FOURTH D I VI SI ON

BA RNES, P. J.

, RA Y and M CM I LLI A N, JJ.

N O T IC E : M otions for r e c ons i de r a tion m us t be

ph y sic a l ly r e ce iv ed i n our c le r k ’s offic e w ithin te n

da y s of the da te of de c is ion to be de e m ed tim e ly file d.

http://w w w .ga a ppe a ls .us /r ule s /

June 18, 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 38 1

. SHELNUTT et al

. v

. THE M AYOR AND ALDERM EN

OF THE CITY OF SAVANNAH et al

.

M C M ILLI A N , J u dg e.

Ch ri st o p h er Sh el l nu t t an d 4 9 o t her fi refi g h t ers (t he “ Fi refi g h t ers ” ) f r o m t h e

Ci t y o f Sav an n ah ap p eal t h e t ri al co u rt ’ s g ran t o f a m ot i o n t o d i s m i s s an d m o t i o n fo r

ju d g m en t o n t h e p l ead i n g s fi l ed b y t h e May o r an d Al d erm an o f th e Ci t y o f Sav an n ah

(t he “ Ci ty ”) an d St ep h an i e Cu tt er, t h e Sav an n ah ci t y m an ag er, as t o t h ei r cl ai m s fo r

b reach o f co n tract

. 1 Th e Fi refi g h t ers as s ert ed i n t hei r “ Fi r s t A m e n d ed an d Recas t

Co m p l ai n t ” t hat t h e Ci t y ’ s wri tt en “ Pay Po l i cy ” creat ed a co n t ract b et w een t h e Ci t y

1 Th e t ri al co urt al s o gran t ed t h e C i t y ’ s an d Cu t t er’ s m o t i o n s as t o t h e

Fi refi g ht ers ’ cl ai m s fo r p ro m is s o ry es t o p p el an d at t o rn ey fees

, b u t th ey d o n ot co n tes t

t h e g ran t o f ju d g m en t as t o t h o s e cl ai m s o n ap p eal

.an d t h e Fi refi g ht ers an d th at t h e Ci t y b reach ed t h at co n t ract b y p ay i n g t h em l es s t h an

t h ey were o wed u nd er t h e t erm s o f t h e Pay Po l i cy

.

In co n s i d eri n g t h e t ri al co u rt ’ s d eci si o n o n a m o t i o n to d i sm i s s an d / or a m o t i o n

fo r j u d gm en t on t h e p l e a d i n g s

, we ap p l y a d e no v o rev i ew an d t h u s “ o we n o

d eferen ce t o t h e d eci s i o n o f t h e c o u r t b el o w .” Pr yce v. Rh o d

es

, 3 1 6 Ga. Ap p

. 5 2 3,

5 2 3 (7 2 9 SE2 d 6 4 1 ) (2 01 2 ) (m o t i o n fo r ju d g m en t o n p l ead in g s ). See al s o Li b er t y

Co u n t y S ch o o l Di s t

. v. Ha l l i b u r t o n

, 3 2 8 Ga. Ap p

. 4 2 2

, 4 23 (7 6 2 SE2 d 1 3 8 ) (2 0 1 4 ).

M o reo v er, we m

u s t co n si d er al l w el l -p led m at eri al al l eg at i o n s o n t h e Fi refi g h t ers ’

co m p l ai n t as t ru e, wi t h al l d o u b t s res o l v ed i n t h ei r fav or. Ew i n g v. Ci t y o f At l a n t a

,

2 8 1 Ga. 65 2

, 6 5 3 (2 ) (6 42 SE2 d 1 0 0 ) (2 0 0 7) (m o t i o n t o di s m i s s ); Ea r l y v. Mi Med x

Gr o up

, In c.

, 3 3 0 Ga. Ap p

. 6 5 2

, 6 5 4 (7 6 8 SE2 d 8 2 3 ) (2 0 1 5) (m o t i o n fo r j u d gm en t o n

t h e p l ead i n g s ). “ W e m ay al s o co n s i d er an y ex h ib i t s at t ach ed t o an d i n co rp o rat ed i n to

t h e co m p l ai n t an d t h e an s wer, al s o co n s t ru i n g t hem i n t h e ap p el l an t ’ s fav o r.” S t a f f or d

v. Ga r el eck

, 3 3 0 Ga. A p p. 75 7, 7 5 8 (7 6 9 SE2 d 1 69 ) (2 0 1 5 ) (m o t i o n t o d i s m i s s ). See

al s o Ea r l y

, 3 3 0 Ga. Ap p

. at 6 5 4 (m o t i o n fo r ju d g m e n t o n t h e pl ead i n g s ).

Nev ert h el es s

, a co u rt s ho u l d n ot g ran t a m o t i o n t o d is m i s s u n l es s “ t h e al l eg at i o n s o f

t h e co m p l ai n t d i scl os e w i th cert ai n ty t h at t he cl ai m an t w o u ld n o t b e en t i t l ed t o rel i ef

u n d er an y s t at e o f p ro v ab l e fact s as s ert ed i n s u p p o rt t h ereo f[. ]” (Ci t at i o n o m i t t ed .)

2Au s ti n v. Cl a rk

, 2 9 4 Ga. 7 7 3

, 7 7 4 -7 7 5 (7 5 5 SE2 d 7 96 ) (2 0 1 4 ). An d “ [a] m o t i o n fo r

ju d g m en t on t h e p lead i n gs s h o u l d be g ran t ed o n l y i f th e m o vi n g part y i s cl earl y

en t i t l ed t o ju dg m en t.” (Ci t at i on an d p u n ct u at io n o m it t ed .) S h er m a n v. Fu l t o n Co u n t

y

Bo a rd o f As s es s or s , 2 8 8 Ga. 8 8, 9 0 (7 0 1 SE2 d 4 7 2 ) (2 0 10 )

.

Th e co m p l ai n t al l eg es t h at t h e Fi refi gh t ers are al l s u p erv i s o rs wi t h t h e Ci t y ’ s

Bu reau o f Fi re an d Em erg en cy Serv i ces

, so m e o f wh om are cl as s i fi ed as “ ex em p t ” fo r

p ay p urp o s es an d s o m e o f w h o m are cl as s i fi ed as “ n o n -ex em p t .” 2 Th e Ci t y ’ s Pay

Po l i cy i n cl u des p ro v i s i o n s o u t l i n i n g ch an g es i n co m p e n s a t i o n fo r em

p l o y ees wh en

p ro m o t ed t o a h i g h er po s i t io n

, an d t h o se pro v is i on s h av e u n d erg o n e a n um b er o f

rev i s io n s s i n ce 1 9 9 8

. 3 F ro m 1 99 8 t o No v em b er 2 0 09

, t h e Pay Po l i cy p ro v i d ed

, in

p ert i nen t p art , t h at “ [a] n em p l o y ee p ro m ot ed t o a h i g h er cl as s i fi cat i o n s h al l recei v e

an i n creas e o f fi ve p ercen t ab o v e h i s / h er cu rren t p ay ,” an d “ [w] h en th e p res en t rat e

o f th e p ro m o t ed em

p lo y ee i s fi v e p ercen t o r m o re b el ow th e m i ni m u m of t h e n ew p ay

2 Th es e cat eg o ri es rel at e t o an em p l o y ee’ s cl as s ifi cat i o n u n der th e Fai r Lab o r

St an d ard s Act

.

3 Co p i es o f t h e Pay Po l i cy at t ach ed t o t h e “ Fi rs t Am en d ed an d Recas t

C o m p l a i n t ” refl ect t h at s i nce 1 9 98

, t h e p o l icy was rev i s ed o n J an u ary 1

, 2 0 0 1

, No v em b er 2

, 2 00 2

, J an u ary 1

, 2 0 0 5

, J u l y 2 5

, 2 0 0 5

, Au gu s t 2 1

, 2 0 0 6, J an u ary 1

, 2 0 0 7,

No v em b er 2

, 2 0 09

, J u n e 28

, 2 01 2

, Sep t em b e r 8

, 2 0 1 3, an d po s si bl y o n March 3 0,

2 0 1 0

.

3g rad e, h e/ s h e wi ll recei v e t h e m i n i m u m o f t h e n ew p ay g rad e.” A n d d uri n g t h e s am e

t i m e p eri o d

, t h e Pay Po l i cy al so p ro v i d ed t h at an i n d i v i d u al p ro m o t ed t o an “ ex em p t ”

s u p e r v is o ry po s i t io n “ s h al l recei v e an i n creas e o f 7 .5 % ab o v e h i s / h er cu rren t p ay ,”

w i t h t h e q u al i fi cat i on t h at i f “ t h e p res en t rat e o f th e pro m o t ed em p l o y ee i s 7 .5 % o r

m o re b el o w t h e m in i m

u m o f t h e n ew p ay g rad e, h e/ s he w il l recei v e t h e m i n i m u m o f

t h e n ew p ay g rad e.” As o f No v em b er 2 0 0 9

, th e p ercen t ag e p ay i n creas e fo r

em pl o y ees “ p ro m ot ed t o a h i g h er cl as si fi cat i o n ” was rai s ed t o t en p ercen t “ u p t o t h e

m ax i m u m o f t h e n ew p ay ran g e,” an d t h e l an g uag e p ro v i d in g fo r a 7 .5 % p ay i n creas e

fo r “ ex em p t ” s u perv i s ory p o s i t i o n s was d el et ed

.

Ad d it i on al l y

, as o f J u l y 2 0 0 5

, t h e Pay Po l i cy was am en d ed t o i n cl u d e a

p r o v i s i o n th at m an d at ed a o ne-t i m e p ro m o ti o n al p ay i n creas e fo r an em p l o y ee

p ro m o t ed t o a s u p erv i s o ry p o s i t i o n

, wh et h er ex em pt o r n o n -ex em

pt

, t o “ a m i n i m

u m

o f 5 % a b o v e t h e h i g h es t p ai d em p l o y ee to b e s u perv i s ed at t h e t i m e o f t h e

p ro m o t io n

. ” T h i s l an g u ag e was rem o v ed fro m t h e Pay Po l i cy i n t h e No v em b er 2,

2 0 0 9 rev is i o n b u t was rei n s ert ed i n t h e Sep t em b er 8

, 2 0 1 3 rev i s i o n of t h e Pay Po l i cy

.

Th e Co m pl ai n t

, as am en d ed

, al l eg es t h at e a c h o f t h e 5 0 Fi refi gh t ers h as

recei v ed a p ro m o ti o n s i n ce 2 0 0 2 b ut d i d no t recei v e t h e p ay i n creas es o ut li n ed i n t h e

Ci t y ’ s Pay Po l i cy

. Th ey as s ert t h at Cu t t er, o r h e r d es i g n ees

, fai l ed t o en fo rce t h e

4Ci t y ’ s p ay req ui rem en t s as req u i red b y th e Pay Po l i cy

, b u t rat h er “ d et erm i n e[d ] p ay

b as ed o n p ers on al fav o ri t i s m an d b i as .”

In res po ns e, t h e Ci ty an d Cu t t er rel y o n l an gu ag e t h at ap p ears i n al l v ers i on s

o f t h e Pay Po l i cy

, wh i ch p ro v i d es t h at “ [e] x cep t i o ns to o r i nt erp ret at i on o f t h es e ru l es

an d p o l i ci es wi l l b e referred to t h e Hu m an Res o u rces Di rect o r an d / o r Ci t y M an ag er

fo r res ol u t i on

. Th e Ci t y M an ag er h as t h e au t h ori t y t o m ak e ex cep t i o n t o t hes e p o l i ci es

as d eem ed n eces s ary .” Th ey as s ert t h at t h i s l an g u ag e d em o n s t rat es th at t h e p o l i ci es

are d i scret i o nary an d n o t en fo rceab l e co nt ract t erm s

.

Th e Ci t y an d Cu t t er al s o ci t e d i s cl ai m er l an g uag e fo u nd in t h e D ecem b er 2 0 0 4,

t h e No v em

b er 2 0 06

, an d t h e J an u ary 2 0 1 4 ed i t io n s of t h e “ Ci t y o f Sav an n ah

Em p l o y ee Han d b oo k ” (t h e “ Han d b o o k ”), wh ich th ey at t ach ed t o t h ei r an s w er. 4 Each

v ers i on o f t h e Han d bo o k co n tai n s a “ NOTICE TO ALL E MPLOYEES,” s t at i n g t h at

t h e Han d b o o k i s

o n l y a g en eral g u id e t o t h e Ci t y ’ s em p l o y m en t p o l i ci es an d t o s o m e o f

y o u r b en efi t s

. . . . It i s i n fo rm at i o n al o n ly

. Fro m t i m e t o t i m e, t h e Ci t y

rev i ews i t s p o l i ci es

, p ro ced u res

, an d b en efi t s an d m ak es rev i s i o n s b as ed

o n t h e n eed fo r o r d es i rab i l i t y o f ch an ges

. Th u s

, an y po l i cy

, p ro ced u re,

4 Bo t h t h e co m

pl ai n t an d t h e an s wer were am en d ed

, an d t he Han d bo o k s were

at t ach ed t o t h e m o s t recen t an s wer fi l ed o n b eh al f o f t h e Ci t y an d Cu t t er.

5o r b en efi t o ut l i n ed i n th i s han d b o o k m ay be m o d ifi ed

, d e creas ed

,

el i m i n at ed o r i n creas ed at an y t i m e wi t h o r wi t h o u t ad v an c e n o t ice. In

ad d i ti o n

, t h e Ci t y rem ai n s free t o d eci d e i n al l cas es wh et h er t o ap p l y th e

p o l i ci es ex pres s ed h erei n t o an y p art icu l ar s et o f ci rcu m s t an ces

.

Th e Han d b o o k fu rt h er p ro v i d ed t h at i t “ d o es n o t co n s ti tu t e an ex p res sed o r i m p l i ed

co n tract

. Th e em

p l o y ee m ay s ep arat e fro m hi s / h er em pl o y m en t at an y t i m e; t h e Ci t y

o f Sav an nah res erv es t h e ri g h t t o d o t h e s am e.”

Ho wev er, t h e Decem

b er 2 0 0 4 an d No v em

b er 2 0 0 6 v ers io n s o f t h e Han d b o o k

d o n o t i n cl u d e o r ex p res s l y i n co rp o rat e t he Ci t y ’ s Pay Po l i cy

. Rat h er, t h e Han d b o ok s

l i st a nu m b er o f em p l o y m en t -rel at ed to p ics an d fo r “ sp eci fi c i nfo rm at i o n ,” refer t h e

em pl o y ee t o th e Ci ty ’ s Pay Po l i cy

, wh i ch “ [co u ld ] b e fo un d on th e Ci t y ’ s P: d ri v e,”

as wel l as t h e Fai r Lab or St an d ard s Act H an d b o o k

, wh i ch “ [co u ld ] b e fo u n d o n t h e

Ci t y ’ s In t ran et o r ob t ai n ed t h ro u g h [t h e em pl o y ee’ s ] dep art m en t di rect o r.” Th e Ci t y

an d Cu t ter h av e n o t p o i n t ed u s t o an y p ro v i s i o n i n ei t h er t h e 2 00 4 Han db o ok an d / o r

t h e 2 0 0 6 Han d b o ok ex p res s l y i n co rp o rat i ng t he Pay Po l i cy i n to i t s t erm s

, an d we

h av e fo u nd n o n e. M o reo v er, n o n e o f t h e v ers i o n s o f th e Pay Po l i cy fro m No v em b er

2

, 2 0 0 2 t h ro u g h J u n e 2 8

, 2 01 2 ex p res s l y i n co rp o rat e o r referen ce ei t h er t h e

Han db o ok o r i t s di s cl ai m er l an g u ag e. Ho wev er, t h e Jan u ar y 2 0 14 vers i on o f t h e

6Han db o ok c o n t a i n s t h e Sep t em b er 8

, 2 0 1 3 v ers io n o f t h e Pay Po l i cy i n fu l l an d n o

l o n g er refers em

p lo y ees t o t h e Ci t y ’ s P: d ri v e fo r s p eci fi c i n fo rm at i o n

.

1 . In g ran t i n g th e Ci t y ’ s m o t i o n , t h e t ri al co u rt t reat ed t h e Pay Po li cy an d t h e

Han db o ok as o n e d o cu m en t

, fi n d i ng , fo r ex am p l e, wi th o u t ci t at i o n o r an al y s i s , t h at

t h e p ro vi s i o n of t h e Pay Po l i cy g ran t i n g a p ro m o ted em p l oy ee a rai s e o f fi ve p ercen t

ab o ve t h e h i gh es t p ai d em p l o y ee t o b e s up erv i s ed “ was fi rs t i n co rp orat ed i n t o t h e

.

. . Han d b o o k ” as o f J u l y 2 00 5

. Th u s

, t h e tri al co urt rel i ed o n t he d i s cl ai m er l an g u ag e

o f t h e Han d b oo k i n fi n di n g t h at “ t h ro u g h o u t th e p o li cy t h e Ci t y m ak es cl ear t h at t h i s

i s n o t a co n t ract

, th at t h e Ci t y rem ai n s free to d eci d e wh et h er t o ap p l y t h e p o l i ci es to

a part i cu l ar s et o f ci rcu m st an ces an d m ay m o d i fy

, d ecreas e, el i m i n at e o r i n creas e an y

p o l i cy o r b en efi t at an y t i m e wi t h o u t ad v an ce n o t i ce.” (Em ph as i s s u p p l ied .) An d t h e

t ri al co u rt co n cl u ded t h at “ t h e i n s t an t p ay p o l i cy an d em p l o y ee m a n u al are n o t a

b i n d i n g co n t ract .”

Ho wev er, we fi n d n o b as i s fo r treat i n g th e Pay Po l i cy as part o f t h e Han d b o o k

p ri o r t o Jan u ary 2 0 1 4, 5 wh en t he Han d bo o k w as ex p an d ed t o i n cl u d e th e Pay Po l i cy

wi t h i n i t s t erm s

. Pri o r to t h at t i m e, t h e Han d bo o k m erel y d i rect ed em p l o y ees t o refer

5 At o ral arg um en t

, co u n s el fo r t h e Fi refi g h t ers s t at ed t h a t t h e c l a i m s i n t h i s

cas e were n o t b as ed o n t h e Pay Po l i cy fo u nd i n 20 1 4 Han d b o o k ; acco rd i n gl y

, we d o

n o t ad dres s t h at p o l i cy

i n t h i s cas e.

7t o a d i g i t al v ers i o n o f t h e Pay Po l i cy o n t h e Ci t y ’ s h ard d ri ve fo r m ore i n fo rm at i o n.

No r d o we s ee an y bas is i n th e t ex t fo r t reat i n g t h e Han db o o k an d i t s d i s cl ai m ers as

p art o f t h e Pay Po l i cy as n ei t h er d o cu m en t ex p res sl y i n co rp o rat ed t h e o t h er. T h u s

, we

co n cl u d e t h at t h e Han d b o o k an d t h e Pay Po l i cy i n t h i s cas e m u st b e co n s i d ered

s ep arat el y

, an d we fi nd th at wh i l e t h e H an d b o o k co nt ai n s di s cl ai m er l an g u ag e an d

s t at es t h at i t “ d o es n ot co n s t it u t e an ex p res s or i m p l i ed co n tract ,” t h e Pay Po l i cy i s n ot

s u b ject t o t h es e d is cl ai m ers

. See Fu l t o n -DeKa l b Ho s p

. Au t h

. v. Met

z g er

, 2 0 3 Ga.

Ap p

. 5 9 5

, 5 9 6 -5 9 7 ( 2 ) (4 1 7 SE2 d 1 6 3 ) (1 9 9 2) (h an d b o o k i n effect at t h e t i m e o f

h i ri n g co n t ro l s

, an d d i scl ai m ers ad d ed t o l at er v ers i o n o f t h e h an d b oo k d o n o t al t er

t h e res u l t )

.

2

. We t h e refo re m

u s t t u rn t o t h e Pay Po li cy t o d et erm in e wh et h er t h e

Fi re f i g h t e r s can as s ert a co n tract u al cl ai m ag ai ns t t h e Ci t y b as ed o n i t s t erm s

. Th e

Ci t y as s ert s th at t h e Pay Po l i cy can n o t c o n s t i t ut e a co n t ract b ecau s e i t do es n ot

i n v o l v e “ ad d it i o n al co m

p en s at i o n ” s u ch as vacat i o n p ay

, d i s ab i l it y p a y, s e v eran ce

p ay

, i n s u ran ce, o r ret i rem en t b en efi ts

, b ut i n st ead a d dr e ss es t h e Ci t y em p l o y ees ’ b as i c

s al ary o r p ay

, wh i ch i t as s ert s can n ev er g iv e ri s e t o a co n t ract u al cl ai m

. 6 W e di s ag ree.

6 In s u p p o rt o f th i s arg u m en t

, t h e Ci t y rel i es o n t h i s Co u rt ’ s d eci s io n i n Ta cket t

v. G eo r g ia Dep t

. o

f Co r rect i o n s

, 3 0 4 Ga. A p p

. 3 1 0, 3 1 2 (1 ) (6 9 6 SE2 d 3 5 9 ) (2 0 1 0 ),

an d cas es ci t ed t h erei n

. In t h at cas e

, t h e C o u rt d rew a d i s t i n ct io n b et ween

8Th e t e s t i n t h i s cas e is n o t wh et h er t h e Pay Po l i cy ad dres s es “ ad d i t i o n al

co m p en s at i o n ” as o p p os ed t o s al ary o r wag es

. Rat h er, t h e t es t i s w h et h er t h e l an g u ag e

o f t h e part icu l ar Pay Po l i cy at i s s u e co ul d g i v e ri s e to a co n t ract u al cl ai m b y t h e

Fi refi g ht ers

, o r s tat ed i n th e al t ern at i v e, wh et her t h e al l eg at i o n s o f t h e co m p l a i nt

d i s cl os e w i t h cert ai nt y t h at t h e Fi refi g h ters wo u ld n ot b e en t i t l ed to rel i ef u n d er an y

p ro v ab l e fact s t h ey

co u l d as s ert i n s u p p o rt o f t h ei r co n tract u al cl ai m

.

Fro m t h e d o cu m en t s p ro v i d ed i n t he reco rd

, i t ap p ears t h at t h e F i r efi g h t ers ’

em pl o y m en t wi th t h e C i t y i s term i nab l e at wi ll

. 7 Th e Han db o ok p ro v i d es t h at an

“ em p l o y ee m ay s ep arat e fro m h i s / h er em p l o y m en t at an y t i m e; t h e Ci t y o f Sav an n ah

em pl o y m en t p ol i ci es rel at i n g t o “ ad d i t i o nal co m p en s at i o n pl an s

, s u ch as ret i rem en t

b en efi t s o r i n s uran ce p lan s ,” wh i ch h av e been fo u n d t o creat e b i n d i n g co n t ract s

, an d

“ p ers o n n e l m a n u a l s s t at i n g t h at em p l o y ees can b e t erm i nat ed o n l y fo r cau s e an d

s et t i n g fo rt h t erm i nat i o n p ro ced u r e s a r e n ot co n t ract s o f em p l o y m en t; fai l u re to

fo l l o w t h e t erm i n at i o n p ro ced u res co n t ai n ed i n th em i s n ot act i o n ab le.” (Ci t at i o n an d

p u n ct u at i o n o m i t ted .) Id

. T h e p o l i cy at i s s u e i n Ta cket t l i s t ed t h ree b as es o n wh i ch

an em p l o y ee’ s s al ary “ m ay b e” red u ced

, an d t h e Co u rt h el d t h at t h e p o l i c y d i d n ot

creat e a co nt ract b et ween t h e p art i es

, ci t i ng a cas e h o l d i n g th at p ro m ot i o n po l i ci es in

a m an u a l d i d n o t creat e a co n t ract

. Bu t Ta cket t d oes no t h o ld t h at a p ol i cy

, l i k e t h e

o n e i n t h i s cas e, s et ti ng fo rt h t he s p eci fi c am o u n t o f an em p l oy ee’ s co m

p en s at i o n at

t h e t i m e o f p ro m o t i on can n ev er co n s t i t u t e a co n t ract

. Rat h er, we i n terp ret Ta cket t as

h o l d i n g t h at t h e p erm i s si v e p o l i c y a t i ss u e i n t h at cas e was m o re ak i n t o p o l i ci es

s et t i n g fo rt h cert ai n p ro ced u res t o b e fo l l owed i n c o n n e c t i on wi t h em p l o y m en t

d eci s i o n s t han to p o l i ci es p ro v i d i n g fo r ad d i t io n al am o u n ts o r ki n d s o f co m p en s at i o n.

7 W e n o t e th at t h e Ci t y as s ert ed at o ral arg um en t t h a t t h e Fi refi g h ers were

em pl o y ed o n an at -wi l l b as is

.

9res erv es t h e ri g h t t o do t h e s am e.” An d t he Pay Po l i cy d oes n ot p ro vi d e fo r a d efi n i t e

t erm o f em

p l o y m en t

. W h ere n o ev i d en ce s h o ws t hat an em p l oy ee was h i red fo r a

d efi n i t e t erm

, h i s o r her em pl o y m en t i s at -wi l l

. See Go d d a r d v. Ci t y o f Al b a n y , 2 8 5

Ga. 8 8 2 , 8 8 5 (3 ) (6 8 4 SE2 d 6 3 5 ) (2 0 0 9 ).

A l t h o ug h t erm i n ab l e-at -wi l l em p l o y m en t do es n o t gi v e an em p l o y ee a

co n tract ual ri g ht t o rem ai n em pl o y ed

, 8 an at -wi l l em

p l o y m en t rel at i o n sh i p can g i v e

ri se to cert ai n co n tract u al ri g h t s

. See W a l ker El ec. Co

. v. B

yr d

, 28 1 G a. Ap p. 1 9 0

, 1 9 2

(6 3 5 SE2 d 8 1 9 ) (2 0 0 6 ); B r a z z ea l v. Co mmer ci a l Ca s

. In s

. Co

. , 5 1 Ga. Ap p

. 4 7 1 (1 8 0

SE 8 5 3 ) (1 93 5 ). “ In a t erm i n ab l e-at -wi l l em p lo y m en t co n t ract t h e o ri g i n al t erm s fo r

co m p en s at i o n are en fo rceab l e fo r t h at wo rk act u al l y p erfo rm ed u n d er t he co n t ract .”

(Ci t at i o n an d p u n ct u at i on o m i t t ed .) Bi ven S o f t wa r e, In c. v. Newma n

, 2 2 2 Ga. Ap p.

1 1 2

, 1 1 5 (2 ) (4 7 3 SE2 d 5 2 7 ) (1 9 9 6 ). “ [U] nd er s uch ci rcu m s tan ces

, t h e pl ai n t i ff [h as ]

a ri gh t o f act i o n un d er th e co n t ract fo r t he am o u n t o f earn ed [co m p en s at i o n ] d u e h i m

i n acco rd an ce wi t h t h e ag reem en t .” (Ci t at i o n an d p u n ct u at i o n om i t t ed .) W a l ker El ec.

2 8 1 Ga. Ap p

. at 1 9 2

. An d al t h o u g h i n an at -wi l l rel at i o n s hi p

, a p ro m i se o f a fu t u re

8 No t h i n g i n t h i s o p i n i on s h o u l d b e i n t erp ret ed as h ol d i n g t h at th e Pay Po l i cy

i s leg al l y s u ffi ci en t t o creat e an i m pl i ed co nt ract fo r a d efi n i t e t erm o f em p lo y m en t

. See, e.g

., Go d

d a r d

, 2 8 5 Ga. at 88 5 -8 8 6 (3 ); El l i s o n v. DeKa l b Co u n t y

, 2 3 6 G a. Ap p.

1 8 5 , 1 8 6 (1 ) (5 1 1 SE2 d 2 84 ) (1 9 9 9 ).

10ch an ge i n co m pen s at i o n g en eral l y “ i s u n en fo rceab l e s i n ce n ei t h er p art y i s b o u n d t o

co n ti n u e p erfo rm an ce un d er t h e co nt ract at al l ,” 9 t h i s ru l e d o es n o t ap p l y t o a p ro m i s e

o f fu t u re co m

p en s at i o n m ad e at t h e b eg i n n in g o f t h e em p l o y m en t rel at i o n sh i p

. Su ch

a p ro m i s e “ i s en fo rceab l e, t h ou g h i t wo u l d n o t b e i f m ad e p en d i n g t h e t erm o r aft er

p erfo rm an ce was co m

p l et e.” (Ci t at i o n an d p u n ct u at i o n o m i t t ed .) E. D

. La cey Mi l l s

,

In c. v. Kei t h

, 1 8 3 Ga. Ap p

. 3 5 7

, 3 6 1 (5 ) (3 5 9 SE2 d 1 48 ) (1 9 8 7 ) (h o l d i n g t h at

em pl o y er’ s o ra l p r o m i s e t o p ay an an n u al p re-t ax b o n u s o f a cert ai n p ercen t ag e o f

p ro fi ts m ad e at t h e b eg i n n i n g o f em p l o y m en t was n o t u n e n fo rceab l e o n t h e g ro u n d

t h at i t was an ex ecu to ry pro m i s e o f fu t u re co m p en s at i o n

, b u t was u n en fo rceab l e

b ecau s e i t v i o l at ed th e St at u t e o f Frau d s ). Th e Geo rg ia Su p rem e Co u rt h as ex p l ai n ed

t h at “ [ t ] o b e en fo rceab l e, a p ro m i s e o f fu t u re co m p en s at i o n m

us t b e m ad e at t h e

b eg i n n i n g o f t h e em

p l o y m en t

. Ho wev er, th e p ro m i s e o f fu t ure co m p en s at io n m

u s t

al s o b e fo r an ex act am o u nt o r b as ed u p on a fo rm u l a o r m et h o d fo r d et erm i n i n g t h e

ex act am o u n t o f th e [co m

p en sat i o n ]

. ” (Ci tat i on

, p u n ct u at i o n

, an d em p h as i s o m i t t ed .)

Ar b y’s

, In c. v. Co o

p er

, 2 6 5 Ga. 2 4 0

, 2 4 1 (4 5 4 SE2 d 4 8 8 ) (1 9 95 ) (fi n d i n g t h at p ro m i s e

o f fu t ure co m

p en s at i on fo r at -wi l l em

p l o y ee was u n en fo rceab l e wh ere t h e a mo u n t o f

9 (Ci t at i o n an d p u n ct u at i on o m i t t ed .) B i ven s S o ft wa r e

, 2 2 2 Ga. Ap p

. at 1 1 5 (2 ).

See al s o E

. D. La cey Mi l l s

, In c. v. Kei t h

, 1 8 3 Ga. Ap p

. 3 5 7

, 3 6 1 (6 ) (3 5 9 SE2 d 1 4 8 )

(1 9 8 7).

11t h e b o n u s was bas ed i n p art o n a fo r m u l a an d in p art on co m

p an y p res i d en t ’ s

d i s cret i o n ). M o reo v er, t h i s Co u rt h as h el d t h at a p ro m i se t o p ay m ad e at t h e beg i n n i n g

o f em pl o y m en t co n d it i o n ed o n a fu t u re ev en t m ay b e en fo rceab l e i n a t erm i n ab l e-at

wi l l co n t ract

. See Tr a n s key, In c. v. Ad ki ns o n

, 22 5 Ga. Ap p

. 4 5 7, 4 60 (1 ) (4 8 4 SE2 d

3 0 ) (1 9 9 7) (fi n d i n g j u ry i s s u e as t o wh et h er co n d i t i o n p reced en t t o p ay m en t o f b o nu s

ex i s t ed an d wh et her i t was d efi n i t e en o u g h t o b e en fo rceab l e).

Ap p ly i n g t h es e p ri nci p l es

, we can n ot s ay t h at t h e co m pl ai n t d i s cl o s es wi th

cert ai n ty t h at t h e Fi refi gh t ers co u l d n o t b e en t i t l ed t o co nt ract u al rel i ef u n der an y s t at e

o f p ro v ab l e fact s

. T h e co m p l ai n t al l eg es t hat each o f th e 5 0 fi refi gh t ers was p ro m o t ed

t o a s u p erv i s ory p o s i t i o n b eg i n n i n g i n 2 00 2 b u t d i d n o t recei v e t h e i n creas e i n s al ary

p ro v id ed fo r i n t h e Pay Po l i cy

. Each v ers i o n o f t he Pay Po l icy

, at l eas t b eg in n i n g in

1 9 9 8

, p ro v i d ed fo r an au t o m at i c i n creas e at a d efi n i t e p ercen t ag e u p o n p ro m o t i o n to

a s u p erv i s o ry p o s i t i o n

. Th u s

, each fi refi g h t er m ay b e ab l e t o p o i n t t o t h e v ers i o n o f

t h e Pay Po li cy i n effect at t h e t i m e h e o r s h e was hi red an d s ho w t hat i t p ro v i d ed fo r

a d efi ni t e p ercen t ag e p ay i n creas e co n d i t io n ed o n p ro m o t i o n t o a s u p erv i s o ry

p o s i t i on

. An d t ak i n g t h e al l eg at i o n s o f t h e co m p l ai n t as t ru e, each fi refi g h ter m ay b e

ab l e t o sh o w t h at t h e co n d it i o n p reced en t fo r t h e i n creas e i n s al ary w as m et wh en h e

o r s h e was p ro m o ted t o s u ch a p o s it i o n

. T h u s

, each fi refi g h t er m ay b e ab l e t o as s ert

12a co n t ract cl ai m t o recei v e co m p en s at i o n at t h e h i gh er rat e fo r wo rk act u al l y

p erfo rm ed as a s u p erv i s o r fo l l o wi n g h i s o r h er p ro m o t io n

.

3

. T h e Ci t y as s ert s

, h o w ev er, t h at t h e Pay Po l i cy can n ot b e co n s i d ered a

b i n d i n g co n t ract becau s e i t g ran t s t h e Ci t y M an ag er au t h o ri t y “ to m ak e ex cep t i o n to

t h es e p o l i ci es as d eem ed n eces s ary .” W e d i sag ree t hat t h i s det erm in at i o n can b e m ad e

at t hi s ju n ct u re i n t he p ro ceed i n g s

.

It is wel l s et t led t h at “ [w] h en t h e t erm s o f a wri t t en co nt ract are cl ear an d

u n am b i g u o u s

, t h e co urt i s to l o o k t o t h e co n t r a c t a l o n e t o fi n d th e p art i es ’ i n t en t .”

(Ci t at i o n s an d p un ct u at i on o m i t t ed .) Ad va n ced Tech n o l o gy S

vcs

., In c. v. KM Do cs

,

LLC , 3 3 0 Ga. Ap p. 1 8 8, 1 9 4 (2 ) (7 6 7 SE2 d 8 2 1 ) (2 0 14 ). M o reo v er,

[t ] h e t erm s an d p h ras es co n t ai n ed i n a co nt ract m u s t b e g i v en t h e i r

o r d i n a r y m ean i ng

. It is eq u al ly wel l s et t l ed t h at n o co n s t ru ct i o n i s

req u ired o r ev en p erm i s s ib l e wh en t h e l an g u ag e em p l o y ed by t he p art i es

i n t h ei r co nt ract i s p l ai n

, u n am bi g u o u s

, an d cap ab l e o f o n l y o n e

reas o n ab l e i n t erp ret at i on

. In s u ch an i n st a n ce, t he l an gu ag e u s ed m u s t

b e affo rd ed i t s l i t eral m ean i n g a n d pl ai n o rd i n ary wo rd s g iv en t h ei r

u s u al s i gn i fi can ce

. . . .

(Ci t at i o n s an d p u n ct uat i o n o m i t t ed .) Un if i ed Go ver n men t of At hen s -Cl a rke Co u n t y

v. McCr a r

y , 2 80 Ga. 9 0 1 , 9 0 3 (6 3 5 SE2 d 1 5 0 ) (2 0 0 6 )

.

13Un d er t h e t erm s o f t h e Pay Po l i cy

, t h e Ci t y M an ag er i s g i v en au t h o ri t y t o m ak e

“ ex cep t i o n ” t o t h e p o l i cy wh ere “ d eem ed n eces s ary .” Th e t erm “ ex cep t i o n ” i s

c o m m on l y d efi n ed t o m ean “ s o m et h i n g t h at i s ex cl u ded fro m a ru l e’ s op erat i o n ,” 1 0

“ a p ers o n o r t h i n g t hat

. . . d o es n o t fo ll o w a ru l e,” 1 1 o r “ a cas e wh ere a ru l e d o es n ot

ap p ly .” 1 2 Th es e d efi n i t io n s n eces s ari l y i m p l y t h e ex i s ten ce o f a ru l e t h at i s g en eral l y

fo l l o w ed

, fro m w h i c h t h e e x cep t i on d ev i at es

. An d

, i n fact

, t h e Pay Po l i cy u s es

m an d at o ry l an g u ag e i n s et t i n g t h e p ay i ncreas es

, p ro v i d i n g t h at pro m o t ed em p l o y ees

“ s h a l l recei v e” o r “ wi l l recei v e” t h e s p eci f i e d r a i s e i n pay

. Th us

, we i n t erp ret t h i s

l an g u ag e t o m ean t h at t h e Ci t y Man ag er sh o ul d ap p l y t h e s al ary i n creas e s p eci fi ed in

t h e Pay Po l i cy un l es s s h e d et erm i n es t h at an ex cep t i o n i s “ neces s ary .” Co m p are

Jo h ns o n v. Fu l t o n Co u n t y

, 2 3 5 Ga. Ap p. 2 77

, 2 7 9 (1 ) (5 0 9 SE2 d 3 5 5) (1 9 9 8 )

(p ers o n n el p ol i cy s t at i n g t h at s al ary i n creas es “ ma y b e g ran t ed ” t o an em

p l o y ee u p o n

t h e reco m

m en dat i o n an d ap pro v al o f co u n t y em p l o y ees d o es n o t req u i re t h at t h e

1 0 Bl ack ’ s Law Di ct i on ary (1 0 t h ed . 2 0 1 4 ).

1 1 O x f o r d A d v a n c e L e a r n e r ’ s D i c t i o n a r y

, o n l i n e a t

h t t p : // www.o x fo rd d i ct i o n ari es

. co m / d efi n i t i on / en gl i s h / ex cep t i o n.

1 2 M erri am -W eb s t er’ s On l i n e Di ct i o n ary , h t t p : / / www.m erri am -web s t er.co m /

d i ct i o n ary / ex cep t i o n.

14co u nt y pay rai s es to al l em p l o y ees

, b u t rat h er g i ves co u n ty t h e d i s cret i o n w het h er to

award rai s es ).

Th e t erm “ n eces s ary ” h as b een d efi n ed as “ ab s o l u t el y n eed ed ,” 1 3 an d “ [n ] eed ed

t o b e do n e, ach i ev ed

, o r p res en t ; es s en t i al .” 1 4 Acco rd i n g ly

, we d o n o t i nt erp ret t h e

l an g u ag e o f t he Pay P o l i c y a s g ran t in g t h e Ci t y Man ag er u n fet t ered au t h o ri t y to

i g n o re t h e p o l i cy ’ s req ui rem en t s fo r p ay rai s es . Rat h er, we fi n d t h at s h e m u s t ap p l y

t h e p o l i cy u n l es s

, i n th e ex erci s e o f h er d i s cret io n, s h e det erm in es t h at an ex cep t i o n

i s es s en t i al o r n eed ed

. Th u s

, we fi n d th at t h e l an g u ag e o f t h e p ol icy req u i res t h e

ex erci s e o f s u ch d i s cret i on i n each p art i cu l ar cas e o f p ro m ot i o n.

In ad d i t io n

, wh ere “ t he m an n er o f p erfo rm an ce is l eft m o re o r l e s s t o t h e

d i s cret i o n o f o ne o f t he p art i es t o t h e co n t ract

, [t h at part y ] i s b ou n d t o th e ex erci s e o f

g o o d fai t h

. ” (Ci t at io n a n d p u n ct uat i o n o m i t t ed .) Ro g er s v. Fa r m er

s & Mer ch a n t

s

Ba n k

, 24 7 Ga. A p p. 6 31

, 6 3 3 (5 4 5 SE2 d 5 1 ) (2 0 0 1 ). See al s o Ri g b y v. Bo a t ri

g h t

, 3 3 0

Ga. A p p. 1 8 1

, 1 84 (1 ) (7 6 7 SE2 d 7 83 ) ( 2 0 1 4 ); Amer i s Ba n k v. Al l i a n ce In ves t men t

& M g m t

. Co

., LLC

, 3 2 1 G a. Ap p

. 2 2 8

, 2 3 4 (3 ) (a) (7 3 9 SE2 d 4 8 1) (2 0 1 3 ). Th u s

, we

1 3 M erri am -W eb s t er’ s On l i ne Di ct i o n ary

, h t t p: / / www.m erri am -web s t er.co m /

d i ct i o n ary / neces s ary

.

1 4 O x f o r d A d v a n c e L e a r n e r ’ s D i c t i o n a r y

, o n l i n e a t

h t t p : // www.o x fo rd d i ct i o n ari es

. co m / d efi n i t i on / en gl i s h / neces s ary

.

15fi nd t h at t h e Pay Po l i cy req u i res t h e Ci t y M an ag er t o ex erci se h i s o r h er d i s cret i o n in

g o o d fai t h

.

An d i n Geo rg i a,

[a] d eci s i o n t h at i s m ad e fo r arb i t rary o r cap ri ci o u s reas o n s

, i s bas ed o n

an i m p ro p er pecu n i ary m o t i v e, or is pred i cat ed o n d i sh o nes t y o r

i l leg al i t y i s n o t m ad e i n g o o d fai t h

. F u rt h erm o re, a d eci s i o n can b e s o

g ro s sl y erro n eo u s, as wh ere t h ere i s a t o t al ab sen ce o f an y fact ual

ev i d en ce to s u p p o rt i t

, t h at i t creat es an i n feren ce o f b ad fai t h a n d

d i s h o n es t ju d g m en t. W h et h er a p art y ex erci s es g o o d fai t h an d ho n es t

ju d g m en t i n t h e p erfo rm an ce o f a co n t ract i s a q u es ti o n o f fact [.]

(Ci t at io n s an d p u n ct u at i o n om i t t ed ; em p h as is s u p p l i ed

. ) Ri

g b y

, 3 3 0 Ga. Ap p

. at 1 8 5

(1 ). Th e co m

p l ai n t

, as am e n d e d

, as s ert s t h at Cu t t er d et erm i n ed p ay “ b as ed o n

p ers o n al fav o ri t i s m an d b i as ,” an d w e c an n o t s ay at t h i s earl y p l ead i n g s t ag e o f t h e

l i ti g at i o n t h at t h e Fi refi g h t ers wi l l b e u n ab l e t o p res en t ev i d en ce d em o n s t rat i n g t h at

Cu t ter fai l e d to ex erci s e h er d i s cret i o n or t h at s h e d i d n o t act i n g o o d fai t h in

ex erci s i ng h er d i s cret i o n

. Acco rd i n gl y

, t he di s cret io n ary l an g u ag e o f th e Pay Po l i cy

d o es no t d em an d d i s m is s al as a m at t er o f l aw. 1 5

1 5 W e n o t e t h at we ad d res s on l y t h e i s s u e ru l ed u po n b y t h e t ri al co urt b el o w

an d arg u ed b y th e p art i es o n ap p eal

, a n d w e e x p r e s s l y d o n o t ad d res s an y o t h er

d efen s es o r arg u m en t s rai s ed b y t h e Ci t y an d Cu t t er b el o w.

16Fo r t h es e reas on s, we rev ers e t h e t ri al co u rt ’ s ord er g ran t i n g t h e Ci t y ’ s m o t i o n

t o d i s m i s s an d / o r fo r ju d g m en t o n t h e p l ead i n g s

.

Ju d g men t r ever sed . Ba r n es , P. J., a n d

Ra y, J., co n cu r

.

17