Opinion ID: 1253073
Heading Depth: 1
Heading Rank: 4

Heading: The Legislature

Text: As in every case involving the application or interpretation of a constitutional provision, analysis must begin with the language of the constitutional provision itself. Upon analyzing the exception created under article VI, section 36 of the Constitution we believe this constitutional provision `is clear in its terms and of plain interpretation to any ordinary and reasonable mind[.]' Syl. pt. 4, Casey, supra; syl. pt. 3, Smith, supra. By its terms, article VI, section 36 of the Constitution allows the legislature to authorize lotteries which are regulated, controlled, owned and operated by this state  in the manner provided by general law [.] (emphasis added). The plain language of this constitutional provision authorizes the legislature not simply to establish a state-run lottery, but also to prescribe the general law pursuant to which the lotteries will be regulated, controlled, owned and operated[.] Moreover, we believe that the application of the plain language of article VI, section 36 of the Constitution gives effect to the intent of the people in adopting it. Specifically, the voters of this state, in ratifying the amendment, authorized the legislature to pass laws establishing a state-run lottery. The unambiguous terms of this constitutional provision allowing lotteries to be regulated, controlled, owned and operated ... in the manner provided by general law clearly gives effect to the intent of the voters of this state to allow the legislature to pass laws authorizing a state operated and controlled lottery. With respect to electronic video lottery, however, the legislature has not enacted the appropriate laws establishing electronic video lottery games. [16] In fact, the only specific reference to electronic video lottery under our State Lottery Act is found under W.Va.Code, 29-22-9(b)(2) [1990], which provides that [e]lectronic video lottery systems must include a central site system of monitoring the lottery terminals utilizing an on-line or dial-up inquiry. [17] Electronic video lottery, by its very nature, is significantly different from common staterun lottery games. Although this Court has not been given a specific description of the devices to be used in video lottery, we have found descriptions of such devices from other sources. For example, a commentator has noted that the video lottery terminals used at Mountaineer Park are converted slot machines that can dispense paper-tickets. Cory Aronovitz, To Start, Press the Flashing Button: The Legalization of Video Gambling Devices 5 Software L.J. 771 n. 1 (1992) (emphasis added). Furthermore, one state defines video lottery machines as any electronic video game machine that, upon insertion of cash, is available to play or simulate the play of a video game, including but not limited to video poker, keno and blackjack [.] S.D.Codified Laws Ann. § 42-7A-1(18) (Supp.1993). Another state defines video lottery terminals as any electronic computerized video game machine that, upon the insertion of cash, is available to play a video game ... which uses a video display and microprocessors in which, by chance, the player may receive free games or credits that can be redeemed for cash. R.I.Gen.Laws § 42-61.2-1(a) (Supp.1992). See also S.C.Code Ann. § 12-21-2772(5) (1993). Our legislature, however, has yet to even define electronic video lottery, much less explicitly authorize it. Such definition and authorization is essential where, as in this state, there has been a long-standing general prohibition against gambling of any kind. The fact that electronic video lottery is different from the common state-run lottery games, and has been defined as video poker, keno and blackjack, also raises a question as to whether electronic video lottery is actually a lottery [18] as contemplated by W.Va. Const. art. VI, § 36. [19] West Virginia law prohibits gambling, W.Va.Code, 61-10-1 to 61-10-31. For example, W.Va.Code, 61-10-1 [1970] prohibits any person from keeping or exhibiting a gaming table, ... or faro bank, or keno table, or any slot machine, multiple coin console machine, multiple coin console slot machine or device in the nature of a slot machine, or any other gaming table or device of like kind[.] [20] It is not clear from the record before us whether video lottery is the type of gambling prohibited under our anti-gambling statutes. We are not convinced that W.Va. Const. art. VI, § 36 contemplated a form of lottery which in some states has included gambling activities such as slot machines and keno. Moreover, we cannot find that the State Lottery Act, which neither defines nor explicitly authorizes electronic video lottery, constitutes a considered judgment by the legislature to implement such a farreaching scheme to raise revenue. We are simply unwilling to approve, on this record, the Lottery Commission's attempt to bring electronic video lottery within the definition of lottery, as that term is used both under the State Lottery Act and W.Va. Const. art. VI, § 36.