FI RST DI VI SI ON

BA RNES, P. J.

, GOBEI L and M A RKLE, 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.

https ://w w w

. ga a ppe a ls .us /r ule s

D E A D LIN E S A R E N O LO N G E R TO LLE D IN T

H I S

C O U R T. A LL FILIN G S M U ST B E S U B M I TTE D WITH IN

TH E TIM E S S E T B Y

O U R C O U R T R U LE S

.

June 11, 2021



# I n th e Co u r t o f

A p p eals o f

G eo r g ia

A2 1 A0 26 0 . THE RENEE GROUP, INC. v . CITY OF ATLANTA.

G O B E I L

, J u d g e.

Th e Ren ee Gro u p

, In c. (“ RGI”) ap p eal s fro m t h e t ri al co u rt ’ s gran t o f s u m m ary

ju d g m en t i n fav o r o f t h e Ci t y o f At l an t a (“ t h e Ci ty ”) o n RGI’ s cl ai m fo r p ro m i s s o ry

es t o p p el . RGI arg u es t h at t h e t ri al co u rt erred i n g ran t i n g s u m m ary ju d g m en t t o t h e

Ci t y b ecau s e: (1 ) th e p ro p o s ed ag reem en t fo r t h e an n u al co n t ract was n o t u l t ra v i res

i n l i g h t o f t h e Ci t y Co u n ci l ’ s ap p ro v al ; an d (2 ) s o v erei g n i m m u n it y d o e s n o t b ar

RGI’ s eq u it ab l e cl ai m s ag ai n s t t h e Ci ty . Fo r t he reas o n s s et fo rt h b el ow, we affi rm

.

T o p rev ai l at su m

m ary ju d g m en t un d er O CGA § 9 -1 1 -5 6

, th e

m o v i n g part y m

u s t d em o n s trat e t h at t h ere i s n o g en u i n e i ss u e o f m at eri al

fact an d t h at t h e u n d i sp u t ed fact s

, v i ewed i n t he li g h t m o s t fav o rab l e t o

t h e n o n m o v i ng p art y

, warran t ju dg m en t as a m at t er o f l aw.

. . . O u r

rev i ew i s d e n o v o

.Amb r o s e v. S h ep p ar d

, 2 4 1 Ga. Ap p. 8 3 5

, 8 35 -8 3 6 (5 2 8 SE2 d 2 82 ) (2 0 0 0 ) (ci t at i o n s

,

p u n ct u at i o n , an d em

p h as i s o m i t t ed ).

Vi ewed i n th i s li g h t

, t he reco r d s h o w s t h at i n M ay 2 0 1 6

, aft er an i nv i t at i o n

fro m t h e Ci t y

, RGI s u b m i t t ed a b i d fo r a Dep art m en t o f W at ers h ed M an ag em en t

s ewer cl ean i ng an d p i p el in e as s es s m en t an n ual co n t ract

. RGI’ s bi d co n t ai n ed

rep res en t at i o ns ab o u t its e xpe r i en ce, q u al i fi cat io n s

, an d cap aci t y t o p erfo rm t h e wo rk

.

RGI s u b s eq u en t l y was reco m m en d ed fo r award o f t h e co nt ract

. RGI recei v ed a co py

o f t h e p ro p os ed ag reem en t fo r t he co nt ract fro m t h e Ci t y Dep art m en t of Pro cu rem en t

.

Th e p ro p o s ed ag reem en t was s ig n ed b y offi ci al s fro m t h e Dep art m en t o f W at ers h ed

M an ag em en t, t h e Offi ce o f Co nt ract Co m p l i an ce, t h e Dep art m en t o f Fi n an ce - Ri s k

M an ag em en t, t h e D ep art m en t o f Pro cu rem en t

, an d t h e Dep art m en t o f Fi n an ce. In t h e

l et t er acco m

p an y i ng th e pro p os ed ag reem en t

, t h e Ch i ef Pro cu rem en t Offi cer ad v i s ed

R GI t o r et u rn t h e fi ve s i g n at u re p ag es wi th i n fi v e d ay s al on g wi t h t h e req u i red

i n s u ran ce an d b o n d in g cert ifi cat es . Th e p ro p o s ed ag reem en t i n cl u d ed a co p y o f t h e

res o l ut i o n au th o ri zi n g t h e May or o f th e Ci t y t o en t er i n t o an ag reem en t wi t h RGI. Th e

res o l ut i o n was ap pro v ed b y t h e Ci t y Co u nci l p er th e Ci t y Ch art er Sect i o n 2 -4 0 3

. Th e

res o l ut i o n p ro v i d e d t h at t h e Co m m i s s i o ner o f t h e D ep art m en t o f W at ers h ed

2M an ag em en t an d t h e Ch i ef Pro cu rem en t Offi cer reco m m en d ed RGI fo r t h e award o f

t h e co n t ract . Th e res o l u ti o n s p eci fi cal l y s tat ed t h at

t h e ag reem en t w i l l n ot beco m e b i n d i n g o n t he Ci ty an d t h e Ci t y wi l l

i n cu r no o b l i g at io n o r l i ab i l i t y u n d er i t u n t i l th e An n u al Co n t ract h as

b een ap p ro v ed as to fo rm b y t h e Ci t y At t o rn ey

, ex ecu ted b y th e M ay o r,

at t es t ed t o b y

t h e M u n i ci p al Cl erk an d d el i v ered t o [RGI.] 1

RGI’ s ch i ef ex ecu t i v e o ffi cer an d rep res en t at i v e, a fo rm er at t o rn ey fo r t h e Ci t y ’ s l aw

d ep art m en t

, w a s fam i l i ar wi t h t h i s ty p e o f res o lu t i o n fo r co n t ract i n g wi t h t h e Ci t y

.

RGI’ s rep res en t at i v e ad m i t t ed t h a t s h e rev i ewed t h e res o l u t i on i n cl u d ed wi t h t h e

p ro p os ed ag reem en t, an d s i g n ed t h e ag reem en t

.

RGI fo rward ed t h e p r o p o s e d ag reem en t b ack t o th e Ci ty

, aft er ob t ai n i n g t h e

req u i red i n s u ran ce, a b o n d in g cert i fi cat e, an d t h e n ece s s ary eq u i p m en t i n i t s

p rep arat i o n t o p erfo rm t h e co n t ract . RGI n ev er recei v ed a co py o f t h e co n t ract wi th

t h e req u i red s ig nat u res

.

1 Th i s l an g u ag e was i n acco rd an ce wi th Sect i on 2 -1 1 0 2 o f th e Ci t y C o d e o f

Ord in an ces , wh i ch p ro v i d es

, i n p ert i n en t p art , t h at an award

m ean s wh en l eg i s lat i o n au t h o ri zi n g t he award o f t h e co n tract h as b een

ad o p t ed b y t h e co un ci l an d ap p ro v ed by t h e M ay o r, p ro v i d ed

, h o wev er,

t h at t h e co n t ract wi ll n o t b eco m e b i n d i n g u p o n t h e ci t y an d t h e ci t y wi l l

i n cu r n o l iab i l i t y u n d e r i t u n t i l i t h as b een d u l y ex ecu t ed b y th e

co n t ract o r, ret urn ed t o t h e ci ty w i t h a l l req u i red s ub m i t tal s

, i n cl u d i n g

i n s u ran ce an d b o n d i n g, i f ap p l i cab l e, ex ecu t ed b y t h e M ay o r, at t es ted t o

b y t h e m u n i ci p al cl erk

, ap p ro v ed b y t h e c i t y a t t o rn ey as t o fo rm an d

d el i v ered t o t h e co n t ract or.

3Aft er rev i ewi n g t h e m at eri al s an d b as ed o n wh at t h e Ci t y b el i ev ed t o b e

d i s crep an ci es an d m i s rep res en t at i o n s b y RGI, t h e Ci t y d eci d ed to can cel th e p ro p o s ed

ag reem en t

. T h e Ci t y s u b seq uen t l y s en t RGI a let t er can cel l i n g t h e p ro p o s ed

ag reem en t i n a c c ord an ce wi t h t h e Ci t y Co de o f O rd i nan ces Sect i o n 2 -1 1 9 4, wh i ch

p ro v id es t h at “ [a] n i n vi t at i o n fo r b i d s

, a req u es t fo r p ro p o sal s o r an y o t h er s o li ci t at i o n

u n d er t h i s art i cl e m ay be can cel ed

. . . , as m ay b e s p eci fi ed i n t he s o l ici t at i o n

, wh en

i t is i n t h e b es t i n t eres t o f t he ci t y .”

RGI t hen fi l ed an act io n ag ai n s t t h e Ci t y

, al l eg i n g b r each o f co nt ract an d

p ro m i s s o ry es t o p pel

. Th e Ci t y an s wered an d fi led a m ot i o n t o d i s m is s t h e act i o n fo r

fai l u re to s t at e a cl ai m

. Fo l l o wi n g a h eari n g

, t h e t ri al co u rt g ran t ed th e Ci t y ’ s m o t i o n

t o d i s m i s s t h e b reach -o f-co n t ract cl ai m b ecau se t h e Ci ty ’ s p res cri bed m et h o d o f

co n tract in g h ad n o t b een m et an d t h erefo re n o co n t ract ex i s ted b et ween t h e p art i es

,

b u t d en i ed t h e m o t i o n as to RGI’ s p ro m i ss o ry es to p pel cl ai m

. Th e t ri al co u rt fo u n d

t h at RGI co ul d m ai n t ai n a cl ai m fo r p r o m is s ory es to p p el

, d es pi t e t h e b reach -o fco n tract cl ai m

fai l i n g fo r l ack o f al l t h e req u i red s i g nat u res

.

Th e Ci t y t h en fi l ed a m o t i o n fo r s u m m ary j u d gm en t

, as s ert i n g t hat RGI co u ld

n o t m eet i ts b urd en in s h o w i n g p ro m i s s o ry es t o p pel

. Aft er a h eari n g an d b r i e f i n g

reg ard i n g t h e cas e o f Ci ty o f B a l d w i n v. W o o d a rd & Cu rr a n

, In c.

, 2 93 Ga. 1 9 (7 4 3

4SE2 d 3 8 1) (2 0 1 3 ), t h e t ri al co urt gran t ed t h e Ci t y ’ s m o t i on fo r s u m m ary ju d g m en t

.

Sp eci fi cal l y

, t h e t ri al co u rt fo u n d

, rel y i n g o n Ci t y o f Ba l d wi n

, th at b ecau se t h e Ci t y ’ s

p res cri bed m et h od of co n t ract i n g h ad n o t b een sat i sfi ed

, t h e p ro p o s ed ag reem en t was

u l t ra v i res an d a n u l l i t y

, an d t h erefo re, t h e eq u it ab l e rem ed y o f p ro m i s so ry es t o p p el

was n o t al l o wed

. Al t ern at i v el y

, t h e t ri al co u rt s t at ed t h at RGI’ s eq u i t ab l e cl ai m s were

b arred b y s o v erei gn i m

m u n it y . Th i s ap p eal fo ll o wed

.

1

. RGI arg u es t h at t h e t ri al co u rt erred i n g ran t i n g th e Ci t y ’ s m o t i o n f o r

s u m m ary ju d g m en t o n i ts cl ai m fo r pro m i s so ry es to p pel i n rel i an ce o n Ci t y of

Ba l d wi n b ecau s e t h e p ro p o sed ag reem en t at is su e here was n o t u l t ra v i res s i n ce t h e

Ci t y Co un ci l ap p ro v ed t h e ag reem en t . W e d i s ag ree.

To es t ab l is h a cl ai m

fo r p ro m i s s o ry es to pp el

, t h e p l ai n t i ff m u s t s h ow t h at t h e

d efe n d a n t m a d e t h e pl ai n t i ff a p ro m i s e, t hat t h e d efen d an t ex p ect ed t he p lai n t i ff to

rel y o n t h at p ro m i s e, th at t h e p l ai n t i ff d i d, in fact

, rel y up o n i t

, an d t h at i n ju s t i ce m ay

b e av o id ed o nl y by en fo rci n g t h e d efen d an t ’ s p ro m i se. Amb r o se

, 2 4 1 Ga. Ap p

. at 8 3 7;

OCGA § 1 3 -3 -4 4 (a). Ho wev er, t o d et erm i ne wh e t h e r pro m i s s ory es t o p p el i s a

p o t en t i al rem ed y i n t h i s cas e, we m u s t fi rs t d eci de i f th e Ci t y ’ s p ro p o s ed ag reem en t

was u l tra v i res

. See Ci ty o f B a l d wi n

, 2 9 3 Ga. at 2 8 (2 ) (c) (i f a p ro p o s al i s u l t ra v i res

,

reco v ery u n d er an eq u i t ab l e d o ct ri n e l i k e es to p p el i s n o t al l o wed ).

5A m u n i ci pal i t y h as n o i n h eren t po wer; i t m ay o n l y ex erci s e p o wer

t o t he ex t en t it h as b een d el eg at e d a u t h o r i t y by t h e st at e. A

m u n i ci p al i ty ’ s al l o cat i o n s o f p o wer fro m t h e s t at e m u s t b e s t ri ct l y

co n s t ru ed

. Acco rd i n g l y

, we h av e l o ng reco g n i zed t h at a m u n i ci p al i t y ’ s

ab i l i t y t o en t er in t o co n tract s i s l i m i t ed

. It i s es t ab l i s h ed t hat a m u n i ci pal

co rp orat i o n m ay b i nd i t s el f b y

, an d can n o t ab ro g at e, an y co n t ract wh ich

i t h as t h e ri g h t t o m ak e u n d er i t s ch art er. Ho wev er, if a lo cal g o v ern m en t

en t ers a co n t ract i n ab ro g at i on o f i t s d el eg at ed p o w er o r i n ex ces s o f i t s

au t h ori t y t o en t er co n t ract s

, t h en t h e co n t ract is d eem ed ul t ra v ires an d

v o i d

.

H.G. Br o wn Fa mi l

y, L.P. v. Ci ty o

f Vi l l a Ri ca

, 2 7 8 Ga. 8 1 9

, 8 1 9 -8 2 0 (1 ) (6 0 7 SE2 d

8 8 3 ) (2 0 0 5 ) (ci t at i o n s an d p u n ct u at i o n o m it ted ). Fu rt h erm o re,

wh ere a ci t y ch art er sp eci fi cal l y p ro v i d es h o w a m un i ci p al co n t ract sh al l

b e m ad e an d ex ecu ted

, t h e ci t y m ay o nl y m ak e a co n tract i n th e m et h o d

p res cri b ed ; o t h erw i s e

, t h e co n t ract i s i n v al id an d u n en fo rceab l e. A

m u n i ci p al i ty ’ s m et h o d o f co n t ract i n g

, o nce p res cri bed by l aw or ch art er,

i s ab s ol ut e an d ex cl u s i v e.

Ci t y o f Ba l dwi n , 2 9 3 Ga. at 2 6 (2 ) (b ).

Th u s

, t h e fo cu s in t h i s cas e i s wh et h er t he Ci t y fo l l o wed i t s p res cri b ed m et h o d

o f co n tract i n g an d au t h o ri zed t h e p ro p o s ed ag reem en t

. It i s cl ear fro m t h e ev i d en ce

p res en t ed t h at t he Ci t y h ad a pres cri b ed m et h od fo r en t eri n g co n t ract s as s et fo rt h in

Sect i o n 2 -1 1 0 2 o f t h e Ci t y Co d e o f Ord i n an ces

, an d wh i ch was co nv ey ed t o RGI v i a

t h e res o l u t i o n

. W hi le RGI co nced es t h at i t n ev er recei v e t h e p ro p o s ed ag reem en t wi th

t h e req u i red s i g nat u res an d RGI’ s CEO was aware o f t h e C i t y ’ s pres cri b ed m et h o d

6o f co n t ract i n g, i t m ai n t ai n s t h at t h e fai l u re t o o b t ai n t h o s e s i g nat u res was m er e l y a

p ro ced ural i rreg u l ari t y g i v en t h e Ci t y Co u n ci l’ s ap p ro v al o f th e re s o l u t i o n an d

p ro p os ed ag reem en t

. As Ci t y o f Ba l d wi n ex p l ai n s, t h i s d i s ti n ct i o n i s s i gn i fi ca n t

b ecau s e a m ere p ro ced u ral i rreg u l ari t y m ay n o t ren d er an ag reem en t i n effect i v e.

In Ci t y o f Ba l d wi n

, ou r Su p rem e Co u rt rei t erat ed t h at “ a co n tract i s u l t ra v i res

an d an ab s o l u t e n ul l i t y

i f a l o cal g o v ern m en t en t ers i t i n ab ro g at i o n o f i t s d el eg at ed

p o wer o r i n ex ces s o f i t s au t h o ri t y t o en ter co n t ract s

, b u t t h at a co n t ract m ay n o t b e

co m p l et el y i n effect i v e i f i t had m erel y b een i m p erfect l y o r i rreg u l arl y ex ecu t ed .” 2 9 3

Ga. at 2 4 (2 ) (a) (ci t at i o n an d p u n ct u at io n o m i t t ed ). In Ci t y o f Ba l d w i n

, t h e co u rt

co n cl u d ed t h at t h e part i cu l ar p ro p os al at is s u e was u l t ra v i res an d a n u ll i t y

. Id

. at 2 7

-

2 8 (2 ) (c). Th at cas e in v o l v ed t wo p ro p o sal s b y t h e p l ai n t i ff t o t h e Ci t y

o f Bal d wi n.

Id

. at 2 0 -2 2 (1 ) (a). Si m i l ar t o t h e Ci t y o f At lan t a, t h e Ci t y o f Bal dwi n h ad a

p r e s cri b ed co nt ract in g p ro ces s. Sp eci fi cal l y

, t h e Ci ty of Bal dwi n ’ s ch art er t h en in

effect p ro v i d ed :

[n ] o co n t ract w i t h t h e ci t y s h al l b e b i n d in g o n t h e ci t y u n les s th e

co n t ract i s in wri ti n g, i s s i g n ed aft er rev i ew b y t h e ci t y at t o rn ey

, an d i s

ap p ro v ed b y t h e ci ty co u n ci l s u b seq u en t t o i t s s i g nat u re by t h e ci t y

at t o rn ey , wi t h s u ch co u n ci l ap p ro v al en tered o n t h e co u n ci l jo u rn al

.

7Id

. at 2 0 (1 ) (a). Th e fi rs t p ro p o s al was ap p ro v ed b y t h e ci t y co u n ci l

. Id

. Ho wev er, t h e

s eco n d p ro p os al was s i g n ed b y t h e m ay o r u n d er an “ Au th o ri zat i o n to Pro ceed ,” b ut

was n o t dat ed

. Id

. at 2 1 (1 ) (a). Al t h o u gh t h e s eco nd p ro po s al was n ev er si g n ed b y t h e

ci t y at t o rn ey o r ap p ro v ed b y t h e ci t y co un ci l

, th e p l ai n t i ff co m m en ced wo rk

. Id

. Th e

p l ai n t i ff ev en t u al l y s en t t h e Ci t y o f Bal d w i n an i n vo i ce fo r t h e wo rk i t h ad co m p l et ed

.

Id

. at 2 1-2 2 (1 ) (a). Th e Ci t y o f Bal d wi n d en i ed p ay m en t

, an d t he p lai n t i ff fi l ed s u i t

fo r b reach o f co nt ract u nd er each ag reem en t an d , al t ern at i v el y

, q u an t u m m eru i t . Id

.

at 2 2 (1 ) (b ).

As t o t h e seco n d p ro p o s al

, t h e t ri al co urt gran t ed th e Ci t y o f Bal dwi n ’ s m o t i o n

f o r s u m m ary ju d g m en t as t o th e b reach o f co n t ract cl ai m ; ho wev er, t h e q u a n t u m

m eru i t cl ai m wen t to t ri al

. Ci t y o f Ba l d wi n

, 2 9 3 Ga. at 2 2 (1 ) (b ). Th e ju ry ret u rn ed

a v erd ict i n fav o r o f t h e p l ai n t i f f

, an d t h e Ci t y o f Bal d wi n ap p eal ed

. Id

. Th i s Co u rt

affi rm ed

. Id

. at 2 2 -2 3 (1 ) (b ); Ci t y o f Ba l d wi n v. W o o d a r d & C u r r a n

, I

n c

. , 3 1 6 Ga.

Ap p . 7 6 8 (7 3 0 SE2 d 4 86 ) (2 0 1 2 ).

On cert i o rari

, o u r Su prem e Co u rt rev ers ed wi t h reg ard t o t h e s eco n d p ro p o s al

,

co n cl u d in g t h at t h e m ay o r h ad n o p o w e r t o b i n d t he Ci t y o f Bal d wi n u n i l at eral l y

b ecau s e th e ci t y ch art er p lai nl y s t at ed t h at n o co n t ract w i t h t h e ci t y wo ul d be b i n d i n g

u n l es s i t w as ap p ro v ed b y t h e ci t y co u n ci l

. Id

. at 2 7 (2 ) (c). Becau s e t h e ci t y co u n ci l

8n ev er ap p ro v ed t h e s eco n d p ro p o s al as req u i red

, t h e m ay o r ex ecu t ed i t w i t h o u t t h e

p o wer t o b i n d t h e ci ty

. Id

. Acco rd i n g l y

, t here was n o m ere p r o ced ural irreg u l ari t y

,

t h ere was a co m

p l et e l ack o f ap p ro v al n eed ed t o bi n d t h e ci t y

, ren d eri n g t h e p ro p o s al

u l t ra v ires an d v o i d . Id . Th u s, t h e Co u rt h el d :

[i ] n t h i s s it u at i o n

, reco v ery u n d er an eq ui t ab l e d o c t ri n e l i ke q u an t um

m eru i t o r e s t o p p el is n o t al l o wed

, ev en t h o u g h t h e p art y s eek i n g

d am ag es has p erfo rm ed i t s p art o f t h e b arg ai n an d m i g h t ev en h av e

rel i ed u p on t h e co n t ract t o i t s d et ri m en t

.

Id . at 2 8 (2 ) (c) (ci t at i o n an d p u n ct u at i on o m i tt ed ).

Here, RGI u rg es t h at t h e fact t h at th e Ci t y Co u n ci l ap p ro v ed t h e r e s o l u t i o n

au t h o ri zi n g th e M ay or t o en t er i n t o t h e p ro po s ed ag reem en t wi th RGI req u i res a

d i fferen t o u t co m e fro m Ci t y o f Ba l d wi n

. W h i l e t h e k ey t o m ak i n g a co n tract b i n d i n g

o n th e Ci ty o f Bal dwi n was ap p ro v al b y t he ci t y co u n ci l

, h ere t here al s o n eed ed t o b e

ap p r o v al b y t he Ci t y At t o rn ey

, ex ecu t i o n b y th e M ay o r, an d at t es t i on to b y t h e

M u n ici p al Cl erk

. No n e of t ho s e req u i rem en t s were m et

. Al t h o u g h o t her s i g n at u res

were pres en t on th e p ro p o sed ag reem en t, t h e s i g n at ures req u ired to b i nd th e Ci t y were

n o t

. See i d

. at 2 8 -2 9 (2 ) (c) (“ Th e act i o n s o f i n d iv i d ual ci ty o ffi ci al s w ho are n ot

em po wered t o act o n b eh al f o f t h e ci t y i n su ch m at t ers can no t b e rel i ed u p o n b y o t h ers

t o co m m i t the gove r

nm e nt’ s r e sou rces

, reg ard l es s o f g o o d i n t en t i o n s .”). O b t ai n i n g t h e

9m an d at o ry s i g n a t ures t o b i n d t h e Ci t y (as req u i red b y Sect i o n 2 -1 10 2 of t h e Ci t y

Co d e o f Ord i n an ces an d t h e res o l u t i o n ap p ro v e d b y t h e Ci t y Co u n ci l) i s m o re t h an

ju s t a p ro ced u ral i rreg ul ari t y h ere, i t i s a s u b s t an t i v e an d fu n d am en t al s t ep req u i red

b y l aw t o b i nd t h e Ci t y

. A s i n C i t y o f Ba l d w i n

, b ecau s e t h e pres cri b ed m et h o d o f

co n tract in g was n o t s a t i s fi ed

, t h e p ro p os ed ag reem en t was ul t ra v i res an d a n u l l i t y

.

An d

, as t h e Ci t

y o f Ba l d wi n Co u rt em

p h as ized

, if an ag reem en t i s u l tra v i res

, i t can n ot

b e g i v en an y l eg al effect “ w h at s o ev er.” Ci t y o f Ba l d wi n

, 2 9 3 G a. at 25 (2 ) (a). To

d eem s uch an ag ree m en t effect i v e “ i n an y s en s e, ev en qu as i-co nt ract u al l y wo u ld

am ou n t t o p erm i t ti n g t h e l o cal g o vern m en t t o ex pan d i t s o w n p o wers rat h er t h an

req u i ri n g i t t o rel y up o n s t at e le g i s l a t i v e d el eg at io n .” Id

. (ci tat i o n an d pu n ct u at i o n

o m it t ed ). Co n s eq u en t l y

, t h e tri al co u rt d i d n o t err i n d i s al l o w i n g a cl ai m fo r

p ro m i s s o ry

es t o p p el i n rel i an ce o n Ci t y o f Ba l d wi n

.

2 . Gi v en ou r d is p os i ti o n i n Di v i si o n 1

, we n eed n o t ad d res s RGI’ s rem ai n i n g

arg u m en t reg ard i n g s o v erei g n i m m u n i t y

.

Ju d g men t a f f i r m ed . Ba r nes , P. J., a n d

Ma r kl e, J., co n cu r

.

10