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Jul y 16, 2015



# I n th e Co u r t o f

A p p eals o f

G eo r g ia

A1 5 A0 22 3 . FUCIARELLI v . M CKINNEY et al

. J E-0 1 1

E LLI N G T O N , Pres i d i n g J ud g e.

Th e Su p eri o r Co u rt o f F u l t o n Co u nt y d i s m i s sed cl ai m s b ro u gh t b y Al fred

Fu ci arel l i u nd er t h e Geo rg i a Tax p ay er Pro t ect i on an d Fal s e Cl ai m s Act (“ t h e

TPFCA”), OCGA § 2 3 -3 -1 20 et s eq

., o n t he g ro un d t h at Fu ci arel l i l ack ed t he req u i red

wri t ten ap p ro v al o f t h e At t o rn ey Gen eral o f t h e St at e o f Geo rg i a p ri o r t o b ri n g i n g t h e

cl ai m s

, ci t in g OCGA § 2 3

- 3

- 1 2 2 (b ) (1 ). Pu rs uan t to a g ran t ed ap p l i cat i o n fo r

i n t erl o cu t o ry ap p eal

, Fu ci arel l i arg u es th at th e t ri al co u rt erred i n fi n d i ng t h at h i s

cl ai m s req u i red t h e At t o rn ey Gen eral ’ s ap p ro v al

. Fo r th e r e a s o n s t h at fo l l o w, we

affi rm th e ju dg m en t i n p art an d rev ers e i n p art

.

“ W e rev i ew a t ri al co u rt ’ s ru l i n g o n a m o t i o n t o d i s m i s s d e n o v o

, v i ewi n g al l

a l l e g a t i o n s i n t h e co m

p l ai n t as t ru e. Th u s, w e owe n o deferen ce t o a t ri al co u rt ’sru l i n g on q u e s t i o n s o f law an d rev iew s u ch i s s u es d e n o v o u nd er t h e ‘ p lai n l eg al

erro r’ s t an d ard o f re v i e w

. ” ( Ci t at io n s an d p u n ct u at i o n o m i t t ed .) La s ka r v. Bd

. of

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

ys

. o f G a

. , 3 2 0 Ga. Ap p

. 41 4 (7 4 0 SE2 d 1 7 9 ) (2 0 1 3 ). So

v i ewed

, t h e rel ev an t fact s are as fo l l o ws

.

Fu ci arel l i i s em

pl o y ed b y t h e Bo ard of Reg en t s o f t h e Un i v ers i ty Sy s t em o f

Geo rg i a as a t en u red facu lt y m em b er at Val d os t a St at e Un i v ers i t y (“ VSU”). As h e

ad m i t s in h i s b ri ef, he is a p ub l i c em p l o y ee. H e serv ed as an as s i s t an t v i ce p res i d en t

fo r res earch an d as d ean o f t h e g rad u at e s c h o o l

. I n h i s ro l es as v ice p res i d en t an d

d ean

, Fu ci arel l i reco m m e n d e d t h at VSU i m p l em en t an el ect ro n i c res earch

ad m i n is t rat i o n s y s t em t o b et ter m an ag e i t s g ran t s an d res earch pro g ram s an d t h ei r

fu n d in g s o urces

. Al t h o ug h VSU i n i t i al l y ap pro v ed t h e s y s t em

, i t rem o ved Fu ci arel l i

as t h e s y s t em ’ s b ud g et m an ag er an d i t lat er d ecl i n ed t o fu n d t h e s y s tem

. Fu ci arel l i

co m p l ai n ed t o t h e ad m in i s t rat i on ab o u t V SU’ s “ n o n co m p l i an ce wi t h l aws

, ru l es

, an d

reg u l at i o n s ,” h e ex p res s ed co n cern s t h at V SU’ s l ack o f res earch ad m i n i s t rat i o n t o o l s

ex p os ed VSU t o l i ab i l i t y

, an d h e co m p l ai ned ab o u t h i s ex cl u s i o n fro m cert ai n i n t ern al

au d it s

. U l t i m a t el y

, VSU t erm i nat ed Fu ci arel l i ’ s co n t ract as as s is t an t vi ce p res i d en t

an d d ean

, w h ich en d ed hi s ad m i ni s trat i v e d u ti es

. He rem ai n ed a t en u r e d facu l t y

m em b er, b u t h i s s al ary an d b en efi t s were red u ced

. Fuc ia r e l li a ppe a l ed VSU’ s d eci s i o n

2t o t erm i n at e h i s ad m i n i s t rat i v e d u t i es t o t h e Bo ard o f Reg en t s

, bu t t h e Bo ard affi rm ed

VSU’ s d eci s i o n

.

On J u l y 1 1

, 2 01 3

, aft er ex h au s t i n g h i s ad m i n i st rat i v e rem ed i es

, Fu ci arel l i fi l ed

a co m pl ai n t as s ert i n g cau s es o f act i o n ag ai n s t t h es e d efen dan t s : t h e Bo ard of Reg en t s

,

i n cl u d i n g i t s u n i t i n s t i t u t i o n VSU 1 ; W i l l i am McKi n n ey

, i n h is i n d i v i d u al cap aci t y an d

i n h i s o ffi ci al cap aci t y as Pres id en t o f VSU; an d Karl a Hu l l, i n h er i n di v i d u al cap aci t y

an d i n h er o ffi ci al cap aci t y as t he fo rm er Act in g Vi ce Pres i d en t fo r Acad em i c Affai rs

at VSU. Ag ai n s t each d efen d an t

, Fu ci arel l i as s ert ed a cl ai m fo r “ Fal s e Cl ai m s

W h i s t l eb l o wer Ret al i at i o n ” u n d er t h e T PFCA, ci t i n g OCGA § 2 3 -3 -1 2 2; an d a cl ai m

fo r “ Pu b l i c Em

p lo y ee W h is t leb l o wer Ret al i at i o n ,” ci t i n g OCGA § 4 5 -1 -4

. 2

1 VSU i s n o t a s ep arat e o r d i s t i n ct l eg al en ti t y fro m t h e Bo ard o f Reg en t s an d,

t h erefo re, can no t b e s u ed

. See McCa f f er t y v. Med i ca l Co l leg e o

f Ga

. , 2 49 Ga. 6 2

, 6 5

(1 ) (2 87 SE2 d 1 7 1 ) (1 98 2 ), an d Bd

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

ys

. o f Ga

. v. Do e  ̧ 2 7 8

Ga. Ap p

. 8 7 8, n

. 1 (6 3 0 SE2 d 8 5 ) (2 0 06 ) (b ot h h o l d in g t h at t h e p o wer t o s u e an d b e

s u ed is v es t ed i n t h e Bo ard o f Reg en t s , n o t i n i nd i v i d u al m em b er i n s ti t u t io n s ).

2 T h e g i s t o f Fu ci arel l i’ s co m p l ai n t ap p ears t o be t h at VSU, i n d ecl i n i n g t o

i m p l e m e n t F u ci arel l i ’ s res earch m an ag em en t to o l s

, h ad m i s u sed o r was at ri s k o f

“ m i s u s i n g g o v ern m en t fu n d s in m an y o f it s s p on s o red [res earch ] pro g ram s ,” an d t h at

wh en Fu ci arel l i co m

p l ai n ed t o t h e ad m i n i s trat i o n ab o u t th o s e m at ters

, t h e

ad m i n is t rat i o n ret al i at ed b y dem o t i n g h i m

. It i s u n cl ear fro m t h e co m p l ai n t wh et h er

a fal se cl ai m was s u bm it t ed t o t h e St at e o f G eo rg i a. Ho wev er, i t i s cl ear t h at Fu ci arel l i

i s n o t p u rs u i n g a q ui t a m act i o n b as ed u p o n a s peci fi c fal s e cl ai m

. In a q u i t a m act i o n,

a p ri v at e i n d i v id u al p art i ci p at es i n a p ro secu t i o n o r a ci v i l act i o n on beh al f o f o r fo r

t h e b en efi t o f a g o v ern m en t an d m ay recei v e al l o r p art of an y p en al t y i m p o s ed

3Th e d efen d an t s m o v ed to d i s m i s s Fu ci arel l i ’ s TPFCA cl ai m s, as s ert i n g

, in

p ert i nen t p art

, t h at cl ai m s ag ai n s t M cKi n n ey an d Hu l l i n t h ei r o ffi ci al cap aci t i es an d

t h e Bo ard o f Reg en t s are barred b y s o v erei g n i m m u ni t y an d t h at M cKi n n ey an d Hu l l

are no t pro p er d efen d an t s t o th o s e cl ai m s i n t h ei r i nd i v i d u al cap aci t i es

. Aft er t h e

p art i es h ad b ri efed t h es e is s u es

, t h e t ri al co urt i s s u ed an o rd er d irect i n g t h e p art i es “ to

s u b m i t s u p p l em en t al b ri efs o n wh et h er Fu ci arel l i m u s t o b tai n w ri t t en ap p ro v al fro m

t h e At t o rn ey G en eral [p ri o r t o b ri n gi n g cl ai m s u n d er t he T P F CA] as req u i red by

OCGA § 2 3 -3 -1 2 2 (b ) (1 ).” Fu ci arel l i d oes n o t co n t en d t hat h e o b t ai n ed t h e At t o rn ey

Gen eral ’ s ap p ro v al befo re fi l in g h i s cl ai m s

, an d t he reco rd co n t ai n s n o ev i d en ce t h at

h e s o ug h t o r was g i v en t h at ap p ro v al p ri or t o fi l i n g t h e i ns t an t l aws ui t

.

On Decem

b er 9

, 2 0 13 , t h e t ri al co u rt ru l ed

, i n p ert in en t p art , t h at Fu ci arel l i ’ s

cl ai m s p urs u an t t o O CGA § 2 3 -3 -1 2 2 ( l ) are b arred b y h i s fai l u re to ob t ai n wri t t en

ap p ro v al fro m t h e At t o rn ey G en eral

. Th e t ri al co u rt d en ied t h e d efen d an t s ’ m o t i o n to

d i s m i s s Fu ci arel l i ’ s rem a i n i n g c l ai m s b ro u g h t p u rs uan t t o OCGA § 4 5 -1 -4

, wh i ch

p ro h ib i t s r e t al iat i o n ag ai n s t a pu b l i c em p l o y ee wh o di s cl o s es n o n co m p l i an ce wi th

ag ai n s t t h e o ffen d i n g p art y

. See, e.g

., S t a l l ey v. O r l a n d o Reg ’l Hea l t h ca r e S

ys

. , 5 2 4

F.3 d 1 2 2 9

, 1 2 3 3 (II) (1 1 th Ci r. Fl a. 2 0 0 8 ) (“ ‘ Qu i tam ’ ” i s an ab b rev i at io n fo r q u i t a m

p r o do mi n o r eg e q u a m p r o sei ps o

, wh ich m ean s ‘ h e wh o as m u ch fo r t h e ki n g as fo r

h i m s el f.’ ”) (ci t at i o n o m i t t ed ; em p has i s o ri g i nal ).

4s t at e l aw. On ap p eal

, Fu ci arel li co n t en d s t h at t h e t ri al co urt e r r e d in d i s m is s i n g h i s

TPFCA cl ai m o n t h e b as i s th at h e l ack ed At to rn ey Gen eral ap p ro v al

, arg ui ng t h at “ a

ret al i at i o n ci v il act i o n b el o ng s ex cl u si v el y t o t h e p art y b ri n g i n g t h e cl ai m an d d o es

n o t req u i re At to rn ey

Gen eral ap p ro val .”

1

. Pret erm i tt i n g wh et her t h ere i s a ny m e r it to Fu ci arel l i ’ s arg u m en t wi t h res p ect

t o t h e Bo ard o f Reg en t s, VSU, an d Hu ll an d M cKi n n ey in t h ei r o ffi ci al cap aci t i es

, t h e

tr ia l c ou rt n ev ert hel es s pro perl y d i s m i s s ed th e OCGA § 2 3 -3 -1 2 2 (l ) ret a l ia tion c la im s

ag ai n s t t h es e go v e rn m en t al d efen d an t s

. As t h e d efen d an ts arg u ed bel o w i n t h ei r

o ri g i nal b ri ef s u p p o rt i n g t h ei r m o t i o n t o d i s m i s s i n t h e t ri al co u rt

, t h e Ge n eral

As s em b l y d i d n o t i n t en d fo r th e s t at e o r an y o f i t s p o l i t i cal s u b d iv i s i o n s t o b e s u b ject

t o ret al i at i o n cl ai m s b ro u g ht p u rsua nt to th e TPFCA. No t hi n g i n t h e T PFCA ex p res s l y

o r i m p l i ed l y wai v es t h e g o v ern m en t ’ s i m m u n it y fro m su i t

. Co n s eq u en t l y

, we m u s t

affi rm t h e t ri al co u rt ’ s o rd er wi t h res p ect t o th es e d efen d an t s u n d er t he “ ri g h t fo r an y

reas on ” ru l e. 3

3 Geo rg ia ap p el l at e co u rt s m ay ap p l y th e “ r i gh t fo r an y reas o n ” ru l e wh en

rev i ewi n g de n o vo cert ai n ju dg m en t s

. See Ci t y o f Ga i n es vi l l e v. Do d

d

, 2 7 5 Ga. 8 3 4,

8 3 5 (5 7 3 SE2 d 3 6 9) (2 00 2 ) (“ Un d er t h e ‘ ri g h t fo r an y reas o n’ ru l e, an ap p el l at e co u rt

wi l l affi rm a ju d g m en t i f i t i s c o rrect fo r an y reas o n

, ev en i f th at reas o n i s d i fferen t

t h an th e reas o n u p o n wh ich t h e t ri al co u rt rel i ed .”) (ci t at i o n o m i t t ed ). See al so Cr a i g o

v. Az i z i

, 3 0 1 Ga. Ap p

. 1 81

, 1 8 7 (3 ) (6 8 7 SE 2 d 1 98 ) (2 0 0 9 ) (d i s m is sal o f co m p l ai nt

affi rm ed u n d er ri g h t fo r an y reas o n ru l e). A s u m m ary ju d g m en t “ m

u s t b e affi rm ed i f

5“ Un d er G eo rg ia l aw, s o v erei g n i m m u ni t y i s an i m

m u n it y fro m s ui t

, rat h er t h an

a m ere d efen s e t o l i a b i l i t y

, an d

, t h erefo re, wh et her a g ov ern m en t al defen d an t h as

wai v ed i t s so v erei g n i m

m un i t y i s a th res h o l d i s s u e.” (Ci t at i o n s o m i t t ed .) McCo b b v.

Cl a yt o n Co u n t

y.

, 30 9 Ga. Ap p

. 2 1 7

, 2 1 7 -2 1 8 (1 ) (a) (7 1 0 SE2 d 2 0 7) (2 0 1 1 ). Ex cep t

as o th erwi s e p ro v id ed i n t h e Geo rg i a Co n s ti t u t i on

, “ [t ] h e s o verei g n im m u n i t y o f t h e

s t at e an d i t s d ep art m en t s an d ag en ci es can o n l y b e wai v ed b y an Act of t h e Gen eral

As s em b l y w h i ch s p eci fi cal ly p ro v i d es t h at s o v erei g n i m m u n i t y i s th ereb y wai v ed an d

t h e ex t en t o f s u ch wai v er.” Ga. Co n s t . 1 98 3 Art

. I, Sec. II, Par. IX (e). See Dep t

. of

Na t ur a l Res ou r ces v. Cen t er fo r a S u s ta i n ab l e Co a s t

, 29 4 Ga. 59 3

, 5 9 7 -5 9 8 (2 ) (7 5 5

SE2 d 1 84 ) (2 0 1 4 ). “ In t h i s reg ard

, i m p l i ed wai v ers o f g o v ern m en t al im m u n i t y s h o u ld

n o t be fav o red .” (Ci t at i o n an d pu n ct u at i on om i t ted .) Co l o n v. F ul t o n Co un t

y

, 2 9 4 Ga.

9 3

, 9 5 (1 ) (7 5 1 SE2 d 3 0 7 ) (2 0 1 3 ). Th e s tat e’ s s o v erei g n i m m u n i t y ex t en d s t o t h e

Bo ard o f Reg en t s

. W

i l s o n v. Bd

. o f R eg en t s o f t h e U ni v. S ys

. of Ga

. , 2 6 2 G a. 4 1 3

, 4 1 4

i t i s ri g ht fo r an y reas o n

, wh et h er s t at ed o r u n st at ed in t he tri al co u rt ’ s o rd er, s o l o n g

as th e m o van t rai s ed t he i s s u e i n t h e t ri al co u rt an d t h e n o nm o v an t had a fai r

o p p o rt u ni t y

t o res p o n d .” A n d

er s o n v. Jo n es , 3 2 2 Ga. Ap p. 3 1 1 , 3 1 2 n

. 2 (7 4 5 SE2 d

7 8 7 ) (2 0 1 3 ). Becau s e t h e i s s u e o f s o v erei g n i m m u ni t y was p res en t ed i n d efen d an t ’ s

m o ti o n t o d is m i ss an d becau s e Fu ci arel l i h ad an o p p o rt u n i ty to res p o n d

, t h e

a p p l i cat i o n o f th e “ ri g ht fo r an y reas on ” ru le i s ap p ro p ri at e. See Ab el l er a v

. W i l l ia ms o n , 2 74 Ga. 3 2 4 , 3 2 6 (2 ) (5 5 3 SE2 d 8 0 6 ) (2 0 0 1).

.

6(3 ) (1 9 9 2 ). An d “ [s ] u i ts ag ai n s t p u bl i c em p l o y ees i n t h ei r o ffi ci al cap aci t i es a r e in

real it y s u i t s ag ai n s t t he s t at e an d

, t herefo re, i n v ol v e s o v erei g n im m u n i t y .”

(Pu n ct u at i on an d fo o t no t e o m it t ed .) Ca mer on v. La n g

, 2 7 4 G a

. 1 2 2

, 1 2 6 (3 ) (5 4 8

S E2 d 3 4 1 ) (2 0 01 ). “ Th e p art y s eek i n g t o b en efi t fro m t h e wai v er o f s o v erei g n

i m m u ni t y h as t h e b u rd en o f p ro o f t o es t ab l i s h wai v er[.] ” (Ci t at i o n o m i t ted .) Bo n n er

v. P et er so n

, 3 0 1 Ga. A p p

. 4 4 3 (6 8 7 SE2 d 67 6 ) (2 0 0 9). Fu ci arel l i can n o t m eet t h at

b u rd en

.

Th e TPFCA d oes n o t ex p re s s l y p ro v i d e t h at i t wai ves t h e st at e’ s so v erei g n

i m m u ni t y

. M o reo ver, i t d oes n o t s et fo rt h c i r c u m s t an ces d em o ns t rat i n g an i m p l i ed

wai v er o f s o v erei gn i m

m u n i t y

. Th e TPFCA d o es n o t creat e a cau s e o f act i o n ag ai n s t

t h e s t at e n o r do es it pro vi d e t hat an ag g ri ev ed p art y m ay co l l ect m o n ey d am ag es fro m

t h e s t at e. See Co l o n v. Fu lt o n Co u n t y

, 2 9 4 Ga. at 9 5 -9 6 (1 ). 4 In fact

, t h e t h ru s t o f t h e

4 By co m p ari s o n

, t h e Su p rem e Co u rt o f Geo rg i a co n cl u d ed t h at t h e Gen eral

As s em b l y

, i n e n a c t i n g OCGA § 4 5-1 -4

, wh i ch au t h o ri zes cert ai n ret al i at io n cl ai m s

ag ai n s t p u b l i c em

pl o y ees , wai v ed s o v erei gn i m m u n i t y . Th e co urt reas o ned t h at

wh ere, as here, t h e Leg i s l at u re h as s p eci fi cal l y creat ed a ri g h t o f act i o n

ag ai ns t t h e g o v ern m en t t h at w o u l d o t h erwi s e b e b arred by so v erei g n

i m m u n i t y

, an d h as fu rt h er ex p res s l y st at ed t h at an ag gri ev ed p art y i s

en t i t l ed t o co l l ect m o n ey d a m a g es fro m t h e g ov ern m en t i n co n n ect i o n

wi t h a s ucces s fu l cl ai m u n d er t h e s t at u t e, t here can b e n o d o u b t th at th e

7T P F C A i s t o au t h o ri ze t he St at e o f G eo rg i a, t h ro u g h t h e At t o rn ey Gen er a l o r a

d es i g n ee, t o b ri n g ci v i l act i on s t o reco u p l o s s es t h at t h e s t at e o r a l o cal g o v ern m en t

h as s u ffered as a res u lt o f fal s e cl ai m s p res en ted t o t h e s t at e o r a l o cal g o v ern m en t by

o t h ers

. Fo r ex am

p l e, OCGA § 2 3 -3 -1 2 1 (a) s et s fo rt h a s ch em e b y wh i ch t ho s e wh o

p res en t fal s e o r frau du l en t cl ai m s fo r p u b l i c fu nd s as d efi n ed b y t h e TPFCA “ s h al l b e

l i ab l e t o t h e S t a t e o

f Geo r g i a fo r a ci v i l p en al t y o f n o t l es s t han $ 5 ,5 0 0 .0 0 an d n ot

m o re th an $1 1,0 0 0.0 0 fo r each fal s e o r frau d u l en t cl ai m

, p l u s t hree ti m es th e am o u nt

o f d am ag es wh i ch th e st at e o r l o cal g o v ern m en t s us t ai n s b ecau s e o f t h e act o f s u ch

p ers o n .” (em

p h as i s s up p l i ed ). To t h e ex t en t th at a p ri v at e p ers o n m ay al so bri n g s u ch

a cl ai m

, t h at TPFCA ex p res s l y p ro v i d es th at s u ch a cl ai m s h al l b e i n t h e

g o v ern m en t ’ s n am e an d wi th t h e g o v ern m en t ’ s ap p ro v al

. 5 M o reo v er, u n d er cert ai n

Leg i s l at u re i n t en d ed fo r s o v erei g n i m m u ni t y t o b e wai v ed wi t h res pect

t o t h e s peci fi c cl ai m

au t ho ri zed u n d er t h e s t at u t e.

Co l on v. Fu l t o n Co u n t

y , 2 9 4 Ga. at 9 5 -9 6 (1 ).

5 OCGA § 2 3 -3 -1 2 2 (b ) (1 ) p ro v i des , i n rel ev an t p art :

Su b ject t o th e ex cl us i on s s et fo rt h in t hi s C o d e s e ct i o n

, a ci vi l act i o n

u n d er t h is art i cl e [t h at i s, u n d er th e T PFCA] m ay a l s o b e bro u g h t b y a

p ri v at e pers o n u p on wri t t en ap p ro v al b y t h e A t t o rn ey Gen eral

. A ci v i l

act i o n s h al l b e b ro u g h t i n t h e n am e of t h e S t a t e o f Geo rg i a o r l ocal

8ci rcu m s t an ces

, t h e g o v ern m en t h as t h e ri g h t to i n t erv en e in t h e l i t i g at i o n

, i n cl u d i n g

t h e ri g h t t o s et t l e or d is m i s s t h e s u i t wi th o u t t h e p ri v at e p ers o n’ s co n s en t

. OCGA §

2 3 -3 -1 2 2 (c). A p ri v at e p ers o n’ s q u i t a m reco v ery i n s u ch a ci v i l act i o n i s l i m i t ed to

a p ercen t ag e o f t h e p ro ceed s p ai d t o t h e g o v ern m en t

. OCGA § 23 -3 -1 22 (h ). An d t h e

“ s t at e o r l o cal g o v ern m en t s h al l n o t b e l iab l e fo r ex p en s es w h i ch a p ri v at e p ers o n

i n cu rs i n b ri n g i n g a ci v i l act i o n u n d er [t h e TPFCA] .” OCGA § 2 3-3 -1 2 2 (k ).

Co n si d ered wi t h i n t h i s co n t ex t

, w e co n cl ud e t h at OCGA § 2 3-3 -1 2 2 (l )(1 ) d o es

n o t creat e a ret al i at i o n cau se o f act i o n a g a i n s t t h e g o ver n men t s u ch t h at so v erei g n

i m m u ni t y i s wai ved . Th at Co d e s ect i o n p ro vi d es , i n p ert i n en t p art :

An y em p l o y ee, co nt ract o r, o r ag en t s h al l be en t i t l e d t o al l rel i ef

n e c e s s ary t o m ak e t hat em p l o y ee, co n tract o r, o r ag en t wh o l e if t h a t

em p l o y ee, co n t ract o r, o r ag en t i s d is ch arg ed

, dem o t e d

, su s pen d ed

,

t h reat en ed

, h aras s ed

, or in an y o t h er m an n er d i s cri m i n at ed ag ai ns t i n th e

t erm s an d co n d i t i o n s o f em p l o y m en t b ecau s e o f l awfu l act s d o n e b y th e

em p l o y ee, co n tra c tor

, a gen t

, o r as s o ci at ed o t h ers i n f ur t h er a n ce o

f a ci vi l

a ct i o n u n d

er t h i s Co d

e s ect i o n o r o t her ef

f o r t s t o s to p o n e o r mo r e

vi o l a t i o n s o

f t h i s a r t i cl e [

t h a t i s , t h e TPFCA]

.

O C G A § 2 3 -3 -1 2 2 (1 )(1 ) (em p h as i s s u p p l i ed ). T h i s Co d e s ect i o n cl ari fi es t h at

, i n

a d d i t i on t o an y q ui t a m reco v ery

, a wh i s t l eb lo wer i s al s o en t i t l ed t o al l t h e r e l i e f

g o v ern m en t , as ap p li cab l e.

9n eces s ary t o be m ad e wh ol e fro m t h e en t it y th at ret al i at ed ag ai n s t h i m o r h er. In t h e

co n tex t o f t h e TPFCA, t h at en t i t y i s n o t t h e g o v ern m en t al en t i t y

, b u t

, rat h er, t h e

“ p ers o n

, fi rm

, co rp o rat i o n

, or o t h er l eg al en t i t y ” res p on s ib l e fo r s u b m i t t i n g t h e fal s e

cl ai m t o “ t h e s t at e o r l ocal go v ern m en t .” See OCGA § 2 3-3 -1 2 0 (1 ) (d efi n i n g a

cl ai m ); OCGA § 23 -3 -1 2 1 (d efi n i n g t h o s e wh o m ay b e l iab l e fo r s u b m i t t i n g a fal s e

cl ai m ). 6 Co n s t ru i n g OCGA § 2 3 -3 -1 2 2 (l ) (1 ) to al l o w a ret al i at i o n cl ai m ag ai n s t t h e

g o v ern m en t wo u l d b e co n t rary t o t h e l aw en fo rcem en t p urp o s e o f t h e s t at u t e, wh i ch

i s t o reco u p p u b l i c fu n d s

. 7 Fo r t h es e reas o n s

, we h o l d t h at t h e Gen eral As s em b l y d id

n o t wai v e t h e s tat e’ s s o v erei g n i m m u n i t y wh en i t en act ed t h e TPFCA. Co n s eq u en t l y

,

t h e t ri al co u rt d i d n o t err i n d i s m i s s i n g Fu ci arel l i ’ s ret al i at i o n cl ai m m ad e p u rs u an t

t o OCGA § 2 3 -3 -1 22 (l )(1 ) ag ai n s t t h e g o v ern m en t al d efen dan t s

.

6 See al s o OCGA § 23 -3 -1 24

, p ert a i n i n g t o ven u e o f TPFCA ci v i l act i o n s

. Defen d an t s are d es cri b ed as t h o s e h av i n g s ub m i t ted “ a fal s e o r frau d ul en t cl ai m t o t h e

s t at e o r l o ca l g o ver n m en t .” (em

p h as i s s u p p l i ed ).

7 See, e.g

, OCGA §§ 2 3 -3 -1 2 2 (b ) (6 ) (“ To e f f e c t u at e t h e l aw en fo rcem en t

p u rp os es o f th is art i cl e in co m b at in g fra u d a n d f

al s e cl ai m s d i rect ed at t he p u b l i c’ s

fu n d s, i t i s t he p u bl i c p o l i cy o f t h i s st at e t h a t p r iv at e p ers o n s b e au t h ori zed t o t ak e

act i on s t o p ro v i d e t o t h e At t o rn ey Gen eral o r l ocal g o v ern m en t s u ch i n fo rm at i o n an d

ev i d en ce.”; 2 3 -3 -1 26 (b ) (Th e TPFCA “ s h al l b e b ro ad ly co n s t r u e d a n d ap p l i ed to

p ro m o t e t h e p u bl ic’ s i n teres t i n co m b at i n g f r a u d a n d fal s e cl ai m s d i rect ed at t h e

p u b l i c’ s fu n ds .”).

102

. Th e tri al co u rt

, ho wev er, erred in d i s m is s i n g Fu ci arel l i ’ s OCGA § 2 3 -3 -1 2 2

(l ) ret al i at i o n cl ai m s ag ai n s t Hu l l an d M cKi n n ey i n t h ei r i n di v i d u al cap aci t i es o n t h e

g ro u nd t h at Fu ci arel l i fai l ed t o o b t a i n At t orn ey G en eral ap p ro v al p ri o r t o fi l i n g h i s

s u i t al l eg i n g ret al i at i on cl ai m s u n d er t h e TPFCA. At t o r n ey Gen eral ap p ro val i s n ot

req u i red fo r ret al i at i o n cl ai m s, wh i ch are p ers o n al t o t h e p l ai n ti ff.

Th e TPFCA p ro v id es t h a t

, “ [ s ] u b j ect t o t h e ex cl u si on s s et fo rt h i n [OCGA §

2 3 -3 -1 2 2]

, a ci v i l act i o n u n d er t h i s a r t icl e m ay al s o b e b ro u g h t b y a p ri v at e p ers o n

u p o n wri t t en ap p ro v al b y t h e At t o rn ey Gen eral .” OCGA § 2 3 -3 -1 2 2 (b ) (1 ) (em p h as i s

s u p p li ed ). Th e u s e o f t h e wo rd “ art i cl e” i n t h i s co n t ex t was i n t en ded t o em b race ci v i l

act i on s b ro u g h t in t h e n am e o f g o v ern m en t ; ap p l y i ng i t t o ret al i at i o n cl ai m s was n ot

i n t en d ed an d wo u l d l ead t o ab su rd res u l t s

.

In co n s t ru i ng a s t at u t e, o u r g o al i s t o d et erm i n e i t s l eg is l at i v e p u rp os e.

In t h i s reg ard

, a co urt m

us t fi rs t fo cu s on t h e s t at u t e’ s t ex t

. In o rd er t o

d i s cern t h e m ean i n g o f t he wo rd s o f a s t at u t e, th e read er m u s t l oo k at th e

co n t ex t i n wh i ch t h e s t at u t e was wri t ten , rem em b eri n g at al l t i m es t hat

t h e m ean i n g o f a s en t en ce m ay b e m o re t h an t h at o f th e s ep arat e wo rd s

,

a s a m el o dy i s m o re t h an t h e n o tes

. If t h e wo rd s o f a s tat u t e, h o w e v e r

,

are p l ai n an d cap ab l e o f h av i n g b u t o n e m ean i n g

, an d d o n o t p ro d u ce

an y ab s u rd

, i m

p ract i cal

, o r c on t rad i ct o ry res u lt s

, th en t h i s Co u rt i s

b o u n d t o fo l l o w t he m ean i n g o f th o s e wo rd s

. If, o n t h e o t h er h an d, t he

wo rd s o f th e s t at u t e are am b i g u o u s, t hen t h i s Co u rt m u s t co n s t ru e th e

11s t at u t e, k eep in g i n m i n d t h e p u rp os e of t h e s t at u t e an d “ t h e o l d l aw, th e

ev i l , an d t h e rem ed y .” OCGA § 1 -3 -1 (a).

(Pu n ct u at i on an d em

ph as i s o m i t t ed .) Ri t e-Ai d Co r p

. v. Da vi s

, 28 0 Ga. Ap p

. 5 2 2

, 5 2 4

(1 ) (6 34 SE2 d 4 80 ) (2 0 0 6 ).

In t h e co n t ex t o f OCGA § 2 3 -3 -1 2 2 (b ) (1 ), t h e “ ci v i l act i o n ” referen ced i s a

an act i o n b ro u g h t “ i n t h e n am e o f t h e St at e o f G eo rg i a o r l o cal g ov ern m en t [.] ” Id

.

T h i s Co d e s ect i o n p ro v id es th at

, wi t h At t o rn ey Gen eral ap pro v al

, a p ri v at e p ers o n

“ m ay al s o” b ri n g s uch a cl ai m

. T h u s

, t h e s u b s ect i on i s i t s el f an ex cep t i o n t o t h e

g en eral ru l e t h at o nl y g o v ern m en t s m ay p ro s ecu t e TPFCA cl ai m s

. T h e s u b s ect i o n i s

i n t en d ed t o ap p l y t h e p rereq u i s i t e o f At t o rn ey Gen eral ap p ro v al t o an y act i o n u n d er

t h e TPCFA t hat a p ri v at e p ers o n b ri n g s i n t h e nam e o f t h e g o v ern m en t fo r t h e b en efi t

o f t h e g o vern m en t

. Ret al i at io n cl ai m s

, h o wev er, are p ers o n al to t h e p lai n t i ff an d are

m ean t t o affo rd p ro p er p l ai n t i ffs wi th al l rel i ef n eces sary t o m a k e t h em wh o l e.

Becau s e Fu ci arel li w as no t req u i red t o ob t ai n t h e At t o rn ey Gen eral ’ s ap p ro v al p ri o r

t o fi l in g h i s TPFCA ret al i at i o n act i o n

, t h e t ri al co u rt erred i n d i s m is si n g Fu ci arel l i ’ s

cl ai m s ag ai n s t Hu ll an d M cKi nn ey i n t h ei r i n d iv i d ual cap aci t i es

.

Ju d g men t a f f i rmed i n p a r t a nd r ever

s ed in p a r t

. Ba r n es

, P. J., an d Ph i p p s

, P.

J., co n cu r

. McFa d

d en

, J

., f u l l y co n cu r s i n Di vi s i o n 1 a n d co n cu r s s p eci a l l y a s to

12Di vi s i o n 2

. D i l l a r d

, Ra y a n d M cMi l l i an , JJ., f

u l l y co n cu r i n Di vi si o n 1 a n d d i s s en t

a s t o Di vi s io n 2

.

13A1 5 A0 22 3 . FUCIARELLI v . M CKINNEY et al

. M cF-XXX

M C F A D D E N , J u d g e, co n cu rri n g fu l l y

.

I co n cu r fu l l y i n t h e m ajo ri t y o p i n i o n

. I wri t e s ep arat e l y a s t o Di v i s i o n 2 to

em ph as i ze t h at t h e m ajo ri t y ’ s co n s t ru ct io n o f OCGA § 2 3 -3 -1 2 2 (l ) i s fai t h fu l t o t h e

t ex t o f t h e s t a t u t e

. As t h e m ajo ri t y co rrect l y h o l d s

, s u b s ect i o n (l ) creat es a cau s e o f

act i on t h at i s p ers o n al t o t he p l ai n t i ff, d is t in ct fro m t h e cau s e o f act i o n ad d res s ed in

t h e res t o f § 2 3 -3 -1 22

, an d n o t s u b ject t o t he n o t i ce req u i rem en t o f OCGA § 2 3 -3 -1 2 2

(b ).

Th e d i s s en t i m

p l i es t h at we are s im

pl y p res en t ed wi t h a s y l l o g i s m “ t h at co u ld

n o t b e m o re cl ear” an d m e r e l y l ead s t o an u n p al at ab l e res u l t

. Bu t co n t rary t o t h e

d i s s en t

, t he q u es t i o n b efo re u s i s wh et her t h ere is a co n t ro ll i n g d i s t i n c t i o n b et weenact i on s u n d er su b s ect i o n (l ) o f OCGA § 2 3 -3 -1 2 2

– wh i ch are pers o n al t o t h e p l ai n t i ff

– an d o th er ci v il act i o n s un d er th at Co d e s ect i o n as a w h o l e

– wh ich are o n b eh al f o f

t h e st at e. Th e t ex t o f t he st at ut e d o es d raw s u ch a di s t i n ct io n

, an d i t i s c o n t r o l l i n g.

Su b s ect io n 2 3 -3 -1 2 2 (l ) is d i s ti n ct fro m t he res t o f OCGA § 2 3 -3 -1 2 2 an d i s l i k ewi s e

d i s t i n ct fro m t h e res t o f t h e Art i cl e o f wh i ch t h at s tat u t e i s a p art

.

Th at art icl e, Ti t le 23

, Ch ap t er 3

, Art icl e 6

, d eal s wi t h fal se o r frau d ul en t cl ai m s

m ad e ag ai n s t st at e an d l o cal g o v e r n m e n t s

. See O CGA § 2 3 -3 -1 2 0 (1 ) (d efi n i n g

“ Cl ai m ”). Th at s t at u t e, OCGA § 2 3 -3 -1 2 2, ad d res s es t h e p ro ced u res fo r b ri ng i n g ci v il

act i on s un d er Art i cl e 6. As t h e S o l i c i t o r Gen eral ex p l ai ned at o ral arg u m en t

, “ Th e

p u rp os e o f t h [at ] s t at ut e i s t o reco ver s tat e m o n ey s .”

Bu t s u b s ect i o n 2 3 -3 -1 2 2 (l ), t h e fi n al su b sect io n o f a l en gt h y s t at u te, ad d res s es

a d i s t i n ct t y

p e o f act i o n

. Th e s u b s ect i o n refers rep eat ed l y t o an “ act i o n u n d er t h i s

s u b s e c t i o n ” an d s et s o u t ru l es rel at ed t o s u ch act i o n s

, d i s ti n g u i sh i n g t h em fro m an

“ act i o n un d er t h i s Co d e s ect i o n ,” as a wh o l e.

It i s s i g n i fi can t t h at t h e t ex t o f s u b s ect i on (l ) d i s t i n g u is hes “ an act i o n u n d er t h i s

s u b s ect i o n ”fro m “ a ci v il act i o n u n d e r t h i s Co d e s ect i o n .” As Ju s t i ce Scal i a an d

Pro fes s o r Garn er no t e i n Read in g Law, “ wh ere th e d o cu m en t h as u s ed o n e t erm in

o n e p lace, an d a m at eri al l y d i fferen t t erm i n an ot h er, t h e p res u m p ti o n is t h at t h e

2d i fferen t t erm d en o t es a d i fferen t i d ea.” 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 I N 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 1 7 0 (Pres u m p t i o n o f

Co n s i s t en t Us ag e) (1 s t ed

. 2 0 1 2 ). An d s u b s ect i o n (l ) e x p l ai n s t h e rel at i o n s h ip

b et ween t h es e two d i fferen t i deas

. A cau se o f act i o n u n d er s u b s ect i o n (l ) ari ses wh en

a p ers o n s u ffers ret al i at i o n as a co ns eq u en ce o f “ l awfu l act s d on e

. . . i n fu rt h eran ce

o f a ci v i l act io n u n der t h i s Co d e s ect i on ” as a wh o l e. OCGA § 2 3 -3 -1 2 2 (l ) (1 ).

It is t ru e t h at OCGA § 2 3 -3 -1 2 2 al s o u s es t h e p h ras e “ ci v i l act i o n u n d er t h i s

a r t i cl e .” OCGA § 2 3 -3 -1 2 2 (a), (b ) (em p h as i s ad d ed ). Bu t t h e p o i n t o f t h at u s ag e i s

t h at th e ci v i l act i on s au t h o ri zed i n s u b s ect io n s (a) an d (b ) are fo r t h e p u r p o s e o f

v i n d i cat i ng t h e g o v ern m en t i n t eres t s ad d res s ed t h ro u g h o u t th e art i cl e. Co ns eq u en t l y

t h e s u b s eq u en t referen ces t h ro u g h ou t t h e s t at u t e t o “ act io n [s ] un d er t h i s Co d e

s ect i o n ” r e f

e r t o t h e s am e t y

pe o f act i o n s

. As t h e m ajo ri t y n o t es

, t h ere is n o o t h er

s en s i b l e read i n g

.

Th i s an al y s i s i s rei n fo rced b y t h e ru l e t h at Scal ia an d Garn er cal l t he Sco p e-o fSu b p art s Can o n

, wh i ch p ro v i d es

, “ m at eri al co n t ai n ed i n u n in d en ted t ex t rel at es t o al l

t h e fo l l o wi n g or preced i n g i n d en t ed s u b part s .” S C A LI A & G A R N E R

, s u p ra, at 1 5 6.

Nei t h er s u b s ect i o n (b ), wh i ch c o n t ai n s t he n o t i ce req u i rem en t

, n o r su b sect i o n (l ) i s

i n d en t ed . Th ey

are o f eq u al ran k i n t h e s t at u t o ry s t ru ct u re.

3A1 5 A0 22 3 . FUCIARELLI v . M CKINNEY et al

.

D I LLA R D , J u dg e, co n cu rri n g i n p art an d d i ss en t i n g i n p art

.

Al t h ou g h I fu l l y co ncu r i n t he m ajo ri t y ’ s o pi n i o n as t o Di v i s io n 1 th at OCGA

§ 23 -3 -1 2 0 et

. s eq

. d o es n o t wai v e t h e s t at e’ s s o v erei g n i m m u ni t y

, I d o n ot ag ree wi th

t h e m ajo ri t y’s h o l d in g i n D i v i s i o n 2

. To th e co nt rary

, t h e p lai n l an g u ag e o f OCGA

§ 2 3-3 -1 2 2 (b ) (1 ) u neq u i v o cal l y req u i res wri t t en ap p ro v al o f t h e At t o rn ey Gen eral

t o b ri n g a ret al iat i o n cl ai m u n d er OCGA § 2 3 -3 -1 2 2 (l ). Th u s

, I res pect fu l ly d i s s en t

as t o t h i s d i v i s io n o f t h e m ajo ri t y o p i n i o n

.In in t erp ret in g an y st at u te, w e n eces s ari l y b eg i n ou r an al y s is wi t h fam i l i ar an d

b i n d i n g can o n s o f co n s t ru ct io n

. An d i n co ns i d e r i n g t h e m ean i n g of a s tat u t e, o u r

ch arg e as an ap p el l at e co u rt is to “ p res u m e t h at t h e Gen eral A s s em b l y m ean t wh at i t

s a i d a n d s ai d wh at i t m ean t .” 1 Th u s

, we m u s t affo rd t h e s t at u t o ry tex t i t s p l ai n a n d

o rd i n ary m ean i n g

, 2 co ns i d er t h e t ex t co nt ex t u al l y

, 3 read th e t ex t “ i n i t s m o st n at u ral

an d reas on ab l e way

, as an o rd i n ary s p eak er o f t he En gl i s h l an g u ag e wo u l d ,” 4 an d

1 Dea l v

. C

o l e m a n

, 2 9 4 Ga. 1 7 0

, 1 7 2 (1 ) (a) (7 5 1 SE2 d 3 3 7 ) (2 0 1 3 )

(p u n ct u at i o n o m i tt ed ); s ee Ma r t i n ez v. S ta t e

, 3 2 5 Ga. Ap p

. 2 6 7

, 2 7 3 (2 ) (7 5 0 SE2 d

5 0 4 ) (2 0 1 3 ) (s am e).

2 S ee Dea l , 2 94 Ga. at 1 7 2 (1 ) (a) (“ T o t h at en d

, we m u s t affo rd th e s t at u t o ry

t ex t i t s p l ai n an d o rd i n ary m ean i n g .” (p u n ct u at i o n o m i t t ed )); St a te v. Ab l e

, 3 2 1 Ga.

Ap p

. 6 3 2, 63 6 (7 4 2 SE2 d 1 49 ) (2 0 1 3) (“ A ju d g e i s ch arg ed wi t h i n terp ret i n g t h e l aw

i n acco rd an ce wi t h t h e o ri g i n al an d / o r p l ai n m ean i n g of t h e t ex t at i ss u e (an d al l t h at

t h e t ex t fai rl y i m

p l ies )

. . . .”); 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 1 6 (1 s t ed

. 2 0 12 ) (“ T ex t u al i s m

, i n i t s

p u res t fo rm , b eg i n s an d en d s wi t h wh at t h e t ex t s ay s an d fai rl y i m p l i es .”).

3 S ee Ar i z on a v. In ter Tr i b a l Co u n ci l o f Ar i z o n a

, In c.

,

__

_ U.S.

_ _ _,

_ _ _ (II) (B)

(1 3 3 SCt 2 2 4 7 1 8 6 LE2 d 2 3 9 ) (2 0 1 3 ) (“ W o rd s th at can h av e m ore th an o ne m ean i n g

a r e give n c onten t

, h o wev er, b y t h ei r s u rro u n d in g s

. ” (p u n ct u at i on o m i t t ed )); Dea l

, 2 9 4

G a

. a t 1 7 2 (1 ) (a) (“ [W ] e m u s t v i ew t h e s t at u t o ry t ex t in t h e co n tex t i n wh i ch i t

ap p ears [.] ”); s ee al

s o OCGA § 1 -3 -1 (b ) (“ In al l i n t e r p r e t a t i o ns o f s t at u t es

, t h e

o rd i n ary s i g ni fi cat i o n s h al l b e ap p l i ed t o al l wo rd s

. . . . ”); S C A LI A & G A R N E R

, s u pr a

n o t e 2

, at 1 6 7 (“ Co n t ex t i s a p ri m ary d et erm i n an t o f m ean i n g .”).

4 Dea l , 2 9 4 Ga. at 1 7 2 -7 3 (1 ) (a); a cco r d Ma r ti n ez , 3 2 5 Ga. Ap p . at 2 7 3

.

2s eek t o “ av o i d a co n s t ru ct i o n t h at m ak es s om e l an g u ag e m ere s u rp l u s ag e.” 5

Im p o rt an t l y

, wh en t he l an g u ag e o f a st at u t e i s p l a i n an d s u scep t i b le o f on l y o n e

n at u ral an d reas o n ab le co n s tru ct i o n

, co u rt s m us t “ co n s t ru e t he s t at u t e acco rd i n g l y

. ” 6

Here, t h e p lai n m ean i n g o f OCGA § 2 3 -3 -1 2 2 (b ) (1 ) co u l d no t b e m o re cl ear.

Pri o r t o b ri n g i n g a ci v i l act i o n u nd er Ar t i cl e 6 (Fal s e o r Frau d u l e n t Cl ai m s ) o f

Ch ap t er 3 (Eq u i t ab l e Rem ed i es an d Pro ceed i n g s Gen eral ly ) t o Ti t l e 2 3 (Eq u i ty ) o f t h e

Offi ci al Co d e o f Geo rg i a, a p ri v at e p ers o n m u st o b t ai n wr i t t e n ap pro v al fro m t h e

At t o rn ey Gen eral :

Su b ject t o th e ex cl us i on s s et fo rt h in t hi s Co d e s ect i o n

, a ci vi l act i o n

u n d er t h is a r t i cl e ma

y a l so b e b ro u gh t by a p r i va te p er s on u p o n wr i t ten

a p p r o va l b y t h e A t t o r n ey Gen er a l

. A ci v i l act i on s hal l b e b ro u g h t i n th e

n am e o f t he St at e o f Geo rg i a o r l o cal g o v ern m en t

, as ap p l i cab l e. T he

ci v i l act io n m ay b e d i s m i s s ed o n l y i f th e At t o rn ey Gen eral g i v es wri t ten

5 In t h e In t e r e s t o

f L. T.

, 3 2 5 Ga. Ap p. 5 9 0, 5 9 2 (7 5 4 SE2 d 3 8 0) (2 0 1 4 )

(p u n ct u at i o n o m i t t ed ); a cco r d Ho l co mb v. Lo n g

, 3 29 Ga. Ap p

. 5 1 5, 5 1 8 (1 ) (7 6 5

SE2 d 6 87 ) (2 0 1 4 ); s ee al

s o S C A LI A & G A R N E R

, s u

p r a n o t e 2

, at 1 7 4 (“ Th e s urp l u s ag e

can o n h ol d s th at i t is n o m o re th e c o u r t ’s f u n ct i o n t o rev i s e b y s ub t ract i o n t h an by

ad d it i o n .”).

6 Lu a n g kh o t v. S t a t e

, 29 2 Ga. 4 2 3

, 4 2 4 (1 ) (7 3 6 SE2 d 3 9 7 ) (2 0 13 ) (p u n ct u at i o n

o m it t ed ); a cco r d Ch a s e v. S t a t e

, 2 8 5 Ga. 6 93

, 6 9 5 (2 ) (6 8 1 SE2 d 1 1 6 ) (2 0 0 9 );

Ho l lo wel l

v. Jo ve , 2 4 7 Ga. 6 7 8 , 6 8 1 (2 7 9 SE2 d 4 3 0 ) (1 9 8 1).

3co n s en t t o t h e d is m i s s al s t at in g t h e r e a s o n s fo r co n s en t in g t o s u ch

d i s m i s s al an d t h e co u rt en t ers an o rd er ap p ro v in g t h e d i s m is s al

. 7

An d i n t h e c a s e su b ju d i ce

, Fu ci arel li d i d n ot o b t ai n wri t t en ap p ro val fro m t h e

At t o rn ey Gen eral b efo re b ri n gi n g h is cl ai m u nd er O C G A § 2 3

- 3 -1 2 2 (l ) 8 an d,

acco rd i n g l y , t h e t ri al co u rt p ro p erl y d i sm is s ed h is act i o n.

J u d g e M cFad d en g am el y at t em p t s t o reh ab i l i t at e D iv i s i o n 2 o f t h e m ajo ri t y

o p i n i o n

, b u t t h es e effo rt s are n o m o re co n v in ci n g t han t he m ajo ri t y ’ s refas h i o n i n g o f

t h e s t at u t e. Th e p l ai n m ean i n g o f OCGA § 23 -3 -1 2 2 (b ) (1 ) m ak es it ab un d an t l y cl ear

t h at t h e req u i rem en t i m

p os ed on “ a p ri vat e p ers o n ” t o o b t ai n “ wri t t en ap p ro val b y t h e

At t o rn ey Gen eral ” p ri o r t o i n i t i at i n g a “ ci vi l act i o n u n der th i s a rt i cl e ” m ean s ex act l y

wh at it say s

, t h at t h i s s t at u t o ry re q u i rem en t ap pl i es t o t h e en t i ret y o f t h e st at u t o ry

7 OCGA § 2 3 -3 -1 22 (b ) (1 ) (em p h as i s s u p p l ied ). Cf

. 3 1 U.S.C. § 3 7 3 0 (b ) (1 )

(p ro v i d i n g t h at u n d er th e fed eral Fal s e Cl ai m s Act

, p ri v at e p ers on s m ay b ri n g a ci v i l

act i on

, b u t o n l y req u i ri n g wri t t en ap p ro v al fro m t h e A t t o r n ey Gen eral p ri o r to

d i s mi s s a l fo r an y s uch act i o n , n o t p ri o r t o i n i ti at i o n ).

8 S ee OCGA § 2 3-3 -1 2 2 (l ) (1 ) (“ An y em p l oy ee, co nt ract o r, o r ag en t s h al l b e

en t i t l ed t o al l r e l i e f n eces s ary t o m ak e t h at em p l o y ee, co n t ract o r, o r ag en t wh o l e i f

t h at em p l o y ee, co n t ract or, o r ag en t i s d is ch arg ed

, d em o t ed

, s u s p en d ed

, th reat en ed

, h aras s ed

, o r i n an y ot h er m an ner d i s cri m i n at ed ag ai n s t i n t h e t erm s an d co n d i t i o n s o f

em pl o y m en t b ecau s e of l awfu l act s d o n e b y t h e em p l o y ee, co n t ract o r, ag en t

, o r

as s o ci at ed o t h ers i n fu rt h eran ce o f a c i v i l act i o n un d er t hi s Co d e sect i o n o r o t h er

effo rt s t o s to p o n e o r m o re v i o lat i o n s o f t h i s art i cl e.”).

4a r t i cl e ( i .e.

, Ti t l e 23

, Ch ap t er 3

, Art i cl e 6 ). Try as h e m i g h t

, t h ere i s s i m pl y n o t ex t u al

ju s t ifi cat i o n fo r J u d g e M cFad d en ’ s as s ert io n t h at “ [s ] u b s ect i o n 2 3-3 -1 2 2 (l ) i s

. . .

d i s t i n ct fro m t h e res t of t h e Art i cl e o f w h i ch t h at st at ut e i s a p art ,” wh en OCGA § 2 3

-

3 -1 2 2 (b ) (1 ) ex p l i ci tl y

s t at es t he ex act o p p os i t e.

Th u s

, wh i l e I fu l l y co ncu r wi t h t he m ajo ri t y i n Di v i s io n 1

, I res p ect fu l l y d i s s en t

fro m D i v i s i o n 2 b ecau s e, fo r al l o f t h e fo reg o i n g reas o n s

, t he t ri al co urt p r o p erl y

g ran t ed t h e d efen d an t s ’ m o t i on t o d i s m i s s

.

I a m a u t h o ri zed t o s t at e t h at J u d g e Ray an d J u d g e McM i l l i an jo in i n t hi s

o p i n i o n co n cu rri n g i n p art an d d i s s en ti n g i n p art

.

5