. , 2 0 5 Ga. 42 9

, 4 3 5 (5 4

SE2 d 2 60 ) (1 9 49 ).

1 7 See OCGA § 5 0-2 7-8 2

.

1 8 See Fr i x v. S ta te , 2 9 8 Ga. Ap p. 5 3 8 , 5 4 2 (1 ) (6 80 SE2 d 5 8 2 ) (2 0 0 9 ).

1 9 OCGA § 5 0 -2 7 -7 0 (a).

2 0 See Th omp s o n v. Ga . Po wer Co

. , 7 3 Ga. Ap p . 5 8 7 , 5 9 7 (3 7 SE2 d 6 2 2 ) (1 9 4 6 ).

10Th e COAM st at u tes are n o t rem ed i al

. 2 1 “ [L] aws wh i ch affect t h e rem ed y o n l y

are rem ed i al s t at ut es , w h i c h a re l aws cu ri n g d efect s i n t h e rem ed y , o r co n fi rm i n g

r i g h t s a l r ead y ex i s t i n g , o r ad d in g t o t h e m ean s o f s ecu ri n g an d en fo rci n g t h e s am e.

. . A rem ed ial st at u t e h as al so b een d efi n ed as on e rem ed y i ng d efect s i n t h e co m m o n

l aw.” 2 2 A l t h o u g h t h e y d o p ro v i d e pro ced u ral s afeg u ard s t o ai d i n t ax co l l ect i o n

as s o ci at ed wi t h COAM s an d to p rev en t u n au t ho ri zed cas h pay o u ts

, t h e reg u l at i o n o f

COAM s i s , as Tab l et o p arg u es , a l icen si ng s ch em e in t en d e d t o rai s e rev en u e “ to

s afeg u ard t h e fi s cal s o u n d n es s o f t h e [S] t at e, en h an ce p u b l i c wel fare, an d s up p o rt t h e

n eed t o ed u cat e Geo rg i a’ s ch i l d ren t h ro u g h t h e H OPE sch o l ars hi p pro g ram an d

p re-k i n d erg art en fu n d in g .” 2 3 An d “ [r] ev en u e l aws are n ei t h e r rem ed i al s t at u t es n o r

l aws fo u n d ed u p o n an y p erm an en t p u b l i c p o l i cy

. . . an d a r e n o t

, t h erefo re, t o b e

2 1 Co m p are W i l l i ams G en

. C o r

p

. v. S to n e , 2 80 Ga. 6 3 1

, 6 3 2 (1 ) (6 3 2 SE2 d 3 7 6 ) (2 0 0 6 ) (h o l di n g t h at t h e Geo rg i a RICO Act s ho u l d b e “ li b eral l y co n st ru ed ” t o effect u at e i t s rem ed ial p urp os e o f p ro v i d in g co m p en sat i o n t o p ri v at e p ers o n s i n ju red or ag g ri ev ed b y

reas o n o f an y

RICO v i ol at i o n ), ci t i n g OCGA § 1 6 -1 4 -2 (b ).

2 2 (Ci t at i o n an d p un ct u at i on o m i t t ed .) Gl o ver v. Co l b er t

, 2 1 0 Ga. Ap p

. 6 6 6

, 6 6 8 (4 3 7

SE2 d 3 63 ) (1 9 93 ), ci ti n g Bl ack ’ s Law Di ct i o n ary Rev i sed 4 t h Ed ., p . 1 4 5 7 (1 9 6 8 ).

2 3 OCGA § 5 0 -2 7 -7 0 (a).

11l i beral l y co n s t ru ed ; an d wh en ev er t h ere i s a ju s t d o u bt

, t hat d ou b t s h ou l d ab s o l v e t h e

t ax p ay er fro m

h is b u rd en .” 2 4

(b ) W e n o w t u rn t o t h e s t at u t e i t s el f. O CGA § 5 0 -2 7-7 0 (b ) (2 ) (A) d efi n es a

COAM as

ev ery m ach i n e o f an y k i n d o r ch aract er u sed b y t he p u b l i c t o p r o v id e

am u s em en t o r en t e r t ai n m en t wh os e o perat i o n req u i res th e p ay m en t o f

o r t h e i n s ert i o n o f a co in

, b i l l

, o t h er m on ey , t o k en , t ick et

, card

, o r s i m i l ar

o b ject an d th e res u l t of wh o s e o p erat i on d ep en d s i n wh o l e o r i n p art

u p o n t h e s k i l l o f t h e p l ay er, wh et h er or no t i t affo rd s an aw a r d t o a

s u cces s fu l p l ay er p u rs u an t t o s u b s ect i o n s (b ) t h ro u g h (g ) o f Co de

Sect io n 1 6 -1 2 -3 5

, an d wh i ch can b e l eg al l y s h i p p ed i n ters t at e acco rd i n g

t o fed eral l aw. 2 5

Th e s t at u t e d i v id es COAM s i n t o t w o cat eg o ri es : Cl as s A m ach i n es an d Cl as s B

m ach i n es

. 2 6 GLC co n cl u d ed t h at t h e Zi o s k t ab l et was a Cl as s A m ach i n e, wh i ch

d o es n o t al lo w a s ucces s fu l p l ay er t o carry o v er p oi n ts wo n o n o n e p l ay

t o a s u b s eq u en t p l ay o r p l ay s , an d : (A) Pr o v i d e s n o reward t o a

s u cces s fu l p l ay er; (B) Reward s a s u cces s fu l p l ay er o n l y wi t h free

2 4 Th o mp s o n , 7 3 Ga. Ap p . at 5 9 7

.

2 5 OCGA § 5 0 -2 7 -7 0 (b ) (2 ) (A) & (b ) (2 ) (B) res p ect iv el y p ro v i d e n o n-ex h au s t i v e

e x am p l es o f bo t h COAM m ach i n es an d t ho s e m ach i n es an d o t h er d ev i ces t h at d o n o t

co n s t i t ut e COAM s

.

2 6 See OCGA § 5 0-2 7-7 0 (b ) (3 ) & (b ) (4 ).

12rep l ay s o r ad d it i on al t i m e t o p l ay ; (C) Reward s a s u cces s fu l p l ay er w i t h

n o n cas h m erch an d is e , p ri zes , t o y s , g i ft cert ifi cat es , o r n o v el t i es i n

co m p li an ce wi t h t h e p r o v i s i o n s of su b sect i o n (c) o r p arag rap h (1 ) o f

s u b s ect i o n (d ) of Co d e Sec t i o n 1 6-1 2 -3 5, an d d o es no t reward a

s u cces s fu l p l ay er w i t h an y i t em p ro h i b i ted as a reward i n s u b s ect i o n (i )

o f Co d e Sect i o n 1 6 -1 2 -3 5 or an y reward r e d eem ab le as an i t em

p ro h i b it ed as a reward i n s u b s ect i o n (i ) o f Co d e Sect i o n 1 6 -1 2 -3 5 ; (D)

Reward s a s u cces s fu l p l ay er wi t h p o i n ts

, t o k en s , t i ck e t s , o r o t h er

ev i d en ce o f wi n n i n g s t h at m ay b e ex ch an ged o nl y fo r i t e m s l i s t ed i n

s u b p arag rap h (C) o f th i s p arag rap h ; o r (E) Reward s a s u cces sfu l p lay er

wi t h an y co m

b i nat i o n of i t em s l i s t ed i n s u b p arag rap h s (B), (C), an d (D)

o f t h i s p arag rap h

. 2 7

Al t h ou g h t h e p art i es d i s ag ree as t o t h e ap pl i cat io n o f OCGA § 50 -2 7 -7 0 (b ) (2 )

(A) t o t h e Zi o s k t ab l et

, bo t h ag ree t h at i t i s u n am b i g u o u s, as d id th e su p eri o r co u rt

.

W e ag ree.

I t i s u n d is p ut ed t h at t h e Zi o s k i s u s ed b y t h e p ub l i c an d can b e s h i p p e d

i n t ers t at e l eg al l y acco rd i n g t o fed eral l aw. Th e p rem i u m co m p o nen t o f t h e m ach i n es

2 7 OCGA § 5 0

- 2 7

- 7 0 (b ) (3 ). By co nt ras t, a Cl as s B COAM “ al l ows a s u cces s fu l

p l ay er t o accru e p o i n t s o n t h e m ach in e an d carry o v e r p o i n t s wo n o n o n e p l ay t o a

s u b s eq u en t p l ay o r p l ay s i n acco rd an ce wi t h p arag rap h ( 2 ) o f su b sect i o n (d ) o f Co d e Sect i o n 1 6 -1 2 -3 5 an d : (A) Reward s a s u cces s fu l p l ay er i n co m p l i an ce wi t h t h e p ro vi s i o n s

o f p arag rap hs (1 ) an d (2 ) o f s u bs ect i o n (d ) o f Co d e Sect i o n 1 6 -1 2 -3 5 ; an d (B) Do es n o t
reward a s u cces s fu l p l ay er wi t h an y i t em p ro h i b i t ed as a reward i n s ub s ect i o n (i ) o f Co d e Sect i o n 1 6 -1 2 -3 5 o r an y reward red eem ab le as an i t em p ro h i b i ted as a reward i n s u b sect i o n (i ) o f Co d e Sect i on 1 6-1 2 -3 5 .” OCGA § 5 0 -2 7 -7 0 (b ) (4 ).

13req u i res p ay m en t

, an d t h e op erat i o n o f t h e p rem i u m co m p o n en t d ep en d s in p art o r in

wh o l e o n t h e sk i ll o f t h e p l ay er. Ho wev er, a u s er can u s e th e Zi o s k, wi t h o u t p ay m en t

,

fo r o t h er p u rp os es , i n cl u d i ng t o acces s n u t ri t i o n al i n fo rm at i o n , o rd er, p ay , an d p l ay

cert ai n o t h er g am es

. T h erefo re, as t h e s u peri o r co urt co n cl ud ed

, “ t h e o p erat i o n ” o f t h e

Zi o s k t ab l et d o es n o t r e q u i r e p ay m en t, an d us ers can o p erat e t h e t ab l et wi t h o ut

ex erci s i ng an y s k i l l

. T h u s , t h e tri al co u rt p ro perl y co n cl u d ed t h at th e Zi os k t ab l et i s

n o t a COAM as d efi n ed b y OCGA § 5 0 -2 7 -7 0 (2 ) (A).

3

. Fi n al l y , GLC arg u es t h at t h e su p eri o r co u rt ’ s co n cl u si o n t h at t h e Zi os k t ab l et

i s n ot a COAM i s i n co n si s t en t wi t h t h e l eg i s l at u re’ s in t en t

. Bu t as we d i s cu s s ed in

Di v is i o n 2

, i f “ s t at u t o ry t ex t i s cl ear an d un am b i gu o u s , w e at tri b ut e t o t h e s t at u t e i t s

p l ai n m ean i n g, an d o u r search fo r s t at u t o ry m ean in g en d s .” 2 8 As t h e Su p rem e Co u rt

o f Geo rg i a h as s t at ed

, “ co u rt s can n o t co ns t ru e s t at u t es t o fo rce an o u t co m e t h at t h e

l eg i s lat u re d i d n o t ex p res s ly au t h o ri ze.” 2 9 If th e leg i s l at u re i n t en d s t o i n cl u d e as

2 8 (Pu n ct u at i o n o m it t ed .) P a t t o n , 3 0 2 Ga. at 2 5 4

.

2 9 (Pu n ct uat i o n o m i t t ed

. ) Id

. at 2 5 8

, n .9

, q u o ti n g Tu r n er v. Ga

. Ri ver Net wo r k

, 2 9 7

Ga. 3 0 6

, 3 0 8 (7 7 3 SE2 d 7 06 ) (2 0 1 5 ).

14COAM s t h o s e d ev i ces an d m ach i n es wh o se o p erat io n d ep en d i n p a r t o n t he p ay m en t

o f m on ey an d t h e ex erci s e o f s k i l l , “ t he Gen eral As s em b l y wi l l n eed t o act .” 3 0

Ju d g men t a f f i r med

. M er ci er

, J., co n cu r

s

. D i l la r d

, C. J., co n cu r

s f u l l y a n d

s p eci a l l y.

3 0 Pa t t o n , 3 0 2 Ga. at 2 5 8, n .9

.

15A 1 8 A 0 5 9 5

. G E O R G I A LOTTER Y C OR P O R A T I O N v

.

TABLETOP M EDIA, LLC.

D I LLA R D , Ch i ef J u d g e, co n cu rri n g fu l l y an d s p eci al l y

.

I co n cu r fu l l y in Pr e s i d i n g J u d g e Do y l e’ s t h o u g h t fu l an d w el l -reas o n ed

m ajo ri ty o p i n i o n

. I wri t e s ep arat el y t o en co u rag e t h e part i es w h o ap pear b efo re u s to

s t o p referen ci n g al to g et h er t h e et h ereal fi ct io n o f “ l eg i s lat i v e i n t en t ” i n t h e co n t ex t

o f st at u t o ry i n t erp ret at i o n

. 1 As a ju dg e, I d o n o t g i ve a wi t ab o u t wh at so m e l eg i s l at o r

i n t en d ed b u t d i d n ot ex p res s l y p ro v i d e fo r i n t h e s tat u t o ry t e x t

. 2 I f t h e Gen eral

1 S ee g en er a ll

y Bel l S ou t h Tel eco mmu n i ca ti o n s

, LLC v. Co b b Co u n t y , 3 4 2 Ga. Ap p

. 3 2 3 , 3 3 4 -3 5 n . 3 (8 0 2 SE2 d 6 8 6 ) (2 0 1 7 ) (Di ll ard , P.J ., co n cu rri n g fu l l y an d s p eci al l y ).

2 S ee Ki ng v. B u r wel l

,

_

_ _ U

. S

.

_ _ _ (1 3 5 SCt 2 4 8 0

, 2 5 0 5 (V), 1 9 2 LEd 2 d 4 8 3 ) (2 0 1 5 ) (Scal i a, J

., di s s e n t i n g ) (“ M o re i m p o rt an t l y , t he Co u rt fo rg et s t h at o u rs i s a

g o v ern m en t o f l aws an d n o t o f m en

. Th at m ean s we are g ov ern ed b y th e t erm s o f o u r l aws ,

n o t b y t h e u n en act ed wi l l o f o u r l awm ak ers .”).As s em

b l y “ en act ed i n t o l aw s om et h i n g di fferen t fro m wh at i t i n ten d ed

, t h en i t s h o u ld

am en d t h e s t at u t e t o c o n f o r m t o i t s i n ten t .” 3 Th u s , s o l on g as t h e m ean i n g o f t h e

rel ev an t s t at u t ory t ex t is p lai n an d d oes n o t l ead t o an ab su rd res u lt

, t h at i s t h e en d o f

o u r i n q u i ry

. 4 In d eed , i t i s d eep ly t ro u bl i n g wh en

3 Id

. (p u n ct u at i o n an d ci t at i o n o m i t t ed ); a cco r d La mi e v. U.S

. Tr u s t ee , 5 4 0 U. S. 5 2 6

, 5 4 2 (III) (1 2 4 SCt 10 2 3

, 1 5 7 LEd 2 d 1 0 24 ) (2 0 0 4 ); s ee Mu r p h y v. Na t’l Co l l eg ia t e At h l et i c As s ’n

,

_ _ _ U. S.

_

_ _ (1 38 SCt 1 4 6 1

, 1 4 8 7, 2 0 0 LEd 2 d 8 5 4 ) (2 0 1 8 ) ( T h o m as , J

. ,

co n cu rri n g ) (“ M o r e f

u n d am en t al l y , ev en i f co u rt s co u l d d i s cern Co ng res s ’ h y p o t h et i cal

i n t en t i on s , i n t en t i o n s d o n o t co u n t u n l es s th ey are en s h ri n ed i n a t ex t t hat m ak es i t t hro u g h

t h e co n st i t u t i o n al p ro ces s es of b i cam eral i s m an d p res en t m en t .”); Zu n i Pu b

. S ch

. Di s t

. No

. 8 9 v. Dep ’t o

f Ed uc. , 5 50 U. S. 8 1, 1 1 9 (II) (1 2 7 SCt 1 5 3 4

, 16 7 L Ed 2d 4 49 ) (2 00 7 ) (Scal i a, J ., d is s en t i n g ) (n o t i n g t h at b ecau s e we h av e “ a Go v ern m en t o f l aws , n o t o f m en ,” we are

g o v ern ed b y “ l eg i sl a t e d t ex t,” n o t “ l eg i s l at ors ’ i n t en ti o ns ”); Ma l ph u r s v. S t a t e , 3 3 6 Ga. Ap p

. 8 6 7

, 8 7 0 -7 1 (7 85 SE2 d 4 1 4 ) (2 0 1 6 ) (Pet ers on , J.) (“ Th e Gen eral As s em bl y d o es n o t

en act a g en eral in ten t i o n ; i t en act s s t at u tes

. St at u t es h av e wo rd s , an d wo rd s h av e m ean i n gs

. It i s t h o s e m ean i n gs t h at we i nt erp ret an d ap p l y , n o t s o m e am o rp ho u s g en eral i n t en t i o n.”).

4 S ee S h o r t er Co l l

. v. Ba

p ti s t Co n ven t i o n o

f Ga

. , 2 7 9 Ga. 4 6 6, 4 7 0 (1 ) (6 1 4 SE2 d 3 7 ) (2 0 0 5 ); R a

y v. Ba r b er , 2 7 3 Ga. 8 5 6

, 8 5 6 (1 ) ( 5 4 8 SE2 d 2 8 3 ) (2 0 0 1 ); s ee a ls o I.N.S

. v. Ca r d o z a -Fo n s eca , 4 80 U.S. 4 2 1 , 4 5 2

– 5 3 (1 07 SCt 1 2 07 , 9 4 LEd 2d 4 3 4 ) (1 9 87 ) (Scal i a, J

., co n cu rri n g ) (“ Judge s inte r pr e t la w s r a the r tha

n r e c onst ru ct l eg i s lat o rs ’ i nt en t io n s

. W h ere

t h e l a n g u a g e o f t h o s e l aws i s cl ear, we are no t free to rep lace it wi t h an u n en act ed

l eg i s l at i v e i n t en t .”); Ci t

y o f At l a n t a v. Mi l l er , 2 56 Ga. Ap p

. 8 1 9

, 8 2 0 (1 ) (5 6 9 SE2 d 9 0 7 ) (2 0 0 2 ) (“ In co n s t ru i ng a l eg i s l at i v e act

, a co u rt m u st fi rs t l o o k t o t h e l i t eral m ean i n g o f t h e

act

. If t h e l an g u ag e i s p l ai n an d d o es n o t l ead t o an y ab s u rd o r i m p ract i cab l e co ns eq u en ces , t h e c o u r t s i m

p ly co ns t ru es it acco rd i n g t o i ts t erm s an d co n du ct s n o f u r th er i n q u ir

y .” (cl ean ed u p )); A N T O N I N S C A LI A & B R Y A N A. G A R N E R
, R E A D IN G L A W : T H E
I N T E R P R E T A T I O N O F L E G A L T E X T S 3 9 7 (1 s t ed

. 2 0 1 2 ) (“ In ten t i o n al is t t h eo ri s ts an d co u rt s

p ro m o t e th e i dea t h at en act ed t ex t s m erel y ev o k e o r s u g g es t

— as o p p o s ed to s t at e— wh at

t h e t ru e l aw is

. . . . If t h i s were t ru e, t h en i t wo u l d h ard l y b e p o s s ib l e ev er t o reach a

co n s en s u s ab o u t t h e law. T h e trad it i o n al v i ew i s t h at an en act ed tex t i s it s el f t h e l aw.”); i d

.

2ju d g es s t art di s cu s si n g n o t t h e m ean i n g o f t h e s t a t u t e s t h e l eg i s l at u re

act u al l y en act ed

, as d et erm i n ed fro m t h e t ex t o f t h os e l aws , b u t rat h er

t h e u n ex p res s ed “ s pi ri t” o r “ reas o n ” o f t h e leg i s l at i on , an d t h e n eed t o

m ak e s u re t h e l aw d oes n o t cau s e “ u n r eas o n ab le co n s eq u en ces ,” [t h u s

v en t uri n g ] i n t o d an g ero u s l y u n d em ocrat i c, un fai r, an d i m p ract i cal

t erri t o ry

. Th e “ s p i ri t o r reas o n ” ap p ro ach t o st at u t o ry in t erp ret at i o n

i n v i tes ju d g es t o read t h ei r o wn p o li cy p referen ces in t o th e l aw, as we

al l b el iev e th at ou r o w n p o l i cy p referen ces are wi s e an d reas o nab l e,

wh i ch t em

p t s u s t o a s s u m e, co n s ci o u sl y o r un co ns ci o us l y , t h at th e

l eg i s l at u re co u ld n o t h av e i n t en d ed d i fferen t l y

. 5

As Geo rg i an s (an d Am eri can s ), we are “ go v ern ed b y l a w s , n o t b y t h e in t en t i o n s o f

l eg i s lat o rs .” 6 An d as ju d g es , w e s h o u l d o nl y b e co n cern ed w i t h wh at l aws act u al l y

at 3 7 6 (“ [T] h at t h e l eg i sl at ure ev en h a d a v i ew o n t h e m at t er at i s s u e . . . i s p u re fan t as y

. In t h e o rd in ary cas e, m o s t l eg is l at o rs co u l d no t p o s s i b l y hav e fo cu s ed on th e n arro w p oi n t
b efo re t h e co u rt [an d ] t h e few wh o d i d u n d o u b t ed l y h ad v ary i n g v i ews .”).

5 Mer r i t t v. S t a t e , 2 8 6 Ga. 6 5 0

, 6 5 6 (6 9 0 SE2 d 8 35 ) (2 0 1 0 ) (Nah m i as , J

., co n cu rri n g

s p eci al l y ) (p u n ct uat i o n o m i t ted ); a cco r d Ca l l a wa y B l u e S p ri n g s, L L L P v. W

. Ba s i n Ca p i t al

, LLC

, 3 41 Ga. Ap p

. 5 3 5

, 5 4 1 (1 ) (8 0 1 SE2 d 3 2 5 ) (2 0 1 7 ); s ee a l s o Ch ri s t o p h er J

. Scal i a an d Ed W h el an , S

ca l i a S p ea ks : Ref

l ect io n s o n La w, Fa i th

, a nd Li f e W el l Li ved

, 2 3 6 (Cro w n Fo ru m 2 0 17 ) (“ [W ] e are, as t h e Co n s t i t ut i o n o f M as s ach u s et ts d es cri b es i t

, a

g o v ern m en t o f l aws , n o t o f m en

— wh i ch m ean s g o vern m e n t b y l eg i sl at ed t ex t

, n o t b y l eg i s l at o rs ’ i n t en t i on s ”).

6 Co n r o y v. An i s k

o f f

, 5 0 7 U.S. 51 1

, 5 1 9 (1 1 3 SCt 1 5 6 2, 1 23 LE2 d 2 2 9 ) (1 9 9 3 ) (Scal i a, J

., co n cu rri n g ); a cco r d Ca l l a wa y Bl u e Sp r i ng

s

, LLLP

, 34 1 Ga. Ap p. at 5 4 1 (1 );

Da y v. Fl o yd Co u n t y Bd

. o f Ed u c. , 3 3 3 Ga. Ap p

. 1 4 4, 1 5 1 (7 7 5 SE2 d 6 2 2 ) (2 0 1 5 ) (Di l lard

, J ., co n cu rri n g ).

3s ay , “ no t b y wh at th e p eo p l e wh o d raft ed t h e l aws i n ten d ed

. ” 7 Let u s p u t t o res t

, t h en ,

t h e fan ci fu l n o t i on t h at ju dg es are s o m eh o w ab le t o d i s cern t h e co l l ect i ve i n t en t o f a

l eg i s lat i v e b o d y

. 8 J ud g es are no t i n t h e bu s in es s o f d i v i n i n g un ex p res sed l eg i s l at i v e

i n t e n t

, n o r are we cap ab l e o f d o i n g s o wi t h an y reas o nab l e d eg ree o f accu racy

. As

J u d g e Bet h e l (a fo rm er l eg i s l at o r) h as ap t l y n o ted

, “ [a] ny at tem pt t o d i s cern

l eg i s lat i v e i nt en t b ey o n d t h e ex p res s l an g u ag e p as s ed b y a l eg is l a t i v e b od y i s as

p ract i cal an d p ro d u ct i v e as at t em p t i n g t o nai l J el l o to t h e wal l .” 9 I ag ree. J u d g es are

t rai n ed t o in t erp ret t h e m ean i n g o f t h e wo rd s e x p res sl y rat i fi ed b y t h e p eo p l e o r

en act ed b y t h ei r rep res en t at i v es i n a m an n er co n s i s t en t wi t h l o n g s t an d i n g can o n s o f

co n st ru ct i o n

. Th u s , wh en j u d ges s peak as i f t h ey are en g ag i n g in s o m e m y s t i cal

s earch fo r t h e l eg i s lat u re’ s u n ex p res sed i n t en t

, t h ey creat e an i m p res s i o n t h at i s b o th

m i s l ead i n g an d sq u arel y at o d d s wi t h t h e ju d i ci al d ut y

. It i s ti m e t o s t at e p l ai n l y wh at

7 S C A LI A & G A R N E R
, s u

p r a n o t e 4

, at 3 7 5 ; a c c o r d C al l a wa y Bl u e S pr i n g s

, LLLP

, 3 4 1 Ga. Ap p . at 5 4 1 (1 ); Da y , 3 3 3 Ga. Ap p

. at 1 5 1 (Di l lard

, J ., co n cu rri n g).

8 S e e In r e W

h it t le

, 3 3 9 Ga. Ap p

. 8 3

, 8 5 -8 6 (1 ) (7 9 3 SE2 d 1 2 3 ) (2 0 1 6) (“ [I ]n t h e

co n t ex t o f l eg i s l at io n , d i s cern i n g ‘ co l lect i v e i n t en t i s pu re fi ct i o n b ecau s e do zen s i f n o t
h u n d red s o f l eg i s l at o rs h av e t h ei r o wn s u b ject i v e v i ews o n t h e m i n u t i ae o f b i l l s t h ey are

v o t i n g o n

— o r p erh ap s n o v i ews at al l b ecau s e t h ey are wh o l l y u n aware o f t h e m i n u t i ae.’ ”) (ci tat i o n o m i t t ed ).

9 Bi sh o p v. S t at e , 3 4 1 Ga. Ap p

. 59 0

, 5 9 3 (8 0 2 SE2 d 3 9 ) (2 01 7 ) (Bet h el

, J

. ,

co n cu rri n g ).

4i s al read y m an i f es t l y t ru e: W h at leg i s l at o rs i nt en d b u t d o no t ex p res s l y p ro v i d e fo r

i n t he t ex t o f a s t at u t e i s m ean i n g l es s

.

I real i ze, o f co u rs e, t h at OCGA § 1 -3 -1 (a) pro v i des t h at “ [i ] n al l i n t erp ret at i on s

o f st at u t es , t h e co urt s s h al l l o o k d i l ig en t l y fo r t h e in t en t i o n o f t h e Gen eral A ss em b l y ,

k eep in g i n v iew at al l t i m es t he o l d l aw, t he ev il

, an d t h e rem ed y , ” b u t t h i s st at u t o ry

d i rect i v e— wh i ch

, i n m

y vi ew, i s co n st it u t i o n al l y d u bi ou s

— m u s t b e read in

co n j u n ct i o n wi t h OCGA § 1 -3 -1 (b ), wh i ch p ro v i d es t h at “ [i ] n al l i n t erp ret at i o n s o f

s t at u tes

, th e o rd in ary s i g n i fi cat i o n s h al l b e ap pl i ed to a l l w o r d s

. . . . ” In an y ev en t

,

t h e Gen eral A s s em

bl y can n o m o r e t el l t he ju d i ci ary h o w t o g en er al l y i n terp ret t h e

l aw t h an w e can d i rect t hem h o w t o l eg i s l at e. Th e s ep arat i o n o f po wers i s es s en t i al

t o t h e m a i n t en an ce of ou r co n s t i t u t io n al rep u b l i c, an d i t i s h i g h t i m e t h at an y

d i s cu s s i o n o f s t at ut ory i n terp ret at i o n b et ween t h e b en ch an d b ar refl ect t h e real i t y o f

o u r ju ri s pru den ce an d ack n o wl ed g e t h e s tri ct dem arcat i on l i n e b et ween ju d i ci al

i n t erp ret at io n an d l eg i s l at i n g . W e are ju d g es , n o t b l ack -ro b ed p h il o s o p h er k i n g s

.

5