FI RST DI VI SI ON

BA RNES, P. J.

, M CM ILLI A N and COOM ER, 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

M ar ch 14, 2019



# I n th e Co u r t o f

A p p eals o f

G eo r g ia

A1 8 A2 14 3 . GEORGIA LOTTERY CORPORATION v . PATEL.

C O O M E R , J u d ge.

Ram i l ab en Pat el s ued t he Geo rg i a L o t t ery Co rp o rat i o n (t h e “ GLC”) fo r b reach

o f c o n t r a ct aft er i t den i ed h er cl ai m fo r a l o t t ery p ri ze. Th e GLC fi l ed a m o t i o n to

d i s m i s s , wh i ch t h e t ri al co u rt d en i ed

. Th e GLC ap p eal s , arg u i n g t h at t h e t ri al co u rt

erred i n d en y i n g i t s m o t i o n to d i s m i s s b ecau se a Geo rg i a l ot t ery t i ck et i s n o t an

ex p res s , wri tt en , s i gn ed co n tract an d t heref o r e Pat el ’ s s u i t i s b arred b y so v erei g n

i m m u ni t y

. W h et h er a Geo rg i a l o tt ery t i ck et co n st i t u t es a wri t t en co n t ract wh i ch

wai v es th e GLC’ s s o verei g n i m m u n i t y i s an i ss u e o f fi rs t i m p res s i o n

. Fo r t h e

fo l l o w i n g reas on s , we affi rm t h e t ri al co u rt ’ s d en i al o f t h e GLC’ s m o ti o n t o d i s m i s s

.“ W e r e v i e w d e n o vo a tri al co u rt ’ s ru l i n g o n a m o t io n t o d i s m i s s b as ed o n

s o v erei g n i m

m u n i t y g ro u n d s , wh i ch i s a m at ter o f l aw.” Dr i s co l l v. Bd

. o f Reg en t s of

Un i v. S ys t em o f Ga

. , 3 26 Ga. Ap p . 3 1 5

, 3 1 5 (7 57 SE2 d 1 3 8) (2 01 4 ).

In 2 0 1 6

, Pat el p res en t ed a s crat ch ed o ff l o t tery ti ck et t o t h e GLC, cl ai m i n g a

$ 5 ,0 0 0 ,0 0 0 p ri ze. On i t s face, t h e t i ck et co n t ai n ed th e w o rd s “ Geo r g i a Lo t t ery ,”

p ro v id ed a t i ck et p ri ce o f “ $ 2 0,” an d s t at ed “ M at ch an y o f YOUR NUM BERS t o an y

o f t h e ei g h t SERIAL N U M BERS, wi n p ri ze s h o wn fo r th at nu m b er. Get J UM BO an d

wi n 5 t i m es t h at p ri ze. Get a “ [s y m b o l o m i t t ed ] ” s y m

b o l

, in s t an t l y w i n ALL 2 0

PRIZES s h o wn !” On t h e b ack , t h e t i ck et p ro v i d ed as fo l l o ws :

• Ti ck et p ri ce i s $ 2 0

. Ov eral l Od d s: 1 : 3.0 1

. Si g n t ick et an d cl ai m

p ri zes as so o n as p o s s i b l e, b u t n o l at er t h an 9 0 d ay s aft er en d o f

g am e. To cl ai m p ri zes u p t o an d i n cl u di n g $ 6 0 0

, p res en t t h e t i ck et

t o an y G eo rg i a L o t t ery ret ai l er o r o ffi ce. T o c l ai m p ri zes ov er
$ 60 0

, p res en t t h e t i ck et t o an y Geo rg i a Lo t t ery offi ce, al o n g w i t h

a v al i d g ov ern m en t i s s u ed p h o t o ID an d so ci al s e c u ri t y card

. Pri zes can a l so b e cl ai m ed b y m ai l i n g s i g ned t i ck et t o : Geo rg i a

Lo t t ery , P.O. Bo x 5 6 9 6 6

, At l an t a, GA 3 0 3 4 3

. D a t e o f cl ai m i s

d at e o f recei p t b y

GLC.

• Al l t i ck et s , t ran s act i o n s an d wi n n ers are s u b ject t o Lo t t ery Ru l es

an d ap pl i cab le St at e Law. Pri zes , i n cl u d i n g to p p ri zes , are s u b ject

t o av ai lab i l i t y at t im e o f t i ck et p u rch as e. T i ck et pu rch as ers m u s t

b e at l e a s t 1 8 ye a r s o l d

. Ti ck et s are v o i d i f t h ey fai l t o m eet

2req u irem en ts o f g a m e r u l es or are al t ered o r d efect i v e i n an y

m an n er. Li ab i l i t y fo r v o i d t i ck et is l i m it ed t o rep l acem en t o f t i ck et

o r refu n d o f ret ai l s al es p ri ce.

• Pl ay ers wi n n in g a free t i ck et i n t h i s g am e are en t i t l ed t o a free

t i ck et v al u ed at $ 20

.

• Fo r m o re i n fo rm at i o n, vi s it o u r web s it e at w ww.g al o t t ery .co m o r

cal l 1 -8 0 0-GA-LUCKY (1 -8 0 0 -4 2 5 -8 25 9 ).

Th e GLC d en i ed Pat el ’ s p ri ze cl ai m

. W h en t h e GLC i n fo rm ed Pat el t h at i t was

d en y i n g h er cl ai m , Pat el fi l ed a co m p l ai n t a g a i n s t t h e GLC, as s ert in g t h at th e GLC

b reach ed i ts co n t ract ual ob l i g at i o n b y fai li ng t o p ay th e $ 5 ,0 0 0 ,0 0 0 p ri ze. Th e GLC

fi led a m o t i o n t o d i s m i s s o n t h e g ro u n d s o f s o verei g n i m m un i ty

. Aft er a h eari n g , t h e

t ri al co u rt d en i ed t h e GLC’ s m o t i o n t o d i s m is s , fi n d i n g t h at t h e l o t t ery t ick et was a

c o n t ract b et ween t h e GLC an d Pat el

, wh i ch res u l t ed in a wai v er o f s o v erei g n

i m m u ni t y

. Th e t ri al co u rt i ss u ed a cert i fi cat e o f i m m ed iat e rev i ew an d t h e GLC t i m el y

fi led an ap p l i cat io n fo r i n t erl o cu t o ry rev iew, wh i ch we g ran t ed

. T h i s ap p eal fo l l o wed

,

i n w h ich t h e GLC as s ert s as i ts s o l e en u m erat i o n o f erro r t h at Pat el ’ s s u i t i s b arred by

s o v erei g n i m

m u n i t y . W e d i s ag ree.

(a) Th e GLC arg u es t h at i t s d efen s e o f s o v erei gn i m m u ni t y was n o t wai v ed

b ecau s e a lo t t ery

t i ck et i s n o t an ex p res s , w ri t t en , s i g n ed co n tract

. “ Th e d o ct ri n e o f

3s o v erei g n i m m u n i t y , al s o k n o w n a s go v ern m en t al i m m u n i t y , p ro t ect s al l l ev el s o f

g o v ern m en t s fro m leg al act i o n u n l es s t h ey ha v e w a i v ed t h ei r i m m u n i t y fro m s u i t .”

W a t ts v. Ci ty o

f Di l l a rd

, 2 94 Ga. Ap p

. 8 6 1

, 8 6 2 ( 1 ) (6 7 0 SE2 d 4 4 2 ) (2 0 0 8 )

(p u n ct u at i o n o m i t ted ). So verei g n i m m u n i t y ap p l i es t o t he GLC. In Kyl e v. Ga

. Lo t t er y

Co r p

. , 2 9 0 Ga. 8 7

, 8 8 (1 ) (7 1 8 SE2 d 8 0 1) (2 0 1 1 ), t he Su p rem e Co u rt h e l d t h a t t h e

GLC was an i n s tru m en t al i t y o f t h e St at e an d was t h erefo re p ro t ect ed fro m s u i t fro m

s o v erei g n i m

m u n i t y

. Th e Geo rg i a Co n s t i t u t i o n, h owev er, w a i ve s sove r e ign im m u n i t y

i n b reach -o f-co n t ract cl ai m s b as ed u p o n wri tt en co n t ract s

. La yer v. Ba r r o w Co u n t

y ,

2 9 7 Ga. 8 7 1

, 8 7 1 (1 ) (7 7 8 SE2 d 1 5 6 ) (2 0 1 5 ); see Ga. Co n s t

. o f 1 9 8 3

, Art

. I, Sec. II,

Par. IX (c). Th e b u rd en o f d em o n s t rat i n g a w ai v er o f s o verei g n i m m un i t y res t s wi th

t h e p ers o n as s ert i n g it

. S

ee W a t ts

, 2 9 4 Ga. Ap p

. at 8 6 3 (1 ). Th e GLC arg u es t h at Pat el

d i d n o t m eet h er b u rd en b ecau s e s h e fai l ed t o s h o w t h at s h e has an ex p res s , wri t t en ,

s i gn ed co n t ract wi t h t h e GLC.

“ To co n s t i tu t e a v al i d co n t ract

, t here m u st b e p art i es ab l e t o co n t r a c t

, a

co n si d erat io n m o vi n g t o t h e co n t ract

, t h e as s en t o f t h e p art ies t o t h e t erm s o f t h e

co n tract

, an d a s u b

ject m at t er up o n wh i ch t h e co n t ract can o p erat e.” OCGA § 1 3 -3 -1

.

“ An o ffer an d an accep t an ce are es s en t i al p rereq u is it es t o th e creat i o n o f ev ery k i n d

o f co nt ract

. Th u s , th e l aw req u i res t h a t t h e p art i es co ns en t t o t h e fo rm at i o n o f a

4co n tract

. Un t i l each h as as sen ted t o al l th e t erm s , t h ere is n o b i n di n g co n t ract [.] ”

S o u t h ea s t Gr a di n g

, In c. v. Ci t

y o f At l a n ta

, 1 72 Ga. A p p

. 7 9 8

, 80 0 (2 ) (3 2 4 SE2 d 7 7 6 )

(1 9 8 4) (ci t at io n s an d p u nct u at i on om i t t ed ). “ As s en t t o t he t erm s o f a co nt ract m ay b e

g i v en o t h er t h an b y s i g n at u res .” Co ch r a n v. Ea so n , 2 2 7 Ga. 3 1 6

, 3 1 8 (1 ) (1 8 0 SE2 d

7 0 2 ) (1 9 7 1 ).

In Geo rg i a, t here h as b een n o ex p res s d et erm i n at i o n m ad e t h at l o t t ery t i ck et s

co n st i t u t e wri t ten co n t r a c t s

. Th e GLC arg u es t h at t h e t ri al co urt erred i n rel y i n g o n

d i ct a i n Ta l l ey v. Ma t hi s , 2 6 5 Ga. 1 7 9, 1 7 9 (1 ) (4 5 3 SE2 d 7 0 4) ( 1 9 9 5 ) a n d G a

.

Lo t t er y Co r p

. v. S u mn er , 2 4 2 Ga. Ap p

. 7 5 8

, 76 2 (3 ) (5 29 SE2 d 9 2 5 ) (2 0 0 0) i n fi n d i n g

t h at a l o t t ery t ick et i s a co n t ract b et ween t h e GLC an d t h e h o l d er o f t h e t i ck et

. In

Ta l l e y , o u r Su p rem e Co u rt

, i n co n s id eri n g t h e v al i di t y o f an ag reem en t t o s p l i t

p ro ceed s o f a lo tt ery t i ck et p u rch as ed i n Ken tu ck y , referred t o t h e l o t t ery t i ck et as a

“ g am bl i n g co n t ract ” b et ween t h e St at e o f Ken t u ck y an d t h e h ol d er of t h e wi n n i n g

l o t t er y t i ck et

, th e en fo rceab i l i t y o f wh i ch was reco gn i zed “ th ro u gh [t h at s t at e’ s ]

ag reem en t t o p ay t h e l o t t ery p ro ceed s t o ap p el l ees in t h ei r cap aci t i es as ho l d ers o f t h e

wi n ni n g t i ck et .” In S

u mn er , wh i ch was d eci d ed o n o th er gro u n d s, w e s t at ed t h at

“ wh et h er a l o t t ery p l ay er i s en t i t l ed t o p ri ze wi n n in g s u n d er t h e t erm s p ri n ted o n t h e

t i ck et i s go v ern ed b y t h e p ri n ci p l es o f co n t ract l aw. Th e GLC o ffers th e ch an ce t o wi n

5a p ri ze, an d t h e p l ay er accep ts t h e o ffer b y b u y i n g th e t i ck et .” 24 2 Ga. Ap p

. at 7 6 2

(3 ). Mo reo ver, we ack n o wl ed g ed t h at t h e t erm s on th e b ack o f t he t i ck et were i n d eed

co n tract ual t erm s

. Id

. Th e GLC m ai n t ai n s t h at a l o t t ery t i ck et co u l d n o t b e a co n t ract

wi t h o u t b ei n g s i g n ed , b u t S u m ner can b e read t o reject t h i s t h eo ry

.

Al t h ou g h S

umn er i s n o t b i n d i ng p reced en t o n t he i s s u e o f wh et h er a Geo rg i a

l o t t ery ti ck et i s a co n t ract

, o u r an al y s i s i n t h at cas e was co rrect

. T he G L C i s s u es

wri t ten l o t t ery t i ck et s. By b u y i n g a l o t t ery t i ck et

, a l o t t ery p l ay er accep t s t h e GLC’ s

o ffer o f a ch an ce t o wi n a p ri ze u n d er t h e t erm s p ri n t ed o n t h e t i ck et

. By i s s u i n g an d

s el l i n g t he ti ck et

, t h e GLC as s en t s t o t h e t erm s o f t h e co n t ract

. T h u s , t h e el em en t s o f

o ffer, accep t an ce, an d as s en t o f b o t h p art i es t o t h e term s of th e co n t ract are p res en t

.

S ee OCGA § 1 3 -3 -1 ; s ee al s o So u t h ea s t

Gr a d i n g, In c. , 1 72 Ga. Ap p . at 8 0 0 (2 ). As

d i s cu s s ed b el o w, t h e GLC h as t h e ab i l i t y t o co n t ract as req u i red b y O CGA § 1 3 -3 -1

.

Th e co n si d erat i o n fo r t h e co n tract

, wh i ch i s req u i red b y O CGA § 1 3

- 3-1

, i s t h e

p u rch as e p ri ce o f th e t i ck et

. Th e t erm s o f t h e co n tract b et ween t he h o ld er o f t h e t i ck et

an d t h e GLC are wri t t en o n t h e t i ck et

, i n cl ud i n g t h e t i ck et p ri ce, h o w t o wi n a p ri ze,

an d t h e p ro ces s fo r cl ai m i n g p ri zes

. Th us , t he s ub j e c t m at t er o f t h e co n t ract

, an

es s en t i al el em en t o f a co n t ract u n d er OCGA § 13 -3 -1

, i s s t at ed on t h e t i c k e t

.

Co n s eq u en t l y , a Geo rg i a lo t t ery t i c k e t i s a v al i d co nt ract u n d er Geo rg i a l aw.

6Fu rt h erm o re, a Geo rg ia l o t t ery t i ck et i s an ex pres s wri t t en co n tract b ecau s e t h e

i n t en t i o n o f t h e p art i es an d t h e t erm s o f t h e ag reem en t are ex p res s ed i n wri t i n g o n t h e

l o t t ery t i ck et

. S ee Cl a s si c Res t or a ti o n s

, In c. v. Bea n , 1 5 5 Ga. A p p

. 6 9 4 , 6 9 9 (5 ) (a)

(2 7 2 SE2 d 5 5 7 ) (1 9 8 0). Th u s , t h e t ri al co u rt d id n o t err i n d en y i n g t h e GLC’ s m o t i o n

t o d i s m i s s o n t h e g ro u n d s t hat s o v erei g n i m m u n i t y h ad b een wai v ed

.

Th e GLC ci t es s ev eral cas es fo r t he pro p o s i t i o n t h at “ a co n t ract wi t h t h e St at e

m u st b e ex p res s, i n w ri t i n g , an d s i g n ed by th e p art i es i n o r d e r t o wai v e so v erei g n

i m m u ni t y .” Ho wev er, al l o f th es e cas es are d i s t i n g ui s h ab l e fro m th e i n s tan t cas e. In

Kyl e , 2 9 0 Ga. 8 7

, a t rad em ark in fri n g em en t cas e, th e Co u rt d id n o t ad d res s wh et h er

a co n t ract wi th t h e St at e n eed ed t o b e ex p res s, i n wri t in g , an d s i g n ed b y t h e p art i es

i n o r d e r t o w a i v e s o verei g n i m m u ni t y

. Rat h er, Kyl e w as t h e fi rs t cas e t o d et erm i n e

t h at , as s t at ed earl i er, t he GLC i s en t i t l ed to s o verei gn i m m u n i t y . 2 9 0 Ga. at 8 8 (1 ).

In Ga

. Dep t

. of Co mmu n i t y Hea l t h v. Da t a In q u i r

y, LLC

, 3 1 3 G a. Ap p. 6 8 3

, 6 8 6 (1 )

(a) (7 2 2 SE2 d 40 3 ) (2 0 1 2 ), t h e p ro p o s ed ag reem en t at i s s u e ex p res s l y pro v i d ed t h at

i t wo u l d n o t b e effect i v e un l es s ex ecu t ed b y b o th p art i es

. Si m i larl y , i n G eo r g i a Dep t

.

o f La b or v. RTT As s o ci a t es

, In c. , 2 9 9 Ga. 7 8

, 79 (7 86 SE2 d 8 4 0 ) (2 0 1 6 ), t h e co n t ract

at i s s u e sp eci fi ed t h at am en d m en t s m u s t b e i n wri t i n g an d fu l ly ex ecu t ed b y b o th

7p art i es

. In co n t ras t

, t he l o tt ery t i ck et at i s s u e i n t h is cas e co nt ai n s n o req u i rem en t t h at

t h e GLC s i g n t h e t i ck et t o ren d er i t v al i d

.

Th e GLC ci t es Bd

. o f Reg en t s o f t h e Un i v. S

ys t em of G a

. v. R u

f f

, 3 1 5 G a. Ap p.

4 5 2

, 4 5 6 -4 5 7 (2 ) (7 26 SE2 d 4 5 1 ) (2 0 1 2 ), o ver r u l e d o n o th er g ro u nd s , Ri ver a v.

W a s h i n g t o n

, 2 9 8 Ga. 7 7 0 (7 8 4 SE2 d 7 75 ) (2 0 1 6 ), an d G a

. Dep t

. o f Co mmu n i t

y

Hea lt h v. Nea l

, 3 3 4 Ga. A p p. 8 51

, 8 5 5 -8 5 6 (1 ) (7 8 0 SE2 d 4 7 5 ) (2 0 15 ), o ver r u l ed o n

o t h er g r o u n d

s , Ri ver a, 2 9 8 Ga. 7 7 0

, fo r t he pro p o s i t i o n t h at Pat el can n o t es t ab l i s h a

co n tract was creat ed b y m u lt i p l e, co n t em

po ran eo u s ag reem en t s b et ween t h e p art i es ,

b u t Pat el d o es n ot rai s e t h i s arg u m en t

. Pat el co n t en ds t h at h er lo t t ery t i ck et i t s el f i s

a v al i d , b i n d i n g , wri t ten co n t ract

.

Si m i l arl y , i n W

i l s o n v. B d

. o f Reg en t s o f Un iv. S ys t em o f Ga

. , 2 6 2 Ga. 4 1 3

, 4 1 4

(2 ) (4 1 9 SE2 d 9 1 6 ) (1 9 9 2 ), t h e Su p rem e Co u rt h el d t h at a “ co n s en t f o r m an d o t h er

h o s p it al reco rd s l ack in g th e es sen t i al t erm s o f a co n t ract are n ot a wri t t en co n t ract to

wh i ch t h e wai v er o f s ov ere i g n i m m u n i ty ap p l ies .” In co n t ras t

, t h e l o t tery t i ck et at

i s su e co n t ai n s t h e es s en t i al t erm s o f t h e co n t ract b et ween t h e GLC an d Pat el

.

(b ) Th e GLC al s o co n t en d s t hat i t d o es n o t h av e t h e s t at u t ory au t h o ri t y t o en t er

i n t o a w ri t t en co n t ract wi th Pat el

. On e o f t h e es s en ti al el e m e nt s o f a co n t ract i s t h e

ab i l i t y o f t h e p art i es t o co nt ract

. S ee W a t t s , 2 9 4 G a. Ap p. at 8 6 3 (1 ); s ee a l s o OCGA

8§ 1 3-3 -1

. T h e G L C a r gu es t h at wh i l e t he Geo rg i a Lo t tery fo r Ed u cat i o n Act g ran t s

t h e GLC t h e p o wer t o en t er i n t o a n u m b er o f ty p es o f co nt ract s fo r sp eci fi c pu rp o s es ,

i n cl u d i n g co nt ract s wi t h v en d o rs an d ret ai l ers an d w i th o t h er st at es , t h ere i s n o

m en t i o n o f th e p o wer t o co n t ract wi t h pu rch as ers o r h o ld ers o f l o t t ery t i ck et s

.

Ho wev er, OCGA § 50 -2 7

- 9 ( a) (1 5 ) au t h o ri zes t h e GLC to “ en t er i n t o co n t ract s o f

an y an d al l t y

p es o n su ch t erm s an d co n d i t i o n s as t h e co rp o rat i o n m a y d et erm i n e.”

Th u s, t he GLC h ad t h e ab i l i t y t o en t er i n t o a co n t ract wi t h Pat el

.

(c) Th e GLC arg u es th at t h e Gen eral As s em b l y d i d no t defi n e l o t t ery t i ck et s as

co n tract s, an d t h at i t s d efi n i t i o n o f a l o t t ery ti ck et as “ an y t a n g i b l e ev id en ce i s s u ed

b y t h e l o tt ery t o p ro v i d e p a r t i ci p at i o n i n a l o t t ery g am e” i n OCGA § 5 0 -2 7 -3 (2 4 )

u n d e r c u t s t h e t ri al co u rt ’ s co n cl u si o n t h at lo t t ery t i ck et s are co n t ract s

. Th e GLC

co n ten d s t h at u s e o f t h e wo rd “ co n t ract ” in OCGA § 50 -2 7 -1 3 (1 4 ), wh i ch d efi n es t h e

t erm “ m ajo r pro cu rem en t co n tract ,” i n OCGA § 5 0 -1 7 -3 (2 2 ), wh i ch d efi n es a ret ai l er

as “ a p ers o n wh o s el l s l o t t ery t i ck et s

. . . p u rs u an t to a co n t ract ,” an d i n OCGA § 5 0

-

1 7 -3 (2 5 ), wh i ch d efi n es a v en do r as “ a p ers o n wh o p r o v i d es

. . . go o d s o r s erv i ces

t o th e co rp o rat i o n p u rs u an t t o a m ajo r pro cu rem en t co n tract ,” b u t n o t i n OCGA § 5 0

-

1 7 -3 (2 4 ), wh i ch d efi n es a l o tt ery t i ck et

, i n d i cat es t h at t h e Gen eral As s em b l y d i d n ot

co n si d er a lo t t ery t i ck et t o b e a co n t ract

. Ho wev er, th e “ co n s tru ct io n , i n t erp ret at i o n,

9an d l eg al effect o f a co n t ract i s a q u es t i o n fo r th e co u rt t o d eci d e.” Geo r gi a Kr a f t Co

.

v. Rh od es , 2 5 7 Ga

. 4 6 9

, 4 72 (2 ) (3 6 0 SE2 d 5 9 5 ) (1 9 8 7 ). Th u s , t h e Gen eral

As s em b l y ’ s defi n it i o n o f a l o t t ery t i ck et d o es n ot p recl u d e u s fro m d et erm i n i n g t h at

t h e l o tt ery t i ck et at is s u e i n t h i s cas e co n st i tu t es a v al id co n t ract un d er Geo rg i a l aw.

As d i s cu s sed ab ov e, t h e G LC i s cap ab l e of en t eri n g i n t o co n t ract s an d a l o tt ery

t i ck et i s an ex p res s wri t t en co n t ract

. Co n s eq u en t l y , Pat el ’ s b reach o f co n tract cl ai m

i s n o t b arred b y so v erei g n i m m u n i t y an d t h e t ri al co u rt d i d n o t e r r i n d en y i n g t h e

GLC’ s m o t i o n t o d i s m i s s

.

Ju d g men t a f f i r m ed . Ba r nes , P.J., co n cu r s . McMi l l i a n , J., d i s s en ts .*

* THI S OPI NI ON I S P HYSI CAL PRE C EDENT ONLY. COURT OF

APPEALS RULE 3 3 .2 (a ).

10A1 8 A2 14 3 . GEORGIA LOTTERY CORPORATION v

. PATEL.

M C M ILLI A N , J u dg e, d i s s en t i n g

.

Becau s e I b el i ev e t h at un d er g o v ern i n g Su p rem e Co u rt p reced en t

, t h e s crat ch

o ff l o t t ery t i ck et t hat Pat el pres en t ed is at m o s t ev id en ce o f an i m p li ed co n t ract

, an d

an ex p res s wri t t en co n t ract i s req u i red t o wai v e GLC’ s s o v erei g n i m m u ni ty

, I m u s t

res p ect fu l l y

d i s s en t

.

Th e Geo rg i a Co n st i t ut io n p ro v i d es :

Th e s t at e’s d e fen s e o f s o v erei g n i m m u n it y i s h ereb y wai v ed as t o an y

act i o n ex co n t ract u fo r t h e b reach o f an y wri t t en co n t ract n o w ex i s t i n g

o r h ereaft er en t ered i n t o b y t h e s t at e o r i t s d ep art m en t s an d ag en ci es

.

Ga. Co n s t

. o f 1 9 8 3

, Art

. I, Sec. II, Par. IX (c). Recen t l y , i n Ga

. Dep t

. o f La b or v. RTT

As s o c., In c. , 2 99 Ga. 7 8

, 8 3 (2 ) (7 8 6 SE2 d 84 0 ) (2 0 1 6 ), o u r Su p rem e Co u rt ex p l ai n edt h e rel at io n s h i p b et w een co m m o n l aw ru l es o f co n tract an d wh at co ns t i t u t es a wri t t en

co n tract s u ffi ci en t t o wai v e s ov erei g n i m m u n i t y :

Gen eral ru l es o f co n t ract l aw t h at m i gh t o t h erwi s e s u p p o rt a cl ai m fo r

b reach o f co n t ract d am ag es b et ween p ri v at e part i es

. . . wi l l n o t s up p o rt

a cl ai m ag ai n s t th e s t at e o r o n e o f i t s ag en ci es if t h e co n t ract i s n o t i n

wri t i n g so as t o t ri g ger t h e wai v er o f s ov erei g n i m m u n i t y

.

Id

. at 8 2 (2 ). Th u s, a p art y m ay n o t reco v er fo r b reach o f co n t ract ag ai n s t t h e S t a t e

b as ed o n an i m

p l i ed co n tract

, o n a t h eo ry o f q u an t u m m eru i t

, o r b y t h e p art i es ’ co u rs e

o f co n d uct ev en i f a d o cu m en t ex i s t s s u p p l y i n g t h e m at eri al t erm s o f t h e al l eg ed

co n tract

. Id . at 8 2 -8 3 (2 ).

Part i cu l arl y p ert in en t

, t h e Su p rem e Co u rt rel i ed fav o rab l y o n Bd

. o f Reg en t s of

Un i v. S ys

. o f G a

. v. Tys o n , 2 6 1 Ga. 3 6 8

, 3 6 9 (1 ) (4 0 4 SE2 d 5 5 7) (1 9 9 1 ), fi n d i n g t h at

“ e v en i f a co n tract wi th a s t at e ag en cy i s fo rm ed b y t he p art ies ’ co n d u ct

, i f i t i s n o t

a wri t t en co n t ract t h e s t at e’ s s o v erei g n im m un i t y is n o t wai ved ” an d t h at a b reach o f

co n tract act i o n ag ai n s t t h e St at e can n o t b e b as ed o n m u l ti p l e u ns i g n ed d o cu m en t s t h at

d o no t es t ab li s h t h e n eces s ary term s o f a co n t ract

. RTT As s o c. , 2 9 9 Ga. at 8 2 (2 ). See

al s o W i l s o n v. Bd

. o f Reg en t s o f Un i v. S ys

. o f G a

. , 2 6 2 G a. 4 1 3

, 4 1 4 (2 ) (4 1 9 SE2 d

9 1 6 ) (1 9 9 2 ) (fi n di n g t h e Bo ard o f Reg en ts di d n ot en t er in t o a wri tt en co n t ract b as ed

o n th e co n s en t fo rm an d am b u l at o ry su rg ery

p at i en t ag reem en t t h at p lai n ti ff s i g n ed

2b e fo re h er o p erat i o n); Br o wn i n g v. Ra b u n Co u n t y B d. o f Co mmi s s i o n er

s , 3 4 7 Ga

.

Ap p

. 7 19

, 72 2 -2 3 (8 2 0 SE2 d 73 7 ) (2 0 1 8 ) (s u m m ary o f b en efi t s was no t a wri t t en

co n tract b et ween t he p art ies wh ere i t w as n o t s ig n ed b y ei t h er p art y an d d o es n ot

s h o w t h e as s en t o f t h e p art i es to t h e co nt ract ); Bd

. o f R eg en t s of Un i v. S

ys

. o f Ga

. v.

Ru f f

, 3 1 5 Ga. Ap p

. 4 5 2

, 4 5 7 (2 ) (7 2 6 SE2 d 45 1 ) (2 0 1 2 ) (wh ere n o ne o f th e wri t i ng s

p ro d uced b y t h e p l ai nt i ff we r e s i g n ed b y a rep res en tat i v e o f t h e Bo ard o f Reg en t s ,

p l ai n t i ff was u nab l e to es t ab li s h a wri t t en co n tract ), o v erru l e d o n o t h er g ro u n d s by

Ri ver a v. W

a s h i n g t on , 2 9 8 Ga. 7 7 0 , 7 7 8 , n .7 (7 8 4 SE2 d 7 75 ) (2 0 1 6 ).

Th e Su p rem e Co u rt ’ s an al y s i s i n t h es e cas es s h o w s th at th e Co u rt m ean s wh at

i t s ay s wh en i t h as cau t i o n ed t h at “ [t ] h e d o ct ri n e o f s o v erei gn i m m u n i t y req u i res t h at

t h e co n d i t i o n s an d l i m i t at i o n s o f t h e s t at u t e th at wai v es i m m u n i t y m us t be s t ri ct l y

fo l l o w ed .” (Ci t at i o n an d p u n ct u at i o n o m i t t ed .) RTT As s o c., 29 9 Ga. at 83 (2 ). Here,

o u r l eg i s lat u re h as d efi ne d a l o t t e r y t i ck et as “ an y t an gi b le ev i d en ce i s s u ed b y t h e

l o t t er y t o p r ov i d e part i ci p at i o n i n a l o t tery g am e,” OCGA § 5 0 -2 7 -3 (2 4 ), s o i t i s

en t i rel y co n s i s t en t fo r t h e ru l es o f t he g am e t o b e p ri nt ed o n t h e t i c k e t

. 1 A l t h o u g h

1 A l t h o u gh i t i s t ru e t h at u n d er t h e co m m o n l aw, t h e “ co n s t ru ct i o n, i n t erp ret at io n an d l eg al effect o f a co n t ract i s a qu es t i o n fo r th e co urt t o deci d e,” Ga

. Kr a f t Co

. v. Rh o d

es , 2 5 7 Ga. 4 69

, 4 7 2 (2 ) (3 6 0 SE2 d 5 9 5 ) (1 9 8 7 ), wh en co n s i d eri n g wh et h er s o v erei g n i m

m u ni t y h as b ee n w a i v ed

, t h e Su p rem e Co u rt h as h el d t h at

“ [o ] n l y th e Gen eral As s em b l y , an d n o t t he co u rt s , has au t h o ri ty t o wai v e s o v erei g n

3t h es e ru les m ay al s o be deem ed co n t ract u al term s , t h at d o es no t m ean t h at i t i s a

w r i t t en co n t ract fo r s o v erei g n i m m u ni t y p urp o s es as t he t ick et i s o n l y ev i d en ce o f

Pat el ’ s p art i ci p at i o n i n t h e l o t tery an d t h us i s at m o s t ev i d en ce o f an i m p l i ed co n t ract

.

Th e l o t t ery t i ck et i s n o t s i g n ed by a rep res en t at i v e o f t h e G LC, n or are t h ere an y o t h er

d o cu m en t s t h a t P a t e l has p o i n t ed t o t h at fi t wi t h i n h ow o u r Su p rem e Co u rt h as

d es cri b ed wri t t en co nt ract s s u ffi ci en t to wai v e s o v erei g n im m un i t y. See La

yer v.

Ba r ro w Co u n t

y , 2 97 Ga. 8 7 1

, 8 7 1 -7 2 (1 ) (7 7 8 SE2 d 1 56 ) (2 0 1 5 ) (s o v erei g n i m m u n i t y

wi l l b ar a l aws u it fo r d am ag es u p o n qu as i -co nt ract u al t heo ri es o f l i ab il i t y i n t h e

ab s en ce o f a wri tt en co n t ract ).

Acco rd i ng l y , I wo u l d fi n d t h at t h e t ri al co urt erred in den y i n g t h e G LC’ s

m o ti o n t o d i s m i s s o n g ro u n d s o f s ov erei g n i m m u ni t y an d rev ers e. 2

i m m u ni t y .” RTT As s o c. , 2 9 9 G a. at 8 5 (2 ). Th u s , I fi nd t h e l eg i s lat u re’ s d efi n i t i o n o f

l o t t ery t i ck et t o b e h i g h l y

p ro b at i v e.

2 Pat el arg u es t hat i f h er b r e ach of co n t ract cl ai m s are b arred b y so v erei g n i m m u ni t y , s h e wo u l d h a v e n o reco u rs e, b u t s o verei gn im m u n i t y d oes n o t b ar

m an d am u s rel i ef. See S

JN Pr op er ti es , LLC v. Fu lt o n Co u n t y Bd

. o f As s es s o r s , 2 9 6

G a. 7 9 3

, 7 9 9 (2 ) (b ) (i i ) (7 7 0 SE2 d 8 3 2 ) (2 0 1 5 ). Fo r m an d am us rel ief, a c l a i m a n t

m u st s ho w t h at “ (1 ) n o o th er ad eq u at e l eg al rem ed y i s av ai l ab l e t o effect u at e t h e rel i ef

s o u g ht ; an d (2 ) t h e ap p l i can t h as a cl ear leg al ri gh t t o s u c h r e l i e f.” (Ci t at i o n an d

p u n ct u at i o n o m it t ed .) Id . at 8 0 0 (2 ) (b ) (i i ).

4