In th e S u p re m e Co u rt o f Ge o rg ia

De c id e d : Ap ril 2 6 , 2 01 6

S 16 A0 55 9 . CLARK e t a l. v . DEAL, GOVERNOR e t a l.
S 1 6 X0 5 6 0 . DEAL, GOVERNOR v . CLARK e t a l.

MELTON, Ju stic e

.

In th is a c t i o n , J oh n Cla rk

, Iv o ry Ke n n e th Dio u s, F ra n c y s Jo h nso n , Jr.,

He n ry C. F ic k lin

, a n d Da rry l A. Mo m o n (c o lle c tiv e ly re fe rre d to a s “ Cla rk ” )

c o n t e n d th a t Am a nd a H. M e rc ie r, Ne ls S

. D. P e te rso n , a n d Bria n M. Ric k m a n

h a v e n o rig h t to h old o ffic e a s ju d g e s o n o u r Co u rt o f A p p e a l s. 1 S p e c ific a lly

,

Cla rk c o n te n d s th a t th e se n e w ju d g e s we re im p ro pe rly a

p p o in te d by Go v e rn o r

Na th a n De a l. F o r th e re a so n s se t fo rth b e lo w, we a ffirm th e tria l c o u rt’s d e n ia l

o f Cla rk ’s p e titio n fo r a w rit o f q u o warra nto

.

1

. Th e u n d e rly in g fa c ts o f th is c a se a re n o t d isp u te d

. E ffe c tiv e o n Ja n u a ry

1

, 2 0 1 6

, Ac t No

. 1 3 8 (Ho u se Bill 2 7 9 o r th e “ Ac t” ) e sta b lish e d th re e n e w se a ts

o n th e Co u rt o f Ap p e a ls, a m e n d in g OCGA § 1 5-3 -1 (a ) to p ro v id e fo r a to ta l o f

1 “ Th e writ o f q u o wa rra n to ma y i s s u e to in q u ire in to th e rig h t o f a n y
p e rso n to a n y p u b lic offic e th e d u tie s o f wh ic h h e is in fa c t d isc h a rg in g.” OCGA § 9

– 6

– 6 0

.1 5 ju dg e s. In a dd itio n , OCGA § 15 -3 -4 wa s a m e n d e d to a d d su bse c tio n (b ),

wh ic h p ro v id e s in re le v a nt p a rt: “ Th e a d d itio na l ju d g e sh ip s c re a te d in 2 0 1 5 s h a ll

b e a p p o in te d b y th e G o v e rn o r fo r a te rm b e g in n in g Ja n u a ry 1

, 2 0 1 6

, a n d

c o n tin u in g th ro u g h De c e m b e r 31

, 2 0 1 8

, a nd un til th e ir su c c e sso rs a re e le c t e d

a n d q ua lifie d .” Pu rsu a n t to th e Ac t, Go v e rn or De a l a p p o in te d M e rc ie r, P e te rso n ,

a n d Ric k m a n to th e n e w p o sitio n s. A sh o rt tim e a fte r th e Go ve rn o r a n n o u n c e d

th e a p p o in tm e n ts, b u t be fo re th e a n n o u n c e d a p po in te e s to o k o ffic e , Cla rk file d

a p e titio n to c h a lle n g e th e a p p o in tm e nts in th e S u p e rio r Co u rt o f F u lto n Co u nty

,

n a m in g a s d e fe n d a n ts th e Go v e rn o r in h is o ffic ia l c a p a c ity , Me rc ie r, P e te rso n ,

a n d R i c k ma n

. C la rk a rg u e d th a t th e g ub e rn a to ria l a p p o in tm e n t o f Co u rt o f

Ap p e a ls ju d g e s to n e wly c re a te d se a ts v io la te d th e Ge o rg ia Co n stitu tio n ,

m a in ta in in g th a t n e w ju d g e s a re re qu ir e d t o b e c h o se n b y g e n e ra l e le c tio n

.

Ac c o rd in g ly

, Cla rk re q u e ste d th e fo llo win g : (1 ) a d e c la ra to ry ju dg m e n t th a t th e

a p p o in tm e n t p ro v isio n of th e Ac t is u n c o n s t i tu tio n a l; (2 ) a n in ju n c tio n a n d

te m p o ra ry re stra in in g o rd e r a g a in st th e G o v e rn o r to sto p h im fro m

c o m m issio n in g o r a d m in iste rin g t h e o a t h o f offic e to th e n e w ju d ge s; a n d (3 )

a writ o f q u o warra nto a g a in st Me rc ie r, P e te rso n , an d Ric k m a n

.

Th e tria l c o u rt d e n ie d Cla rk ’s p e titio n o n th e m e rits. Afte r c o n sid e rin g th e

2Ge o rg ia Co n stitu tio n , re la te d sta tu to ry a u th o rity

, a n d th e h isto ry o f j u d ic ia l

a p p o in tm e n ts to th e Co u rt o f Ap p e a ls, th e tria l c o u rt he ld th a t th e 1 9 8 3 Ge o rg ia

Co n stitu tio n pe rm its th e Go ve rn o r to fill n e wly c re a te d se a ts o n th e Co u rt o f

A p p e a l s b y a

p p o in tm e nt. Cla rk th e n a p p e a le d

, a n d, in a d d itio n , file d a n

e m e rg e nc y m o tio n fo r su pe rse d e a s, a g a in to p re v e n t t h e Go v e rn o r fro m

a d m in iste rin g t h e o a th o f o ffic e to th e a p p o in te e s. Th is Co u rt d e n ie d th e

e m e rg e nc y m otio n on De c e m b e r 1 8

, 2 0 1 5

. Th e Go v e rn o r a lso file d a c ro ssa p p e a l, c o n te nd in g th a t th e tria l c o u rt e rre d in its d e te rm in a tio n th a t so v e re ig n

im m u n ity d id n o t p ro t e ct h i m fro m th e in ju n c tio n a nd d e c la ra to ry ju d g m e n t

a c tio n b ro u g h t a g a in st h im

. T h e n e w Co u rt o f A p p e a ls ju dg e s to o k o ffic e o n

Ja n u a ry 1 , 2 01 6.

2

. In itia lly

, we m

u st d e te rm in e wh a t p a rt, if a ny , o f Cla rk ’s a c tio n re m a in s

v ia b le

. Be c a u se th e ne w ju d g e s h a v e a lre a dy ta k e n o ffic e , th o se po rtio n s o f

Cla rk ’s a c tio n re la tin g to th e issu a n c e o f a d e c la ra to ry j u d g me n t

, in ju n c tiv e

re lie f, an d a te m

p o ra ry re stra in in g o rd e r a g a in st th e Go v e rn o r a re n ow m o o t, a s

th e v e ry a c tio n wh ic h Cla rk so u g h t to sto p h a s a lre a d y o c c u rre d

. “ [I] f th e th in g

so u g h t to b e e n

jo in e d in fa c t ta k e s p la c e , th e g ra n t o r d e n ia l o f th e in ju n c tio n

b e co m e s m o o t.” (Cita tio n s a n d pu n c tu a tio n o m itte d

. ) Bo a rd o f Co m mrs. o f

3Ric h m on d Co u n ty v

. Co o p e r, 2 5 9 Ga

. 7 8 5 ( 3 8 7 S E2 d 1 3 8 ) (1 99 0). A c a se is

m o o t w h e n i t s re so lu tio n wo u ld a m o u n t to th e d e te rm in a tio n o f a n a b stra c t

q u e stio n n ot a risin g u p o n e x istin g fa c ts o r rig h ts. S e e Ch a sta in v. B a k e r, 2 5 5 Ga

.

4 3 2 (3 3 9 SE2 d 2 4 1 ) (1 9 8 6 ). Ba se d o n th i s s a me re a so nin g , th e Go v e rn o r’s

c ro ss-a p p e a l is m o o t a s we ll. Th e Go v e rn o r wa s n e v e r p re v e n te d fro m swe a rin g

in a n d c om m issio n in g th e n e w ju d g e s, a n d

, th e re fo re , th e re is no lo n g e r a n y

re a so n to c o n sid e r wh e th e r Cla rk ’s u n su c c e ssfu l a tte m pt to e n jo in a n d o b ta in a

d e c la ra to ry ju d g m e n t a g a in st th e Go v e rn o r w a s b a rre d b y so v e re ig n im m u n ity

.

S o , th e o n ly re m a in in g p a rt o f th is a c tio n w h i c h re m a in s v ia b le is Cla rk ’s

p e titio n fo r a w rit o f q u o wa rra n to

, wh ic h b e c a m e rip e a t th e tim e th a t th e n e w

ju d g e s a ssu m e d o ffic e

. Ac c ord in g ly

, th is o p in io n a d d re sse s o n ly th a t p o rtio n o f

th e u n d e rly in g su it.

3

. Th ro u g h o ut th is litig a tio n , Cla rk h a s c o n te n de d th a t OCGA § 1 5 -3 -4 (b )

is u n c o n stitu tio n a l b e c a

u se th e Ge o rg ia Co n stitu tio n re q uire s th a t Co u rt o f

Ap p e a ls ju d g e s wh o fill n e wly c r e a t e d se a ts m u st b e se le c te d b y a g e n e ra l

n o n pa rtisa n e le c tio n. Th e C o n stitu tio n , itse lf, b e lie s th is c la im in Artic le V I,

wh ic h a d d re ss th e ju d ic ia l b ra n c h o f g o v e rn m e n t.

Art. VI, S e c

. VII, P a

r. I. d o e s p ro v id e th a t

4[a ] ll su p e rio r c o u r t a n d s ta te c o urt ju d g e s sh a ll be e le c te d o n a

n o n p a rtisa n b a sis fo r a te rm o f fo u r y e a rs. All Ju stic e s o f th e S u p re m e Co u rt a n d th e J u d g e s of th e Co u rt o f Ap p e a ls sh a ll b e

e le c te d o n a n o n p a rtisa n b a sis fo r a te rm o f six y e a rs. Th e te rm s o f

a ll ju d g e s th u s e le c te d sh a l l b e g in th e n e x t Ja n u a ry 1 a fte r th e ir

e le c tio n

. A ll o th e r ju d g e s sh a ll c o n tin u e to b e se le c te d in th e m a nn e r

a n d fo r th e te rm th e y we re se le c te d on Ju n e 3 0

, 1 9 8 3

, u n til

o th e rwise p ro v id e d b y lo c a l la w

.

Lik e w ise

, OCGA § 2 1 -2 -9 (b ) p ro v id e s th a t Co u rt o f Ap pe a ls ju d g e s “ sh a ll b e

e le c te d in th e n o n p a rtisa n g e n e ra l e le c tio n n e x t p re c e d in g th e e x p ira tio n o f th e

te rm o f o ffic e .” Ho we v e r, Art. VI, Se c

. VII, P a r. III e x p re ssly sta te s th a t

“ [ v ] a c a n c ie s sh a ll b e fille d by a p p oin tm e n t o f th e Go v e rn or e x c e p t a s o th e rwise

p ro v id e d by la w in th e m a g istra te

, p ro ba te

, a nd ju v e nile c ou rts.” ( E m p h a sis

su p p lie d .) Th e re fo re , th e Co n s t i tu tio n c le a rly a llo ws th e Go v e rn o r to a p p o in t

n e w ju d g e s wh e n th e re is a v a c a n c y on th e Co u rt o f Ap pe a ls. Th e o n ly

re ma i n i n g q u e stio n , th e n , is wh e th e r a n e wly c re a te d po sitio n o n th e Co u rt o f

Ap p e a ls q u a lifie s a s a “ v a c a n c y ” u n d e r A rt. VI, S e c

. V I I

, P a r. III. Bo th th e

a p p ro p ria te ru le s o f c on stru c tio n a n d th e histo ric a l re c o rd in d ic a te th a t it d o e s. 2

2 Cla rk a rg u e s th a t, with o u t e x c e p tio n , Art. VI, Se c

. VII, P a r. I re qu ire s a ll
Co u rt o f Ap p e a ls ju d g e s to b e e le c te d in a n o n p a rtisa n e le c tio n

. Th is a rg u m e n t, h o we v e r, ig n o re s o th e r c o n stitu tio n a l p ro visio n s w h ic h c le a rly sh o w th a t th e re

a re e x c e p tio n s to th is ru le

. Th e p o we r o f th e G o v e rn o r to m a k e a p p o in tm e n ts in
th e c a se o f v a c a n c ie s, itse lf, is su c h a n e x c e p tio n

. Th is is fu rth e r e x e m p lifie d b y

5(a ) In re v ie win g th e p r o p r i e ty o f OCGA § 1 5 -3 -4 (b ), it m u st b e

re m e m b e re d th a t “ a ll p re su m

p tio n s a re in fa vo r o f th e c o n stitu tio n a lity o f [a

sta tu te ] .” (Cita tio n a nd p u n c tu a tio n o m itte d

. ) J I G Re a l E sta te

, LLC v

.

Co u n try wid e Ho m e Lo a n s, In c ., 2 8 9 Ga

. 4 8 8

, 49 0 (2 ) (7 12 S E2 d 8 2 0 ) (2 0 1 1 ).

F u rth e rm o re , w e m

u st “ pre su m e th a t th e wo rd s u se d in th e Co n stitu tio n be a r

th e ir o rd in a ry m e a n in g s a t th e tim e th o se wo rd s we re in c lu d e d . S e e Wa rre n v

.

S ta te

, 2 9 4 Ga

. 5 8 9

, 5 9 0 (7 5 5 S E2 d 1 7 1 ) (2 01 4 ).” S a v a ge v

. S ta te

, 2 9 7 Ga

. 6 2 7

,

6 3 5 (4 ) (b ) (7 7 4 S E 2 d 6 2 4 ) (2 0 1 5 ). “ ‘Co n stitu tio n s, lik e sta tu te s, a re p ro p e rly

to be e x po u n d e d in th e lig h t o f c o n ditio n s e x istin g a t th e tim e o f th e ir a do p tio n .’

[Cit.] ” Cla rk e v . Jo h n so n , 1 9 9 Ga . 1 6 3 , 1 6 6 (3 3 S E2 d 4 25 ) (1 9 4 5 ).

At th e tim e th a t th e G o v e rn o r wa s g iv e n th e p o we r to a p po in t a p p e lla te

ju d g e s to fill v a c a n c ie s in th e 1 9 8 3 Co n stitu tio n , Bla c k ’s La w Dic tio na ry sta te d

th a t “ v a c a n c y ,” w h e n a

p p lie d to o ffic ia l po sitio n s, m e a n t, “ in its o r d i n a r y a n d

p o p ula r se n se , th a t a n o ffic e is u no c c u pie d

, a n d th a t th e re is n o in c u m b e n t wh o

h a s a la w fu l rig h t to c o n tin u e th e re in u ntil th e ha p p e n in g of a fu tu re e v e n t,

Art. VI, S e c

. VII, P a r. IV, wh ic h p ro v id e s: “ An a p p o in te e to a n e le c tiv e o ffic e sh a ll se rv e u n til a su c c e sso r is d u ly se le c te d a n d q u a l i fie d a nd u n til Ja n u a ry 1

o f th e y e a r fo llo win g th e n e x t g e n e r a l el e c t i on wh ic h is m o re th a n six m o n th s

a fte r su c h p e rso n ' s a

p p oin tm e n t.”

6th o u g h th e wo rd is so m e tim e s u se d with r e f e r e n c e to a n o ffic e te m

p o ra rily

fille d .” Bla c k’s La w Dic tio na ry 1 3 8 8 (5 th e d

. 1 9 7 9 ). A s n o te d b y th e tria l c o u rt,

a sta n d a rd d ic tio na ry lik e wise d e fin e d “ v a c a n c y ” a s fo llo ws: “ 1

. Th e c on d itio n

o f b e in g v a c a n t o r u n o c c u p ie d

. 2

. An e m p ty o r u n o c c u p ie d sp a c e

. 3. A p o sitio n ,

a n o ffic e , o r a p la c e o f a c c o m m o d a tio n th a t is un fille d o r u no c c u p ie d .” Th e

Am e ric an He rita g e Dic tio n a ry o f th e En g lish L a n g u a ge 1 9 6 9 (3 d e d

. 1 9 7 9 ). Ou r

o wn c a se s, b o th b e fo re a n d a fte r th e ra tific a tio n of th e 1 9 8 3 C o n stitu tio n , g iv e

th e te rm “ v a c a n t” a sim ila r d e fin itio n. S e e P ittm a n v

. In g ra m , 1 84 Ga

. 2 5 5

, 2 5 6

-

2 5 7 (1 90 SE 7 9 4 ) (1 9 3 7 ) (“ o ffic e is n o t v a c a n t so lo n g a s it is su pp lie d , in th e

m a n n e r p ro vid e d b y th e c o n stitu tio n o r la w, with a n in c u m be n t wh o is le g a lly

q u a lifie d to e x e rc ise th e p o we rs a nd p e rfo rm th e d utie s w h ic h p e r t a i n to it” )

(Cita tio n o m itte d .); P a rk e rso n v

. Ha rt, 2 0 0 Ga

. 6 6 0

, 6 64 (3 8 SE2 d 39 7 ) (1 9 4 6 )

(“ [w] h e n th e re is n o o n e to fill th e o ffic e , a v a c a n c y e x ists” ) (Cita tio n o m itte d .);

Ga rc ia v

. Mille r, 2 6 1 Ga

. 5 3 1 (2 ) (4 0 8 SE2 d 9 7) (1 9 91 ) (o ffic e is n o t v a c a n t so

lo n g a s i t is fille d by a n in c u m b e n t wh o is le ga lly q u a lifie d to e x e rc ise th e

p o we rs a n d p e rfo rm

th e du tie s wh ic h p e rta in to it).

Th e re fo re , th e ord in a ry m e a n in g o f th e te rm v a c a n cy i s , i n e sse n c e , a

p u b lic o ffic e with o u t a n in c u m b e n t. Th e n e wly c re a te d p o sitio n s o n th e Co urt

7o f Ap p e a ls c e rta in ly fit th is d e fin itio n

. S e e a lso 6 3 C Am Ju r2 d P u b lic Offic e rs

& E m plo y e e s § 1 1 1 ("[A] n e wly c re a te d o ffic e , wh ic h is no t fil l e d b y t h e

trib u n a l wh ic h c re a t e d i t

, b ec o m e s v a c an t o n th e in sta nt o f its c re a tio n , a n d

re m a in s so un til it is fille d b y a n in c u m b e n t. Th e te rm ' v a c a n c y ' th u s a p p lie s to

a n e x istin g offic e with o u t a n in c um b e n t, th o u g h it h a s n e ve r b e e n fille d .");

Th ro o p , A Tre a tise on th e L a w Re la tin g to P u b lic O f f i c e rs a n d S u re tie s in

Offic ia l Bo n d s § 4 3 1 (1 89 2 ) ("An e x istin g o ffic e with o u t a n in c um b e n t is

v a c a n t, wh e th e r it b e a n e w o r a n o ld o ffic e ."). Ac c o rd in g ly

, th e c o n stitu tio n a lity

o f OCGA § 1 5

- 3 -4 (b ) is su p p o rte d b y th is o rd in ary d e fin itio n a n d p la in

m e a n in g.

No n e th e le ss, Cla rk c o n te n d s th a t we sh o u ld lo ok to OCGA § 4 5 -5 -1 3 to

3 Th is sta tu te p ro v id e s: (a ) All o ffic e s in th e sta te sh a ll b e v a c a te d : (1 ) Byth e d e a th of th e in c u m b e n t; (2 ) Byre sig n a tio n , wh e n a c c e p te d ; (3 ) By d e c isio n o f a c o m

p e te n t trib u na l de c la rin g th e o ffic e v a c a n t; (4 ) By v o lu n ta ry a c t or m isfo rtu n e o f th e in c u m b e n t wh e re b y h e is

p la c e d in a n y o f th e sp e c ifie d c o nd itio n s o f in e lig ib ility to o ffic e ; (5 ) Byth e in c u m

b e n t c e a sin g to b e a

re sid e n t o f th e sta te o r o f th e

c o u n ty , c irc u it, o r d istric t fo r wh ic h h e wa s e le c te d; (6 ) By fa ilin g to a

pp ly fo r a n d o b ta in c o m m issio n s o r c e rtific a te s o r b y fa ilin g to q u a lify o r g iv e b o n d

, o r b o t h

, w i t h in th e tim e
p re sc rib e d b y th e la w s a n d Co n stitu tio n o f Ge o rg ia ; o r (7 ) By a ba n do nin g th e o ffic e o r c e a sin g to p e rfo rm its d u tie s, o r

8d e te rm in e th e m e a n in g o f “ v a c a n c y .” Cla rk a rg u e s th a t o nly th e lim ite d n u m b e r

o f situ a tio n s liste d in th a t sta tu te m a y b e p ro p e rly c o n sid e re d a v a c a nc y , an d a

n e wly c re a te d p o sitio n is n o t c o nta in e d in t h is list. Cla rk ’s a rg u m e n t is

m isp la c e d fo r se v e ra l re a so n s. F irst, it re sts o n th e fa l s e p r e mi s e th a t th e list

c o n ta in e d in OCGA § 4 5 -5 -1 m a y p ro v id e th e so le d e fin itio n o f a c o n stitu tio n a l

te rm

. No th in g in Art. VI, S e c

. VII, P a r. III sta te s th a t th e Le g isla tu re is g iv e n th e

p o we r to e x c lu siv e ly d e fin e th e te rm “v a c a n c y ” a s it is u se d th e re in

. To th e

c o n t r ar y , th e 1 9 8 3 Co n stitu tio n ’s d ra fte rs a p pe a r to h a ve in te n d e d th a t

“ v a c an c y ” b e in te rp re te d in a b ro a d se nse , a s th e y g a v e th e te rm n o lim ita tio n s. 4

S e c o n d

, Cla rk c o n te nd s th a t th e te rm in o lo gy o f OCGA § 4 5 -5 -1 d i r e c tly

c o n tra d ic ts OCGA § 1 5-3 -4 (b ), a n d

, a s su c h

, th e la tte r sta tu t e s h o u l d n o t b e

fo llo we d

. Ev e n if we we re to a ssu m e th a t an a c tu a l c on flic t e x iste d

, “ th e c o u rts

a re n o t o n ly to b e g u id e d b y th e Ge ne ra l Asse m b ly ' s la st e xp re ssio n o n a su b je c t,

b o th

.

4 In c o m p a riso n , th e Go v e rn o r’s a b ility to fill v a c a n c ie s in th e e x e c u tiv e b ra n c h a p p e a rs to b e m o re lim ite d

. “ Wh e n an y p ub lic o ffic e sh a ll b e c o m e v a c a n t b y d e a th

, re sig n a tio n, o r o th e rwise

, th e Go v e rn o r sh a ll pro m p tly fill su c h

v a c a n c y u n le ss o th e rwise pro v id e d b y th is Co n stitu tio n o r b y la w; a n d p e rso n s

so a p p o in te d sh a ll se rv e fo r th e u n e x p ire d te rm u n le ss o th e rwise p ro v id e d b y th is Co n stitu tio n o r b y

la w.” 1 9 8 3 Ga . Co n st. Art. V, S e c . II, P a r. VIII.

9b u t th e la te st d e c la ra tio n c o n tro ls.” (Cita tio ns o m itte d

. ) Tip p in s Ba n k & Tru st

Co . v . S o u th e rn Ge n . In s. Co

., 2 6 6 Ga

. 9 7

, 9 8 (4 6 4 S E2 d 3 8 1 ) (1 99 5). OCGA

§ 1 5 -3 -4 (b ) is th e la st e x p re ssio n , a n d it a llo ws th e g u be rn a to ria l a pp oin tm e n t

o f Co u rt o f A p p e a ls ju d g e s to n e wly c re a te d se a ts. F in a lly

, Cla rk ’s c o n te n tio n s

re g a rd in g OCGA § 4 5 -5 -1 ( a ) f a il b e c a u se th a t sta tu te a dd re sse s th e to p ic o f

wh e n an o ffic e h a s b e e n v a c a te d

, n o t wh e n a v a c a n c y e x ists. P rio r to h a v in g a n

o c c u p a n t, a n e wly c re a te d offic e c a n n o t b e v a c a te d b e c a use n o in c u m

be n t e x ists

to v a c a te it. Ho we v e r, th e 1 9 8 3 Co n sti t u tio n a llo ws th e G o v e rn o r to a p p o in t

wh e n e ve r a

v a c a n c y e x ists, n o t ju st wh e n a n o ffic e h a s b e e n v a c a te d

.

Th e re fo re , fo r a ll o f th e re a so n s d isc u s s e d a b o v e , th e b ro a d ly u se d

m e a n in g o f “ v a c a n c y ” i n clu d e s a n e wly c re a te d p o sitio n o n th e C o u rt o f

Ap p e a ls.

(b ) Th e h isto ry of g u b e rn a to ria l a p p o in tm e n ts a l s o g iv e s su p po rt to a

f in din g th a t OCGA § 15 -3 -4 (b ) is c o n stitu tio n a l. T he Co u rt o f A p p e a ls w a s

e sta b lish e d in 1 90 6 by c on stitu tio n a l a m e n d m e nt, a n d th e a m e n dm e n t p ro v id e d

e x p lic itly th a t th e n e wly c re a te d ju d ic ia l offic e s - th e th re e o rig in a l se a ts o n th e

Co u rt o f Ap p e a ls
- we re to b e fille d in itia lly b y p o p u la r e l ec t i o n

. S e e Ga

. L.

1 9 0 6, p . 2 4 . Te n y e a rs la te r, th e Co u rt o f Ap p e a ls wa s e xp a n d e d to six ju d g e s,

10a n d c o n s i s t e n t with th e e x p lic it d ire c tio n o f th e 1 9 06 a m e n d m e n t, th e th re e

a d d itio n a l se a ts we re fille d in itia lly b y e le c tio n

. Se e Ga

. L. 1 9 1 6

, p

. 5 6

. In 1 9 4 5

,

h o we v e r, Ge o rg ia a do p te d a n e w Co nstitu tio n, a nd a lth o u gh it a u th o ri z e d t h e

Ge n e ra l Asse m

b ly to e sta blish n e w se a ts o n th e Co urt o f Ap p e a ls b y sta tu te

, it

o m itte d th e p ro v isio n o f th e 1 9 0 6 a m e n d m e nt th a t n e w ly c r e a te d se a ts o n th e

Co u rt o f Ap p e a ls b e fille d in itia lly b y e le c tio n. S e e Ga

. Co n st. o f 1 9 4 5

, Art. V I,

S e c

. II, P a r. VIII. In 1 9 6 0

, le g isla tio n wa s p a sse d to a d d a se v e n th ju d g e to th e

Co u rt o f Ap p e a ls, a nd a lth o u g h it d id n o t e x p lic itly d ire c t h o w th e n e w se a t wa s

to b e in itia lly fille d

, it c le a rly c o n te m p la te d th a t th e se a t wo uld b e fille d p rio r to

a n y e le c tio n

. Ac c o rd in g ly

, a ju d g e wa s a p p o in te d to th e se v e n th se a t b y th e n

Go v e rn o r Ern e st Va n d iv e r a n d c o m m issio n e d fo r a p e rio d p rio r to ru n n in g in a

g e n e ra l e le c tio n

. S e e Ga

. L. 1 9 6 0

, p p

. 1 5 8

, 1 6 0

. In 1 9 6 1

, two m o re p o sitio n s

we re c re a te d o n th e Co u rt o f Ap p e a ls, a n d, o nc e m o re , th e y w e re i n i tia lly

a p p o in te d b y G o v e r n o r Va n d iv e r. S e e Ga

. L. 1 9 6 1

, p p

. 1 4 0, 14 2. Fo r th e first

tim e a fte r o u r c u rre n t c o n stitu tio n wa s a d op te d

, in 19 9 6

, a te n th ju d g e wa s a d d e d

to th e Co u rt o f Ap p e a ls, a n d le g isla tio n e x p lic itly p ro v id e d fo r an a pp oin tm e n t

b y th e a c tin g g o v e rn o r. S e e Ga

. L. 1 99 6, p

. 4 0 5. Fin a lly

, in 1 9 9 9

, two a d d itio n a l

ju d g e sh ip s we re c re a te d

, a nd

, a g a in

, t h e l e g isla tio n e sta blish in g th e p o sitio n s

11e x p re ssly p ro vid e d th a t th e go v e rn o r wo uld m a k e a pp oin tm e n ts to th e n e wly

c re a te d se a ts. S e e Ga . L. 1 99 9 , p . 1 0.

Th e h isto ric a l p ra c tic e is c le a r. Alth o u gh C la rk a n d th e d isse n t re ly o n th e

u se o f e le c tio n s to fill th e first six se a ts o n th e C o u r t o f Ap p e a ls, th ose se a ts

we re e sta b lish e d u n d e r th e 19 0 6 c o n stitu tio n a l a m e n d m e n t, w h ic h e x p lic itly

re q u ire d e le c tio n s to fill th e n e wly c re a te d se a ts. Alt h o u g h m u c h o f th e 1 9 0 6

a m e n d m e n t wa s c a rrie d fo rwa rd in to la te r c o nstitu tio n s, th e p ro v isio n fo r n e w

se a ts to b e fille d in itia lly b y e le c tio n wa s o m itte d fro m t h e 1 9 4 5 Co n stitu tio n ,

th e 1 9 7 6 C o n stitu tio n , a n d m o st im

p o rta n tly

, th e 19 83 Co n stitu tio n

. S in c e

1 9 4 5, w h e n e v e r th e Ge n e ra l Asse m b ly h a s e x e rc ise d its c o n stitu tio n a l a u th o rity

to c re a te n e w se a ts o n th e Co u rt o f A p p e a ls b y sta tu te

, it h a s a u t h o riz e d

(e x p lic itly o r i mp l i c itly ) th e a c tin g g o v e rn o r to fill th o se se a ts in itia lly b y

a p p o in tm e n t, a n d th e g o v e rn o r h a s d o n e so

. “ [T] h ou g h th a t le g isla tiv e pre c e d e n t

m ig h t n o t b e d isp o sitiv e , it is e n title d to so me r e s p e c t.” 5 (Cita tio n o m itte d .)

5 Th e 1 9 4 5 Co n stitu tio n n o t o n ly o m itte d th e p ro v isio n th a t n e w ly c re a te d

se a ts o n th e Co u rt o f Ap p e a ls b e fille d in itia lly b y e le c tio n , b ut it a lso

e sta b lish e d a se v e n th se a t o n th e S u p re m e Co urt a nd p ro v id e d e x p lic itly th a t th a t

se a t wa s to b e fille d in itia lly b y g u b e rn a to ria l a p p o in tm e n t. T h a t pro v isio n o f th e 1 9 4 5 Co n stitu tio n wa s th e m o st re c e n t c o n stitu tio n a l e x p re ssio n o f th e will o f
th e P e o p le o n th e wa y in w h i c h a n e wl y c re a te d ju d ic ia l offic e o n a sta te wid e

a p p e lla te c o u rt wa s to b e in itia lly fille d

.

12De Ka lb Co u n ty S c h o o l D ist. v

. Ga

. S ta te Bo a rd o f Ed

., 2 94 Ga

. 3 4 9

, 3 5 7 (7 5 1

S E2 d 82 7 ) (2 1 0 3 ). Mo re ov e r, a t th e tim e th a t th e 1 9 8 3 Co nstitu tio n wa s e n a c te d

,

th is p ra c tic e wa s we l l u n d e r wa y

. Th e re fo re , we m u st a ssu m e th a t th e d ra fte rs

o f th e 1 9 8 3 C o n stitu tio n we re we ll a w a r e o f th is p ra c tic e a n d sa w n o n e e d to

c h a n g e it. In ste a d

, th e y in te n d e d fo r th e g o v e rn o r’s a u t h o rity to fill v a c a n c ie s

u n d e r Art. VI, S e c

. VII, P a r. III to e x te n d to n e wly c re a te d se a ts on th e Co u rt o f

Ap p e a ls wh e n th e Ge n e ra l Asse m b ly h a s n o t m a d e o th e r p ro v isio n s fo r fillin g

th e se a ts. 6

4

. Alth o u g h Cla rk a n d th e d isse n t c o n te n d o th e rwise

, O CGA § 1 5-3 -4 (b )

d o e s n o t se rv e to wh olly d i s e n f r a n c h ise th e c itiz e n s o f Ge o rg ia with re g a rd to

th e n e wly c re a te d se a ts o n th e Co u rt o f Ap p e a ls. To th e c o n tra ry , a ll th re e o f th e

6 We n o te th a t, a t th e re g u la r se ssio n o f th e Ge n e ra l Asse m b ly fo llo win g th e e ffe c tiv e d a te o f th e Ge o rg ia Co n stitu tio n o f 19 83

, b ills we re p a sse d c re a tin g fo u r ne w se a ts o n su p e rio r c o u rts. T h e s e bills e x plic itly sta te d th a t th e se a ts

wo u ld b e in itia lly fille d b y a n a p p o in tm e n t b y th e Go v e rn o r. S e e Ga

. L. 1 9 8 4

, p .4 3 4 § 2 (Co bb Ju dic ia l Circ u it); Ga

. L. 19 8 4

, p .4 5 1 § 2 (Atla n ta Ju d ic ia l
Circ u it); Ga

. L. 1 9 8 4

, p .4 6 9 § 2 (Cla y to n Ju d ic ia l Circ u it); a n d G a

. L. 1 9 8 4

, p .4 7 2 § 2 (Ho usto n Ju d ic ia l Circ u it). “ Co u rts lo n g h a v e a c k n o wle d g e d th a t, wh e n a le g isla tu re e n a c ts a sta tu te th a t to u c h e s u p o n a c o n stitu tio n a l p ro v isio n

c lo se in tim e to th e a d o p tio n o f th a t c o n st i t u t i o n a l p ro v isio n , th e sta tu te is

p o we rfu l e v id e n c e o f th e c o n te m po ra ry u n d e rsta n d in g of t h e c o n stitu tio n a l

p ro v isio n.” (Cita tio n o m itte d .) D e Ka lb Co u nty Sc h oo l D ist. v

. Ga

. S ta te Bo a rd

o f Ed ., 2 9 4 Ga . 3 5 9 , 3 55 (1 ) (a ) n .1 2 (7 5 1 S E2 d 8 2 7) (2 0 1 3 ).

13n e w ju d g e s will b e re qu ire d to ru n in a no n p a rtisa n g e n e ra l e le c tio n to k e e p th e ir

n e w p o sitio n s. As in th e sim ila r c a se o f P e rd ue v

. P a l mo u r, 2 7 8 Ga

. 2 1 7

, 2 2 1

(6 0 0 S E 2 d 3 7 0 ) (2 0 0 4),

[t] h is c a se is n o t re so lv e d b y a su b je c tiv e o pin io n o f h o w e x te n siv e th e p o we r o f th e g o v e rn o r sh o u ld b e in re g a rd to a p p o in tm e n ts to

e le c tiv e o ffic e

. It is d e te rm in e d b y th e u na m b ig uo us m a n d a te o f th e

c o n stitu tio n a s ra tifie d b y th e v o te rs o f Ge org ia

. I t i s a b o u t i mp le m e n tin g th e la st e x p re ssio n o f th e so v e re ig n will o f th e
p e o p le

, in th is c a se , [th e g ov e rn or’s p o we r to f ill v a c an c ie s u nd e r Art. VI, S e c

. VII, P a

r. III o f th e 1 9 8 3 Ge o rg ia Co n stitu tio n ]

.

Th a t p o we r e n a

b le s th e g o v e rn o r to a

p p o in t Co u rt o f Ap p e a ls ju d ge s to n e wly

c re a te d se a ts. 7 Th e d isse n t’s a n a ly sis, wh ic h fo c u se s on la n g u a g e o n ly c o n ta in e d

in th e 1 94 5 Ge o rg ia Co n stitu tio n , h a s n o b e a rin g o n th is re su lt, a s it is th e 1 9 8 3

Co n stitu tio n wh ic h m

ust in fo rm o u r o p in io n. As su c h

, th e tria l c o urt p ro p e rly

d e n ie d C la rk ’s p e titio n fo r a writ o f q u o wa rra n to

. In a d d itio n , fo r th e re a so n s

se t fo rth a b o v e , th e Go v e rn o r’s c ro ss-a p p e a l m u st b e d ism isse d a s m o ot.

Ju d g m e n t a ffirm e d in C a se No

. S 1 6 A 0 55 9

. Ca se d ism isse d in Ca se No

.

S 1 6 X0 5 6 0 . All th e Ju stic e s c o n c u r, e x c e pt Be n h a m , J., wh o d isse n ts.

7 We d o n o t re a c h a n y q u e stio n o f w h e t h e r t h e Ge n e ra l Asse m bly m a y

c re a te n e w ju d ic ia l se a ts a n d re q u ire th a t th o se se a ts b e in itia lly fille d b y g e n e ra l

e le c tio n

.

14S 1 6 A0 5 5 9 . CLARK e t a l. v . DEAL, GOVERNOR e t a l.
S 1 6 X0 56 0 . DEAL, GOVERNOR v

. CLARK e t a l.

BENHAM, Ju stic e , d isse n tin g

.

I ha ve n o t b e e n a

ble to brin g my m in d to c o n c u r with my a sso c ia te s

in th e ju dg m e n t re n d e re d in th is c a u se

. Th is is to m e a so urc e o f

sin c e re re g r et

. I e ste e m it a p e rso n a l m isfo rtu n e

. I h a v e la b o re d to

se e th is q u e stio n in th e lig h t in wh ic h th e y v ie w it, b u t h a v e b e e n

u n a b le to a tta in to th e sa m e c on v ic tio n . With p ro fo u n d re sp e c t fo r

th e m , a nd sin c e re d istru st o f th e ju stn e ss o f my o wn c o n c lu sio n s, I

a m c o n stra in e d to d isse n t.

Tu ttle v . Wa lto n , 1 Ga . 4 3 , 5 6 (1 8 4 6 ) (Ju stic e Nisb e t d isse n tin g). 1

Th e Ge o rg ia Co n stitu tio n o f 1 9 8 3 u n e q u iv oc a lly sta te s th a t ju stic e s o f th e

Ge o rg ia S u p re m e Co u rt a n d ju d g e s of th e Ge o rg ia Co urt o f Ap p e a ls “sh a l l b e

e l e cte d .” Ga

. Co n st. o f 19 8 3

, Art. VI, S e c

. VII, P a ra

. I. Th e Ge o rg ia

Co n stitu tio n a lso p ro vid e s th a t “ v a c a n c ie s” c a n b e fille d by th e g o v e rn o r. Ga

.

Co n st. o f 1 9 8 3 , Art. VI, S e c

. VII, P a ra . III. Alth o u g h th e wo rd“ v a c an c ie s” is

1 This quote is taken from the first dissent published in the first v olume of the Georg ia Reports.n o t d e fin e d in Artic le VI o f th e 1 9 8 3 c o n stitu tio n , h i s to ric a lly

, in th is sta te

, a

v a c a n c y is a n e ve n t “ wh ic h c a u se s an u n e xp ire d te rm

. ” S e e , e .g ., Ga

. Co n st. o f

1 9 7 6, Art. VI, S e c . II, P a ra s. III a n d VIII; Ga . Co n st. o f 1 9 4 5 , Art. VI, S e c . II,

P a ra s. III a n d VIII. S e e a lso

, e .g

. , H o o p e r v

. Alm a n d, 1 9 6 G a

. 5 2

, 5 9 (2 5 S E2 d

7 7 8 ) (1 9 4 3 ) (th e g o ve rn o r’s rig h t to a p p o in t c o nte m

p la te s v a c a n c ie s th a t o c c u r

with in th e te rm ; a n u n e x p ire d te rm ); 2 Ste p h e n s v

. Re id

, 1 8 9 Ga . 3 72

, 3 7 7 -3 7 9

(6 S E2 d 7 28 ) (1 9 3 9 ) (b y 1 8 9 6

, it wa s th e g o a l o f th e le g isla tu re to h a v e ju d ge s

e le c te d b y th e p e o p le ; o n ly va c a n c ie s wh ic h c a u se d a n u n e x p ire d te rm we re

fille d b y e x e c u tiv e a

p p o in tm e n t); P ittm a n v

. In g ra m , 1 8 4 Ga

. 2 5 5 (1 9 0 S E 7 9 4 )

(1 9 3 7 ) (a v a c a n c y c a

u se d “b y d e a th o r re sig n a tio n or o th e rwise ” do e s n o t re fe r

to a po sitio n wh e re n o o n e h a s b e e n e le c te d ). S u c h “ le g isla tiv e p re c e d e n t ...is

e n t i t l ed to so m e re sp e c t.” De Ka lb Co u n ty S c h oo l Distric t v

. Ge o rg ia S ta te

2 I n Hooper v. Almand, Humphries was nominated to succeed himself in the Atlanta J udicial
Circuit at the D emocratic state convention on O ctober 7, 1942. Humphries died 1 5 d a y s later on October 22, 1942. The g eneral election was to be held on November 3, 1942. On October 24, two day s after Humphries' d eath, the g overnor appointed Almand to fill the position, d espite the fact that Hooper secured the most votes in the election day s later.
This Court e x amined the issues of vacancy and the p ower of g ubernatorial appointment and
found that “vacancy

” h ad n o technical meaning

. Hooper v. Almand, 196 Ga

. a t 5 9

. Rather, this
Court reasoned, “vacancy ” a pplies not to the incumbent, but to the term or office, depending upon
t h e c o n tex t of a statute or constitutional provision in w hich the term is used. I d. The corr e c t construction of “ vacancy ” is a vacancy in term g iven the subject m atter a nd contex t of the

g ubernatorial appointment provision; and, an unex pired term, in the minds of the framers, was the remaining portion of a definite, fix ed term in which a vacancy had been occas i o n ed by death, resig nation, or some other cause. I d. at 59, 66.

2Bo a rd o f Edu c a tio n , 2 9 4 Ga . 3 4 9 , 3 5 7 (7 5 1 S E2 d 8 2 7 ) (2 0 1 3 ).

In d e e d, th e a

b o v e -d e sc rib e d u n d e rsta n d in g o f v a c a n c y is c on siste n t with

th e o rd in a ry m e a n in g o f v a c a n c y a t th e tim e th e 1 9 8 3 Ge o rg ia Co n stitu tio n wa s

d ra fte d a n d e na c te d. Fo r e x a m p le

, th e fu ll de fin itio n o f “ v a c a nc y ” c o n ta in e d in

Bla c k ’s La w Dic tio na ry (5 th Ed . 1 9 7 9) p ro v id e s:

Va c a n c y

. A p la c e o r p o s itio n wh ic h is e m p ty

, un fille d, o r

u n o c c u p ie d

. An u n o c c u p ie d o r u n fille d p o st, p ositio n or offic e

. An

e x istin g o ffic e , e tc

., with o u t a n in c u m b e n t. Th e sta t e o f b e in g

d e stitu te o f a

n in c um b e n t, o r a p ro p e r or a le g a lly q u a lifie d o ffic e r.

T h e te rm is p rin c ip a lly ap

p lie d to an in te rru

p tio n in th e in c umb e n c

y

o f a n offic e , o r to c a se s wh e re th e o ffic e is n o t o c c up ie d b y on e wh o

h a s a le g a l rig h t to h o ld it a nd to e x e rc ise th e rig h ts a n d p e rfo rm th e

d u tie s p e rta in in g th e re to

. T h e wo rd “ v a c a n c y ,” w h e n a p p lie d to

o ffic ia l p o sitio n s, m e a n s in its o rd in a ry a nd p o p u la r se n se , th a t a n

o ffic e is u n oc c u p ie d, a n d th a t th e re is no in c u m b e nt w h o ha s a

la wfu l rig h t to c o n tin u e th e re in u n til t h e h a p p e nin g o f a fu tu re

e v e n t

, th ou g h th e wo rd is so m e tim e s u se d with re fe re n c e to a n

o ffic e te m

po ra rily fille d

.

3(Em

p h a sis su p p li e d

. ) T h e a

b o v e

- r e f e r e n c e d d e f

i n i tio n c oin c id e s with Ge o rg ia ’s

h isto ric a l u n d e rsta n d i n g th a t a va c a n c y , fo r th e p u rp o se s o f gu b e rn a to ria l

a p p o in tm e n t, is wh e n a n e x istin g in c u m b e nc y h a s b e e n in te rru pte d a n d th e re is

n o i n c u m b e n t wh o c a n le g a lly c o n tin u e to se rv e

. F urth e rm o re , A rtic le V,

S e c tio n II, P a ra gra

p h VIII (a ) o f th e 1 9 8 3 Ge o rg ia Co n stitu tio n , wh ic h d e sc rib e s

th e g o v e rn o r' s a

p p oin tm e n t p owe rs re g a rd in g "a n y p u b lic o ffic e ," pro v id e s th a t

a g u be rn a to ria l a

p p o in te e is to se rv e "fo r th e un e x p i r e d te r m ." (Em p h a sis

s u pp lie d .) Th e situ a tio n a t b a r is n o t an e x istin g in c u m be n c y th a t ha s b e e n

in te rru p te d ; b ut ra th e r is a n e wly c re a te d p o sitio n th a t h a s ne v e r b e e n o c c u p ie d

fo r a n y p er i o d o f tim e

. A n e wly c re a te d p o sitio n c a n n o t lo gic a lly h a v e a n

u n e x p ire d te rm

th a t wo u ld n e e d to b e fille d b y a p p o in tm e n t. 3

Giv e n th e e x te n siv e h isto ry sh owin g th a t th e g o v e rn o r a p p o in ts wh e n th e

v a c a n c y in q u e stio n h a s c a u se d a n u n e x p ire d te rm , it is h a rd to fa th o m th e

e x e c u tiv e , le g isla tiv e , a

n d n o w th e ju d ic ia l bra nc h e s’ d e p a rtu re fro m th e le tte r

a n d sp irit of o u r Co n stitu tio n

. It se e m s th is de v o lu tio n b e g a n in th e 19 6 0 s wh e n

3 I note that our decision in Perdue v. Palmour, 278 Ga. 217 (600 SE2d 370) (2004), is not applicable to the case at bar because the judicial vacancy at issue in that case was created when the
incumbent resig ned, i.e., when the incumbency was interrupted. Consequently

, there was no dispute
that the g overnor was authoriz ed to appoint in that situation. I d . at 218. Therefore, the majority ’s reliance on that case is misplaced.

4Go v e rn o r Va n d iv e r issu e d e x e c u tiv e o rd e rs fillin g n e wly c re a te d ju d g e sh ip s o n

th e Co urt o f Ap p e a ls with h is a p p o in te e s. It is c le a r th a t G o v e rn o r Va nd iv e r h a d

n o c o n stitu tio n a l a

u th o rity fo r th e se a c tio n s. Th e Ge o rg ia Co n stitu tio n o f 1 9 4 5

,

wh ic h wa s in e ffe c t a t th a t tim e , p ro v id e d a s fo llo w s:

In c a se o f a n y v a c a n c y w h ic h c a u se s a n u n e x p ir e d te r m [o f a

Ju stic e o f th e Ge o rg iaS u p re m e Co u rt]

, th e sa m e sh a ll b e fille d b y

e x e c u tiv e a

p p oin tm e n t, a n d th e pe rso n a p p o in te d by th e Go v e rn o r

sh a ll ho ld h is o ffic e u n til th e ne x t r eg u l a r e le c tio n , a n d u n til h is

su c c e sso r fo r th e b a la nc e o f th e u n e x p ir e d te r m sh a ll h a v e b e e n

e le c te d a nd qu a lifie d

.

* **

Th e tim e s a n d m a n n e r o f e le c tin g Ju d ge s [o f th e Co u rt o f A p p e a ls]

,

a n d th e m o d e o f fillin g a v a c a n c y w h ic h c a u s e s an u n e x p ir e d

t e r m , sh a ll b e th e sa m e a s a re or m a y b e p ro v id e d fo r b y t h e l aw s

re la tin g to th e e le c tio n a n d a p p o in tm e n t o f Ju stic e s o f th e Su p re m e

Co u rt.

Ga

. Co n st. o f 1 9 4 5, Art. V I, S e c

. II, P a ra s. III a n d VIII (e m p h a sis su p p lie d ).

5Th e n e w ju d g e sh ip s in 1 9 60 4 a n d 1 9 6 1 5 we re no t v a c a n c ie s c a u sin g u n e x p ire d

te rm s a n d so Go v e rn o r V a nd iv e r wa s n o t c o n stitu tio n a lly a u th o riz e d to fill th ose

p o sitio n s b y e x e c u t i v e o r d e r o r o th e rwise

. Mo re v e r, th e le g isla tio n wh ic h

c re a te d th e se v e n th

, e ig h th a n d n in th ju d ge sh ip s d id n o t g ra n t Go v e rn o r

Va n d iv e r a n y e xp lic it a u th o rity to a p p o in t ju d g e s fo r th e n e w p o sitio n s. 6 Ye t,

it a p p e a rs n o o n e c h a lle n g e d th e c o n stitu tio n a lit y o f Go v e rn o r V a n d iv e r’s

a c tio n s in 1 9 6 0 a

n d 1 9 6 1 a nd n o o n e c h a lle n g e d th e c o n stitu tio na lity of a n y o f

th e su b se q u e n t g u b e rn a to ria l a p p o in tm e n ts to n e wly c re a te d Co u rt of Ap p e a ls

ju d g e sh ip s in 1 9 9 6 7 a n d 1 9 9 9

. 8 Th e fa c t th a t th e se gu be rn a to ria l a p po in tm e n ts

we n t u n c h a lle n g e d, h o w e ve r, d o e s n o t c u re th e c o n stitu tio n a l p ro b le m a t sta k e

4 See Ga. L . 1960, p. 160 (ex panding the Court of Appeals to a seventh judg e).

5 See G a. L

. 1961, p. 140 (ex pand i n g t h e C o u r t of Appeals to an eig hth judg e and a ninth judg e).

6 The tenets of statutory construction likewise prohibit us from presuming that the leg islature

g ave any implicit authority for Governor Vandiver to fill the judg eships by appointment. See Turner

v. G eorg ia River Network, 297 Ga. 3 06, 308 ( 773 SE2d 706) (2015) (“‘ expressio unius e st exclusio
alterius (ex pression o f one thing implies ex clusion of another) and expressum facit cessare tacitum (if some thing s are ex pressly mentioned, the inference is strong er that tho s e n o t m en t i oned were intended to be ex cluded)’”).

7 See Ga. L

. 1996, p. 405 (ex panding the Court of A ppeals to a tenth judg e). I t is worth noting
that this 1996 leg islation w as the f irst time the General A ssembly e x plicitly stated the g o vernor could appoint persons to fill the newly created judg e ships.

8 See Ga. L

. 1999, p

. 10 (ex panding the Court of Appeals to an eleventh judg e and a twelfth judg e).

6in th e p r e s e n t c o n tro v e rsy

. Th e m a jo rity o pin io n ha s fa ile d to e x p la in h o w

e x e c u tiv e a

n d le g isla tiv e a c tio n c lo a k e d a s tra d itio n, o r w h a t th e m a jo rity te rm s

a s a “sta n da rd p ra c tic e ,” wh ic h wa s n o t in fa c t th e sta n d a rd

, c a n tr um p th e

c o n stitu tio n o f o u r sta te

. S e e , e .g ., Yo u ng sto wn S h e e t & Tu b e Co . v . S a wy e r,

3 4 3 U .S

. 5 7 9

, 6 1 0 (7 2 S Ct 8 6 3

, 9 6 LEd 1 1 5 3 ( 1 9 5 2) (F ra n k fu rte r, J.,

c o n c u rrin g ) (“ Th e Co n stitu tio n is a fra m e wo rk fo r g o v e rn m e n t. Th e re fo re th e

wa y th e fr a me w o rk h a s c o nsiste n tly op e ra te d fa irly e sta b lish e s th a t it ha s

o p e ra te d a c c o r d i n g to its tru e n a tu re

. D e e p ly e m b e dd e d tra ditio n a l w a y s o f

c o n d u c tin g go v e rn m e n t c a n n o t su p p la nt th e C o nstitu tio n o r le g isla tio n , b u t th e y

g iv e m e a n in g to th e wo rd s o f a te x t o r su p p ly th e m .” ). He re , b o th th e h isto ry

a n d th e c o n stitu tio n a l la n g u a g e a d o p te d o v e r th e y e a rs sh o w th a t th e g o v e rn o r

is on ly a u th o riz e d to a

p p o in t a p p e lla te j u d g e s wh e n a v a c a n c y c a u se s a n

u n e x p ire d te rm

. 9

F u rth e rm o re , n o re a so n h a s b e e n p u t fo rwa rd a s to wh y th e Ge n e ra l

A s s e mb l y d id n o t, c o u ld n o t, o r wo u ld no t c re a te a n d tim e th e fu lfillm e n t o f

th e se n e w ju d g e sh ip s with a g e n e ra l e le c tio n in c o m p lia n c e with Ga

. Co n st. o f

9 I ex press no opinion as to the ex pansion of the superior and state courts and the merits of filling those new positions by g ubernatorial appointment.

71 9 8 3, Art. VI, S e c

. VII, P a ra

. I. Ov e r a h u n d re d y e a rs a g o, wh e n th e Ge o rg ia

Co u rt o f Ap p e a ls wa s c re a te d in 1 9 0 6

, th e in itia l th re e ju d g e sh ip s we re fille d b y

e le c tio n

. Ga

. L. 1 9 0 6

, p

. 2 4, § 3

. Th e n , in 1 9 1 6, wh e n th e le g isla tu re first

e x p a n d e d th e n u m

be r o f se a ts o n th e Co u rt o f Ap p e a ls, it d id so in a m a nn e r th a t

a llo w e d th e se a ts to b e fille d b y e le c tio n

. S e e Ga

. L. 19 1 6

, p

. 5 6

, § 2

. 1 0 I d o n o t

u n d e rsta n d w h y t h e s a me c a n n o t b e d o n e in 2 01 6. At th e tim e o f my writin g

th is d isse n t, a g e n e ra l e le c tio n fo r n o n p a rtisa n p o sitio ns, in c lu d in g ju d g e sh ip s,

is sc h e d u le d to ta k e p la c e in Ma y 20 16

. S in c e th e a p p e lla te ju d ge sh ip s a t issu e

we re c re a te d o n Ma y 6

, 2 0 1 5

, th e d a te wh e n Go ve rn o r De a l sig n e d HB 2 7 9 in to

la w, a ny p o te ntia l c a n d id a te s fo r th e se ju d g e sh ip s wo u ld h a v e h a d te n m o n th s

to file a n o tic e o f c an d i d a c y b y Ma rc h 1 1

, 2 0 1 6

, 11 in tim e fo r th e M a y 2 0 1 6

e le c tio n a n d th ose e le c te d wo u l d b e o n tra c k to ta k e o ffic e b y Ja n u a ry 2 0 1 7

.

Th e Co urt o f Ap p e a ls h a s b e e n m a n a g in g its w o rk lo a d with twe lv e ju d g e s f o r

ju st u n de r two d e c a d e s, a n d so th e re wa s n o urg e n t n e e d to fill th e se p o sitio n s

b y gu b e rn a to ria l a

p p o in tm e n t. As it n o w sta n ds, th e c urre nt a p p o in te e s a re n o t

1 0 J udicial candidates were to participate in the November 1916 g eneral election and the winner seated for a term beg inning in J anuary 1917. I d.

1 1 S e e h t t p : / / s o s

. g a

. g o v / i n d e x. p h

p / e l e c t i o n s / 2 0 1 6

_ e l e ction_dates (Accessed March 23, 2016).

8re q u ire d to ru n fo r e le c tio n u n til 2 0 1 8 a n d will b e in p la c e fo r t wo y e a rs 1 2

with ou t th e ir ste wa r d sh ip h a v in g b e e n sa n c tio n e d b y th e p e o p le o f G e o rg ia

.

Th is re su lt is p a rtic u la rly e g re g io u s b e c a u se "[t] h e rig h t to v o te is fu n d a m e n ta l,

fo rm in g th e b e d ro c k of o ur d e m o c ra c y ." (Cita tio n s o m itte d .) F a vo rito v

. Ha n d e l,

2 8 5 Ga . 7 95 (1 ) (a ) (6 8 4 S E 2 d 2 5 7 ) (2 0 0 9 ).

Wh ile I c a n n o t c h a n g e th e p a st, I c an b e v ig ila n t in th e p re se nt a n d so u n d

th e a la rm fo r th e fu tu re

. I b e lie v e th a t th e le g isla tio n a llo w in g th e se

g u b e rn a to ria l a

p p o in tm e n ts is u n c o n stitu tio n a l a n d I b e lie v e th e p e o p le o f

G e o r g ia h a v e b e e n d e p riv e d o f th e ir c o n stitu tio n a l rig h t to e le c t th e a p p e lla t e

ju d g e s wh o u ltim a te ly h a v e th e la st sa y ov e r th e ir issu e s an d d isp u te s. As su c h

,

I re sp e c tfu lly d e c lin e to jo in to d ay ’s m a jo rity o p in io n

.

1 2 The new judg e s’ appointments end December 31, 2018.

9