Etowah Baptist Association v. Sheriff Todd Entrekin

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Rel: 03/15/2010 Notice: T h i s o p i n i o n i s s u b j e c t t o f o r m a l r e v i s i o n b e f o r e p u b l i c a t i o n i n t h e advance s h e e t s o f Southern R e p o r t e r . R e a d e r s a r e r e q u e s t e d t o n o t i f y t h e R e p o r t e r o f D e c i s i o n s , A l a b a m a A p p e l l a t e C o u r t s , 300 D e x t e r A v e n u e , M o n t g o m e r y , A l a b a m a 3 6 1 0 4 - 3 7 4 1 ( ( 3 3 4 ) 2 2 9 ¬ 0 6 4 9 ) , o f a n y t y p o g r a p h i c a l o r o t h e r e r r o r s , i n o r d e r t h a t c o r r e c t i o n s may b e made b e f o r e t h e o p i n i o n i s p r i n t e d i n Southern R e p o r t e r . SUPREME COURT OF ALABAMA OCTOBER TERM, 2009-2010 1080168 Etowah B a p t i s t Association v. Sheriff Appeal PARKER, Entrekin from Etowah C i r c u i t (CV-08-900349) Court Justice. This i s an ("EBA") f r o m EBA's Todd motion concerning appeal by t h e Etowah Baptist an o r d e r o f t h e Etowah C i r c u i t to intervene the licensing games i n E t o w a h C o u n t y . Court Association denying the i n a declaratory-judgment action of o r g a n i z a t i o n s t o conduct bingo B e c a u s e we c o n c l u d e that the c i r c u i t 1080168 court had action, no jurisdiction over the declaratory-judgment we d i s m i s s t h e a p p e a l . Background On S e p t e m b e r Entrekin 9, 2 0 0 8 , t h e s h e r i f f ("the s h e r i f f " ) , filed o f Etowah County, Todd a declaratory-judgment action naming as d e f e n d a n t s C o o s a E n t e r t a i n m e n t G r o u p , L L C ("Coosa"), and that CBS applied Supply, LLC f o r permits ("CBS"), t o conduct two organizations bingo games i n Etowah had County a u t h o r i z e d b y Amendment No. 5 0 6 t o t h e A l a b a m a C o n s t i t u t i o n o f 1901 (now L o c a l 1901 ( O f f . R e c o m p . ) ) ( h e r e i n a f t e r Amendment No. 1 Amendments, Etowah County, § 2, A l a . C o n s t . A m e n d m e n t No. 5 0 6 p r o v i d e s , i n p e r t i n e n t 506). 1 part: "The o p e r a t i o n o f b i n g o games f o r p r i z e s o r money by certain nonprofit organizations for c h a r i t a b l e o r e d u c a t i o n a l p u r p o s e s s h a l l be l e g a l i n Etowah county, subject to the provisions o f any resolution by t h e c o u n t y commission. The county commission s h a l l have t h e a u t h o r i t y t o p r o m u l g a t e r u l e s and r e g u l a t i o n s f o r t h e i s s u a n c e o f p e r m i t s o r l i c e n s e s and f o r o p e r a t i o n o f b i n g o games; p r o v i d e d , however, the county commission must insure c o m p l i a n c e p u r s u a n t t o s a i d law and t h e f o l l o w i n g provisions: fi "The p r o v i s i o n s o f t h i s c o n s t i t u t i o n a l amendment s h a l l be s e l f - e x e c u t i n g , b u t t h e l e g i s l a t u r e shall have t h e r i g h t and power by g e n e r a l , s p e c i a l o r local a c t t o adopt laws supplemental to this 2 1080168 In Court h i s complaint, the s h e r i f f to decide the applicable investigation conducted. amended of He No. to promulgate permits and l i c e n s e s sheriff further 506, permits must Constitution 50 6 t o l e g a l i z e had be been bingo i n noted t o adopt rules f o r the issuance that laws Amendment No. supplemental of games. The 506 a u t h o r i z e d t h e t o Amendment No. 506 Commission and t h e l e g i s l a t u r e a c t e d o n t h e a u t h o r i t y p r o v i d e d t h e m i n Amendment No. 5 0 6 . The Act bingo the s h e r i f f ' s f o r the operation of bingo and t h a t b o t h t h e Etowah C o u n t y had which Circuit a n d t h a t Amendment No. 5 0 6 a u t h o r i z e s t h e E t o w a h Commission legislature for t h e Alabama i n 1 9 8 9 b y Amendment Etowah County County that t h e Etowah law under applicants noted asked legislature, No. 8 9 - 3 2 9 , A l a . contemporaneously Acts 1989, which e n a c t e d A c t No. 8 9 - 4 6 3 , A l a . amended by legislation A c t No. 94-135, with i t s enactment proposed Acts Amendment 1989, which A l a . Acts 1994, of as f o r Amendment No. 5 0 6 . Amendment No. 506 was No. later enabling included no d e f i n i t i o n o f t h e w o r d " b i n g o . " B o t h A c t No. 8 9 - 4 6 3 a n d A c t No. 94-135 define "bingo" as "that game c o m m o n l y known a s amendment o r i n f u r t h e r a n c e o f t h e g e n e r a l and o b j e c t i v e s h e r e i n s e t f o r t h . " 3 purposes 1080168 bingo where matched with The Section as or symbols numbers or symbols Etowah resolution operation numbers County a "charitable rules on and machine 1 of the r e s o l u t i o n card selected Commission, promulgating of on at July sheet 7, 2008, in issued for Etowah "bingo" or "bingo " ( i i ) e a c h s q u a r e i n a g r i d m u s t be d e s i g n a t e d by a number o r o t h e r symbol c o n t a i n e d i n a c o l l e c t i o n of numbers o r symbols u s e d f o r p l a y i n g t h e game; " ( i i i ) numbers or symbols a r e s e l e c t e d by a p r o c e d u r e or mechanism e n t i r e l y o r p r e d o m i n a t e l y g o v e r n e d by c h a n c e and, as s u c h number o r s y m b o l s a r e s e l e c t e d during t h e p l a y i n g o f a p a r t i c u l a r game, t h e same n u m b e r s o r s y m b o l s , i f t h e y a r e p r e s e n t on one o r m o r e o f t h e s q u a r e s on a n y g r i d i n p l a y , a r e c o v e r e d o r o t h e r w i s e m a r k e d on such g r i d ; the winner 4 or winners of a the games" " ( a ) ' B i n g o ' o r ' B i n g o G a m e s ' s h a l l mean a n y game o f c h a n c e k n o w n a s b i n g o , i n c l u d i n g a n y game d e f i n e d as s u c h by s t a t e o r f e d e r a l l a w ( w h e t h e r o r not e l e c t r o n i c , computer or o t h e r t e c h n o l o g i c a l a i d s are used in connection therewith), which incorporates the f o l l o w i n g e l e m e n t s : " ( i ) t h e game m u s t be p l a y e d on a g r i d of f i v e ( 5 ) h o r i z o n t a l rows i n t e r s e c t e d by five (5) contiguous squares contained w i t h i n the g r i d ; a County. follows: "(iv) are random." regulations bingo" defines or paper 1080168 p a r t i c u l a r game a r e t h e p l a y e r s o f t h o s e grids f o r which a p r e v i o u s l y designated p a t t e r n or arrangement i s f i r s t covered or marked; " ( v ) one o r more p l a y e r s must compete a g a i n s t one o r a n o t h e r f o r p r i z e s ; " ( v i ) m o n e y may b e c o l l e c t e d f r o m t h e players of bingo f o r the opportunity to p a r t i c i p a t e i n t h e game, a n d s u c h m o n e t a r y a m o u n t s may v a r y t o r e f l e c t t h e v a l u e o f the p r i z e f o r winning a p a r t i c u l a r game, w h e t h e r f o r p a r t i c i p a t i o n i n t h e w h o l e game or a p a r t i c u l a r phase t h e r e o f , and other factors r e f l e c t i n g the interplay of the amount c o l l e c t e d f r o m e a c h p l a y e r , t h e s i z e of the prize and t h e p r o b a b i l i t y of w i n n i n g ; and " ( v i i ) t h e p r i z e s f o r w i n n i n g t h e game c a n be money o r a n y t h i n g of value with l i m i t s a s t o a m o u n t . To t h e e x t e n t t h a t t h e f o r e g o i n g e l e m e n t s a r e p r e s e n t i n t h e game o f b i n g o , i t c a n be p l a y e d w i t h d i f f e r e n t k i n d s o f e q u i p m e n t v a r y i n g f r o m one e n d o f the spectrum, where traditional cards d i s p l a y i n g the p l a y i n g grids are used with t o k e n s t o c o v e r t h e d e s i g n a t e d s q u a r e s on the c a r d s , t o t h e t e c h n o l o g i c a l l y advanced end of the spectrum, where electronic d e v i c e s p e r f o r m t h e o p e r a t i o n s o f t h e game using computers or micro-processors and i n t e r a c t w i t h t h e human p l a y e r s b y m e a n s o f an e l e c t r o n i c c o n s o l e . I f t h e game o f b i n g o is played on e l e c t r o n i c devices which determine and s i g n a l the winner, such d e v i c e s s h a l l be e l e c t r o n i c a l l y l i n k e d t o ensure that m u l t i p l e players are competing a g a i n s t e a c h o t h e r . The p r i z e s o r e v i d e n c e thereof f o r winning b i n g o games may b e disbursed by t h e e l e c t r o n i c devices or 5 1080168 c o n s o l e s u s e d i n p l a y i n g s u c h games a t t h e t i m e e a c h game i s won o r o n different schedules t h a t r e f l e c t a r e c o r d o f wins and l o s s e s i n v o l v i n g m u l t i p l e games. "(b) 'Machine Bingo Game' s h a l l mean a n y electronic or mechanical equipment, machine or d e v i c e , o r computer o r other t e c h n o l o g i c hardware o r device, " ( i ) w h i c h i s i n s t a l l e d , o r i s t o be i n s t a l l e d a t a Machine Bingo L o c a t i o n and " ( i i ) w h i c h i s u s e d , o r c a n be u s e d , t o p l a y B i n g o as h e r e i n d e f i n e d . Machine B i n g o Games i n c l u d e s a n y m a c h i n e , d e v i c e o r hardware that assists a player or the playing of Bingo Games, broadens the p a r t i c i p a t i o n l e v e l s i n a common game a n d includes a l l of the a n c i l l a r y Bingo supplies. Examples of Machine Bingo Equipment and S u p p l i e s i n c l u d e , b u t a r e n o t limited to, dispensers, readers, e l e c t r o n i c player stations, player terminals, central c o m p u t e r s e r v e r s c o n t a i n i n g random number generators and other processing c a p a b i l i t i e s f o r remote p l a y e r t e r m i n a l s , e l e c t r o n i c consoles capable of providing game r e s u l t s i n d i f f e r e n t d i s p l a y m o d e s , telephones and telephone circuits, televisions, cables and other telecommunication c i r c u i t s , and s a t e l l i t e s and r e l a t e d t r a n s m i t t i n g and r e c e i v i n g e q u i p m e n t . M a c h i n e B i n g o Games s h a l l n o t b e deemed t o be f o r a n y p u r p o s e a ' g a m b l i n g device' or ' s l o t machine' within the meaning o f t h e Code o f Alabama 1975, S e c t i o n s 13A-12[-]20(5) and ( 1 0 ) , o r any other p r o v i s i o n o f l a w , w h e t h e r now i n e f f e c t or h e r e a f t e r enacted. T r a d i t i o n a l b i n g o p l a y e d u t i l i z i n g paper cards and any devices to assist i n the paying of 6 1080168 traditional bingo u t i l i z i n g paper cards s h a l l be exempt u n d e r t h i s d e f i n i t i o n . " The sheriff's the E t o w a h C o u n t y C o m m i s s i o n was t o c o n d u c t to determine to applicants The responsibility under the appropriateness f o rbingo sheriff's the rules established by an i n v e s t i g a t i o n of the issuance of licenses permits. complaint presented the following issue: " 1 3 . ... [P]ursuant t o t h e r u l e s and r e g u l a t i o n s as p r o m u l g a t e d b y t h e E t o w a h C o u n t y C o m m i s s i o n i n J u l y 2008, [ t h e s h e r i f f ] i s r e q u i r e d t o u n d e r t a k e an i n v e s t i g a t i o n i n order t o a s c e r t a i n and determine the a p p r o p r i a t e n e s s of the issuance of a l i c e n s e to the a p p l i c a n t . "14. However, t h e r e s p o n s i b i l i t y and g u i d e l i n e s g o v e r n i n g t h e i n v e s t i g a t i o n and p o s s i b l e issuance o f a permit required of the s h e r i f f i s either unclear and/or o t h e r w i s e d i s t i n c t and d i f f e r e n t w i t h r e s p e c t to whether or not the l i c e n s e i s being i s s u e d as p r o m u l g a t e d b y t h e s t a t u t o r y p r o v i s i o n s as a d o p t e d by t h e A l a b a m a L e g i s l a t u r e as compared t o t h e r u l e s and r e g u l a t i o n s as p r o m u l g a t e d b y t h e E t o w a h C o u n t y Commission. "15. In order to properly comply w i t h t h e a p p l i c a t i o n p r o c e s s a n d i n s u r e an a p p r o p r i a t e a n d proper i n v e s t i g a t i o n , i t i s necessary that this Court d e c l a r e and determine t h e a p p r o p r i a t e rules, r e g u l a t i o n s , procedures and/or laws t h a t w i l l serve to guide your p l a i n t i f f ... a s S h e r i f f o f E t o w a h County, a s he p r o c e e d s with this investigatory process. "WHEREFORE, P R E M I S E S CONSIDERED, i t i s t h e r e f o r e p r a y e d t h a t t h i s C o u r t w i l l s e t t h i s m a t t e r down f o r hearing and upon c o n s i d e r a t i o n o f t h e i n f o r m a t i o n 7 1080168 and a r g u m e n t p r o v i d e d , t h a t t h e C o u r t w i l l a s c e r t a i n and determine the a p p r o p r i a t e body of law and/or r e g u l a t i o n t h a t w i l l serve to guide your p l a i n t i f f as he i n i t i a t e s a n d p r o c e e d s i n t h e i n v e s t i g a t o r y process necessitated by the submission of an a p p l i c a t i o n f o r a p e r m i t to operate bingo i n Etowah C o u n t y , A l a b a m a by t h e s e d e f e n d a n t s . " On summary September judgment. Amendment Sheriff's No. CBS of argued the investigation any conflicts Amendment 2008, C o o s a and Coosa 506 Accordingly, that 10, statutory with the 506, do [No.] that, Alabama in the apply and argued that responsibilities and investigation issuing permits. extent that extent that Constitution, file a any any as other the of the statutes resolution a matter not 506 would be of conflict, response or otherwise oppose September 16, 2008, EBA, The the forth in followed." controls conflict, amended, w o u l d p r e v a i l . " resolution with a matter the permits. set ... sheriff As would local a law, controls [sheriff], should for of subject or "Amendment No. duties motions Constitution legislation similarly and filed "[a]s issuing power of not CBS regard law, or the sheriff to to the to the the Alabama did not summary-judgment motions. On the the c a s e by v i r t u e o f t h e p r o x i m i t y 8 claiming of the 91 an interest in Southern Baptist 1080168 churches that a r e i t s members to the proposed "electronic bingo" f a c i l i t i e s , f i l e d a motion pursuant to Rule 24(b), A l a . R. C i v . P., t o a l l o w i tpermissive intervention. I t argued: " 3 . A r t i c l e I V , § 65 o f t h e C o n s t i t u t i o n o f A l a b a m a of 1901, p r o h i b i t s l o t t e r i e s or g a m b l i n g i n t h i s S t a t e . The A r t i c l e p r o v i d e s a s f o l l o w s : "'The L e g i s l a t u r e s h a l l h a v e no p o w e r t o authorize l o t t e r i e s or g i f t enterprises f o r any purposes, and s h a l l pass laws to p r o h i b i t the sale i n t h i s state of l o t t e r y or g i f t e n t e r p r i s e t i c k e t s , or t i c k e t s i n any scheme i n t h e n a t u r e o f a l o t t e r y ' "The e l e m e n t s o f a l o t t e r y w h i c h v i o l a t e § 65 o f t h e Constitution o f Alabama a r e a p r i z e , awarded by chance, and f o r c o n s i d e r a t i o n . Pepsi Cola B o t t l i n g Co. o f L u v e r n e , I n c . v . C o c a - C o l a B o t t l i n g C o . , A n d a l u s i a , 534 S o . 2 d 2 9 5 ( A l a . 1 9 8 8 ) . A c c o r d i n g t o established l e g a l precedent, the playing of bingo has been r e c o g n i z e d as a f o r m o f a l o t t e r y . C i t y o f P i e d m o n t v . E v a n s , 642 S o . 2 d 435 ( A l a . 1 9 9 4 ) . "4. I n 1989, t h e Alabama Legislature proposed A m e n d m e n t No. 506 t o t h e C o n s t i t u t i o n o f A l a b a m a l e g a l i z i n g ' b i n g o ' games i n E t o w a h C o u n t y , A l a b a m a for prizes o r money i f o p e r a t e d b y a non-profit organization f o r c h a r i t a b l e , educational or other l a w f u l p u r p o s e s . T h i s amendment was a p p r o v e d b y a n e l e c t i o n h e l d o n A u g u s t 8, 1 9 8 9 a n d r a t i f i e d J u l y 2, 1990 b y t h e A l a b a m a L e g i s l a t u r e . " 5 . Amendment No. 506 t o t h e C o n s t i t u t i o n o f A l a b a m a of 1 9 0 1 ( S e c . 2. B i n g o ) m a k e s t h e o p e r a t i o n o f ' b i n g o ' games s u b j e c t to the provisions o f any r e s o l u t i o n by t h e county commission. A c c o r d i n g t o t h i s c o n s t i t u t i o n a l amendment, t h e c o u n t y c o m m i s s i o n s h a l l have t h e a u t h o r i t y t o p r o m u l g a t e r u l e s and regulations f o r the issuance of permits or l i c e n s e s 9 1080168 and f o r o p e r a t i o n o f b i n g o games; p r o v i d e d , h o w e v e r , the county commission must insure compliance pursuant to s a i d law and to certain additional provisions prescribed by the Amendment. The amendment p r o v i d e s that i t s provisions shall be s e l f - e x e c u t i n g , 'but the l e g i s l a t u r e s h a l l have the r i g h t and power by g e n e r a l , s p e c i a l or l o c a l a c t t o adopt laws supplemental to t h i s amendment o r in f u r t h e r a n c e o f t h e g e n e r a l p u r p o s e s and objectives h e r e i n s e t f o r t h . ' A m e n d m e n t [No.] 506, supra. "6. I n 1 9 8 9 , t h e L e g i s l a t u r e t h r o u g h A c t No. 8 9 - 4 6 3 , [ A l a . A c t s 1989,] e n a c t e d p r o v i s i o n s r e l e v a n t t o t h e o p e r a t i o n of b i n g o i n Etowah County, Alabama. T h i s o r i g i n a l A c t d e f i n e d c h a r i t a b l e ' B i n g o ' as b e i n g t h e game c o m m o n l y known as bingo, where numbers or s y m b o l s on a c a r d o r p a p e r s h e e t a r e m a t c h e d w i t h numbers or symbols s e l e c t e d at random. T h a t l i m i t e d d e f i n i t i o n of c h a r i t a b l e 'Bingo' i n Etowah County has r e m a i n e d u n c h a n g e d s i n c e 1989. On F e b r u a r y 24, 1994, A c t No. 8 9 - 4 6 3 was a m e n d e d t o s u p p l e m e n t t h e ... law a p p l i c a b l e to the o p e r a t i o n of the bingo games b y q u a l i f i e d o r g a n i z a t i o n s . P u r s u a n t t o i t s a u t h o r i t y t o a d o p t l a w s s u p p l e m e n t a l t o Amendment 506 o r i n f u r t h e r a n c e o f t h e g e n e r a l p u r p o s e s and o b j e c t i v e s o f t h a t amendment, t h e l e g i s l a t u r e again d e f i n e d ' B i n g o ' i n S e c t i o n 2 ( 1 ) o f A c t No. 94-13[5, A l a . A c t s 1 9 9 4 , ] as f o l l o w s : "'Section 2. As used in this act the f o l l o w i n g words s h a l l have the f o l l o w i n g m e a n i n g s as a s c r i b e d h e r e i n , u n l e s s the context c l e a r l y indicates otherwise: "'(1) 'Bingo' means t h a t game commonly known as b i n g o w h e r e n u m b e r s o r s y m b o l s on a c a r d or paper s h e e t are matched with numbers or symbols s e l e c t e d at random ' " S e c t i o n 7 o f A c t No. 9 4 - 1 3 [ 5 ] s t a t e s t h a t i t i s t h e i n t e n t i o n of the l e g i s l a t u r e that only qualified o r g a n i z a t i o n s which are p r o p e r l y i s s u e d permits or 10 1080168 l i c e n s e s , p u r s u a n t t o s u b d i v i s i o n (2) o f s h a l l be a l l o w e d t o o p e r a t e b i n g o g a m e s . this act, " 7 . On J u l y 7, 2 0 0 8 , t h e E t o w a h C o u n t y Commission adopted a resolution promulgating rules and regulations for the operation of charitable ' m a c h i n e ' b i n g o i n E t o w a h C o u n t y . The r u l e s a d o p t e d by the county commission are contrary to the d e f i n i t i o n o f ' B i n g o ' s t a t e d i n t h e 1989 A c t and S e c t i o n 2 o f A c t No. 9 4 - 1 3 [ 5 ] , as a l l o w e d b y t h e constitutional amendment, w h i c h strictly defines ' B i n g o ' a s ' t h a t game c o m m o n l y k n o w n as b i n g o w h e r e numbers or symbols on a c a r d o r p a p e r sheet are matched with numbers or symbols selected at random ' (Emphasis added [ i n EBA's m o t i o n ] ) . " 8 . The [sheriff's] complaint for a declaratory judgment asks t h i s Court to determine whether the t e r m ' B i n g o ' as d e f i n e d i n S e c t i o n 2 o f A c t No. 9413[5] s t i l l g o v e r n s t h e S h e r i f f ' s i n v e s t i g a t i o n and c o n s i d e r a t i o n of [Coosa's and CBS's] a p p l i c a t i o n s for a permit to operate bingo i n Etowah County f o l l o w i n g the Commission's r e s o l u t i o n of J u l y 7, 2008, permitting 'charitable machine bingo' in Etowah County. [Coosa and CBS] have moved for summary j u d g m e n t a s k i n g t h i s C o u r t t o d e c l a r e , i n e f f e c t , that the Commission's r e s o l u t i o n p e r m i t t i n g ' c h a r i t a b l e machine b i n g o ' i n Etowah County r e n d e r s t h e p r o v i s i o n s o f A c t No. 9 4 - 1 3 [ 5 ] , d e f i n i n g ' B i n g o ' a s ' t h a t game c o m m o n l y k n o w n as b i n g o w h e r e n u m b e r s o r s y m b o l s on a c a r d o r p a p e r s h e e t a r e m a t c h e d w i t h numbers or symbols s e l e c t e d a t random ' not applicable to the Sheriff's investigation and c o n s i d e r a t i o n of t h e i r permit a p p l i c a t i o n s . " 9 . A m e n d m e n t No. 506 t o t h e C o n s t i t u t i o n o f A l a b a m a d i d n o t r e p e a l A r t i c l e I V , § 65 o f t h e C o n s t i t u t i o n of Alabama. I n s t e a d , ... A m e n d m e n t No. 506 s i m p l y amended t h e C o n s t i t u t i o n o f A l a b a m a by a l l o w i n g t h e lottery of 'bingo' as narrowly defined by the s u p p l e m e n t a l l o c a l a c t s t o be o p e r a t e d l e g a l l y i n Etowah County by c e r t a i n n o n - p r o f i t organizations 11 1080168 for charitable, educational or other lawful p u r p o s e s . The o n l y f o r m o f b i n g o l e g a l i z e d b y t h e p a s s a g e o f t h e amendment, as s u p p l e m e n t e d by t h e l o c a l a c t s , was b i n g o i n c a r d o r p a p e r f o r m a t . " On S e p t e m b e r 1 8 , 2 0 0 8 , t h e E t o w a h C o u n t y C o m m i s s i o n m o v e d the circuit matter court of r i g h t to allow under r u l e the Commission 24(a), to intervene as a A l a . R. C i v . P., s a y i n g , i n part: " [ T ] h e E t o w a h C o u n t y C o m m i s s i o n moves t h e C o u r t t o enter an O r d e r w h i c h w i l l insure t h a t no b i n g o permits may be i s s u e d t o any a p p l i c a n t by t h e Sheriff of Etowah County unless and u n t i l the p r e c o n d i t i o n s o f t h e J u l y 7, 2 0 0 8 , E t o w a h C o u n t y Commission Resolution have been met and c e r t i f i c a t i o n has been g i v e n t o t h e Etowah County S h e r i f f by t h e Etowah County Commission o f t h a t fact." On September 19, i s s u e d an o r d e r and t h e EBA and that court 2008, lacked EBA legal d i d not hearing, standing the c i r c u i t to intervene w o u l d be a l l o w e d court Attorney citing to provide i t elect the 22, 2008, that 19, 2008, stated that t o do s o . September i tfiled 19, a motion to opinion of the then current l i m i t e d bingo i n Etowah County t o paper b i n g o . 12 time the c i r c u i t appeal a September General at that should immediately b u t on S e p t e m b e r amend t h e o r d e r , legislation a an a m i c u s c u r i a e b r i e f , order, Alabama after s t a t i n g t h a t both t h e Etowah County Commission each e n t i t y with The 2008, Op. 1080168 Att'y Gen. No. 2008-134 ("absent c o n s t i t u t i o n a l amendment o r new Bingo Act limits electronic that bingo"). "[n]one judgment bingo of the action the an County of to paper same m o t i o n , t h e existing takes passage a l e g i s l a t i o n , the Etowah i n Etowah In the parties opposing to EBA County bingo, also this position new not argued declaratory on whether the Commission's r e g u l a t i o n s a l l o w i n g e l e c t r o n i c machine bingo are valid. With parties the Court On case or controversy lacks jurisdiction October 6, 2 0 0 8 , t h e EBA I t argued court. t h a t because position there no and C o o s a and CBS were no adverse a r g u e d , t h e r e was court lacked argued that d e f e n d a n t s was of the e n a b l i n g filed the interests no j u s t i c i a b l e effect over this a brief sheriff had to of to challenge i n the case. the hear the the case. position the v a l i d i t y l e g i s l a t i o n , which attorney general existing case." i n the circuit t a k e n no to be 13 Thus, the c o n t r o v e r s y , and of or legal the The the EBA circuit EBA also unopposed constitutionality r e q u i r e d s e r v i c e of n o t i c e of t h a t c h a l l e n g e upon t h e a t t o r n e y g e n e r a l for the w e r e i n a g r e e m e n t as t o t h e i s s u e s , jurisdiction the between heard. § a n d an opportunity 6-6-227 , A l a . Code 1080168 1975. 2 Failure to notify the attorney general c o n s t i t u t i o n a l challenge to a statute or a municipal deprives a court of j u r i s d i c t i o n . of a ordinance B r a t t o n v. C i t y o f F l o r e n c e , 688 S o . 2 d 2 3 3 ( A l a . 1 9 9 6 ) ; T y s o n F o o d s , I n c . v . T h o m p s o n , 7 1 9 So. 2d 8 4 7 , 850 grounds, Ex p a r t e ( A l a . C i v . App. 1998), General Motors Corp., abrogated on other 800 S o . 2 d 159 ( A l a . 2000). Quoting from attorney general that not just 1, 2 0 0 4 , the c i r c u i t "The Amendment A u g u s t 8, Section press release by t h e t h a t s t a t e d t h a t i t " c a n n o t be c o n c l u d e d b e c a u s e t h e game i s p l a y e d 'bingo,'" 2 a December court on v i d e o on O c t o b e r consoles, i t i s 17, 2008, r u l e d : Court finds that the C o n s t i t u t i o n a l 506 t h a t was p a s s e d b y r e f e r e n d u m o n 1989 p u r s u a n t t o A c t 89-[329] and l a t e r 6-6-227, A l a . Code 1975, p r o v i d e s : "All persons shall b e made p a r t i e s [ t o t h e declaratory-judgment a c t i o n ] who h a v e , o r c l a i m , a n y i n t e r e s t w h i c h w o u l d be a f f e c t e d b y t h e d e c l a r a t i o n , a n d no d e c l a r a t i o n s h a l l p r e j u d i c e t h e r i g h t s o f persons not p a r t i e s to the proceeding. I n any proceeding which involves the v a l i d i t y of a m u n i c i p a l ordinance, or f r a n c h i s e , such m u n i c i p a l i t y s h a l l b e made a p a r t y a n d s h a l l b e e n t i t l e d t o b e heard; and i f t h e s t a t u t e , o r d i n a n c e , or f r a n c h i s e is a l l e g e d t o be u n c o n s t i t u t i o n a l , t h e A t t o r n e y General o f t h e s t a t e s h a l l a l s o be s e r v e d w i t h a c o p y o f t h e p r o c e e d i n g a n d be e n t i t l e d t o be h e a r d . " 14 ... 1080168 ratified i s t h e body of law which governs the Sheriff i n his investigatory process to any prospective e n t i t y seeking a permit to operate a video bingo facility. The C o u r t ' s findings are consistent with the issues presented i n this lawsuit and f o r t h e C o u r t t o a d d r e s s i s s u e s a r g u e d b y t h e parties seeking to intervene would r e q u i r e this Court to improperly extend i t s e l f beyond i t s l e g a l boundaries." The effect sheriff of the c i r c u i t court's a s a m e n d e d b y A c t No. I n an a m i c u s c u r i a e F o u n d a t i o n f o r M o r a l Law c i r c u i t court's order: 3 i s to direct the t o f o l l o w t h e r u l e s and r e g u l a t i o n s p r o m u l g a t e d by t h e Etowah County Commission i n s t e a d 89-463, order of the enabling 94-135. a c t , A c t No. 3 b r i e f f i l e d with this Court, the described the i m p l i c a t i o n of the "The t r i a l c o u r t ' s p a l t r y a n a l y s i s b e l o w i m p l i e s t h a t t h e two l e g a l p r o v i s i o n s a r e i n c o n f l i c t , w i t h the c o n s e q u e n t i a l r e s u l t t h a t Amendment 5 0 6 , a s a c o n s t i t u t i o n a l p r o v i s i o n , p r e v a i l s over the s t a t u t e [Act No. 89-463]. The court below issued this conclusory ruling without the benefit of an explanation of the nature of the supposed l e g a l c o n f l i c t o r how t h e c o u r t a r r i v e d a t i t s d e c i s i o n . (C. 1 4 5 - 1 4 6 ) . To f i n d t h a t t h e t w o l a w s conflict, h o w e v e r , t h e c o u r t h a d t o make t h e a s s u m p t i o n t h a t t h e a l l o w a n c e f o r ' b i n g o ' i n [ A m e n d m e n t 5 0 6 ] was somehow b r o a d e r t h a n t h e d e f i n i t i o n o f t h e same w o r d s u p p l i e d i n t h e same y e a r i n t h e e n a b l i n g statute. To s u s t a i n t h i s l o g i c t h e c o u r t w o u l d h a v e a l s o h a d t o assume t h a t the L e g i s l a t u r e approved f o r the ballot an e x p a n s i v e and e v o l v i n g c o n s t i t u t i o n a l d e f i n i t i o n of 'bingo' that i n c l u d e d a l l i t s f u t u r e forms ( e l e c t r o n i c , v i d e o , machine, e t c . ) and i n t h e same year passed the enabling act with the t r a d i t i o n a l d e f i n i t i o n o f ' t h a t game c o m m o n l y k n o w n 15 1080168 The EBA t i m e l y appealed from the d e n i a l of i t s motion to intervene. The Appeal On a p p e a l , t h e EBA p r e s e n t s f o u r arguments: "I. The case does not present a justiciable c o n t r o v e r s y b e t w e e n t h e e x i s t i n g p a r t i e s , who h a v e no a d v e r s e i n t e r e s t s . "II. The t r i a l c o u r t ' s j u d g m e n t v i o l a t e s A c t No. 89-463 and Act No. 94-135 of the Alabama L e g i s l a t u r e , which d e f i n e c h a r i t a b l e bingo i n Etowah C o u n t y a s b i n g o p l a y e d on c a r d s o r p a p e r . " I I I . The j u d g m e n t i n t h i s c a s e , w h i c h p r e s e n t s a challenge to the v a l i d i t y or c o n s t i t u t i o n a l i t y of those l e g i s l a t i v e acts, i s void f o r f a i l u r e of the p a r t i e s t o c o m p l y w i t h t h e p r o v i s i o n s o f A l a . Code § 6-6-227 ( 1 9 7 5 ) , r e q u i r i n g s e r v i c e o f p r o c e s s o n the A t t o r n e y G e n e r a l . "IV. The t r i a l c o u r t e r r e d i n s u m m a r i l y d e n y i n g t h e m o t i o n t o i n t e r v e n e f i l e d b y t h e EBA, w h i c h o p p o s e s illegal g a m b l i n g on p r o p e r t y n e a r o r a d j a c e n t t o their member churches, as 'not ripe for adjudication.'" EBA's b r i e f , It at i i . i s t h e d u t y o f an a p p e l l a t e jurisdiction. court to consider lack of E x p a r t e S m i t h , 438 S o . 2 d 7 66, 7 68 ( A l a . 2 0 0 3 ) . a s b i n g o ' p l a y e d 'on a c a r d o r p a p e r s h e e t . ' S u c h unstated assumptions run counter to the rules of i n t e r p r e t a t i o n a n d common s e n s e . " Foundation f o r M o r a l Law's b r i e f , 16 a t 7. 1080168 "'"[J]usticiability is jurisdictional," Ex parte S t a t e ex r e l . J a m e s , 711 So. 2d 952, 960 n.2 (Ala. 1998); hence, i f necessary, "this Court i s duty b o u n d t o n o t i c e e x mero motu t h e a b s e n c e o f s u b j e c t matter jurisdiction."' Baldwin County [v. Bay Minette], 854 So. 2d [42] at 45 [(Ala. 2 0 0 3 ) ] ( q u o t i n g Stamps [v. J e f f e r s o n C o u n t y Bd. of E d u c . ] , 642 So. 2 d [941] a t 945 n.2 [(Ala. 1994)]). I f we d e t e r m i n e t h a t a c o m p l a i n t f a i l s to s t a t e a j u s t i c i a b l e c l a i m , we a r e o b l i g e d t o c o n c l u d e t h a t the trial court lacked jurisdiction over that complaint; such a complaint t h e r e f o r e would not r e q u i r e the f i l i n g of a r e s p o n s i v e pleading." Bedsole The Code the v. Goodloe, Declaratory 1975, i s not 912 So. 2d Judgment a vehicle 508, Act, for 518 § (Ala. 6-6-220 obtaining 2005). et legal seq., Ala. advice from courts: "The Declaratory Judgment Act, §§ 6-6-220 t h r o u g h -232, A l a . Code 1975, 'does n o t "'empower courts to ... give advisory opinions, however convenient i t m i g h t be to have these questions decided for the government of future cases.'"' B r u n e r v . G e n e v a C o u n t y F o r e s t r y D e p ' t , 865 So. 2d 1167, 1175 ( A l a . 2003) ( q u o t i n g Stamps v. J e f f e r s o n C o u n t y B d . o f E d u c . , 642 So. 2d 9 4 1 , 944 ( A l a . 1994) ( q u o t i n g i n t u r n Town o f W a r r i o r v . B l a y l o c k , 275 Ala. 113, 114, 152 So. 2d 661, 662 (1963))) (emphasis added in Stamps). This Court has emphasized that declaratory-judgment a c t i o n s must 'settle a "bona fide justiciable controversy."' Baldwin C o u n t y v. Bay M i n e t t e , 854 So. 2d 4 2 , 45 ( A l a . 2003) ( q u o t i n g G u l f S o u t h C o n f e r e n c e v. Boyd , 369 So. 2 d 5 5 3 , 557 (Ala. 1979)). The controversy m u s t be ' " d e f i n i t e a n d c o n c r e t e , " ' m u s t be '"real and s u b s t a n t i a l , " ' and must s e e k r e l i e f by a s s e r t i n g a c l a i m opposed to the i n t e r e s t of another p a r t y '"upon a s t a t e o f f a c t s w h i c h must h a v e accrued."' 17 1080168 B a l d w i n C o u n t y , 854 S o . 2 d a t 45 ( q u o t i n g C o p e l a n d v . J e f f e r s o n C o u n t y , 284 A l a . 5 5 8 , 5 6 1 , 2 2 6 S o . 2 d 3 8 5 , 387 ( 1 9 6 9 ) ) . ' " D e c l a r a t o r y j u d g m e n t p r o c e e d i n g s will n o t l i e f o r an ' a n t i c i p a t e d c o n t r o v e r s y . ' " ' Creola Land Dev., I n c . v. B e n t b r o o k e Housing, L . L . C . , 828 S o . 2 d 2 8 5 , 288 ( A l a . 2 0 0 2 ) (quoting C i t y o f D o t h a n v . E i g h t y - F o u r W e s t , I n c . , 738 S o . 2 d 9 0 3 , 908 ( A l a . C i v . A p p . 1 9 9 9 ) ) . " Bedsole, 912 S o . 2 d a t 5 1 8 . In G u l f Beach H o t e l , So. 2d 1177 (Ala. 2006), declaratory-judgment an a c t i o n a g a i n s t I n c . v . S t a t e e x r e l . W h e t s t o n e , 935 this Court itself seeking than an a d v i s o r y o p i n i o n f r o m this denied intervention Beach this Court Hotel a then party adverse Gulf filed seeking jurisdiction. of the t r i a l granted Hotel i n Beach Hotel court. at the request Hotel a petition a vacation In issuing Beach trial court, because, legal the State's more 935 S o . 2 d a t 1 1 8 3 . G u l f parties, "[T]he a c t i o n i s , i n essence, nothing Court." Subsequently, said: intervenor f o ra writ of the order i t said, thewrit, sought It appealed. of the State status. Gulf o f mandamus i n making the t r i a l a n d was Gulf court Beach lacked we a d d r e s s e d t h e n e c e s s i t y interests: "This Court has r e c o g n i z e d that a purpose of t h e D e c l a r a t o r y J u d g m e n t A c t , c o d i f i e d a t §§ 6-6-220 t h r o u g h -232, A l a . Code 1 9 7 5 , i s ' t o e n a b l e p a r t i e s b e t w e e n whom a n a c t u a l c o n t r o v e r s y e x i s t s o r t h o s e b e t w e e n whom l i t i g a t i o n i s i n e v i t a b l e t o have t h e 18 1080168 issues speedily determined when a speedy determination would prevent unnecessary injury caused by the delay of ordinary judicial proceedings.' H a r p e r v. Brown, S t a g n e r , Richardson, I n c . , 873 So. 2d 2 2 0 , 224 (Ala.2003)(some emphasis added). Further, '[w]e have recognized that a j u s t i c i a b l e controversy i s one that i s "'definite and c o n c r e t e , t o u c h i n g t h e l e g a l r e l a t i o n s o f the p a r t i e s i n a d v e r s e l e g a l i n t e r e s t , a n d i t m u s t be a real and substantial controversy admitting of s p e c i f i c r e l i e f t h r o u g h a [ j u d g m e n t ] . ' " M a c K e n z i e v. F i r s t A l a b a m a B a n k , 598 So. 2 d 1367 , 1370 (Ala. 1 9 9 2 ) ( q u o t i n g C o p e l a n d v . J e f f e r s o n C o u n t y , 284 A l a . 5 5 8 , 5 6 1 , 226 So. 2 d 3 8 5 , 387 (1969)).' Harper, 873 So. 2d at 224 (emphasis added). Thus, the D e c l a r a t o r y J u d g m e n t A c t d o e s n o t '"'empower c o u r t s to decide ... a b s t r a c t p r o p o s i t i o n s , or to give a d v i s o r y o p i n i o n s , h o w e v e r c o n v e n i e n t i t m i g h t be t o have these q u e s t i o n s d e c i d e d f o r the government of future cases.'"' B r u n e r v. Geneva C o u n t y F o r e s t r y D e p ' t , 865 So. 2d 1 1 6 7 , 1175 (Ala. 2 00 3)(quoting S t a m p s v . J e f f e r s o n C o u n t y B d . o f E d u c . , 642 So. 2d 941, 944 ( A l a . 1994), quoting in turn Town of W a r r i o r v . B l a y l o c k , 275 A l a . 1 1 3 , 1 1 4 , 152 So. 2d 6 6 1 , 662 (1963)) (emphasis added i n Stamps)." 935 So. 2d at 1183. We concluded: " [ I ] t i s i n a r g u a b l e t h a t the S t a t e ' s d e c l a r a t o r y j u d g m e n t c o m p l a i n t does n o t a l l e g e any controversy b e t w e e n p a r t i e s whose l e g a l i n t e r e s t s a r e adverse. Instead, i t reflects only the State's own u n c e r t a i n t y c o n c e r n i n g the l e g a l i t y of the p r o p o s e d transaction between the Department and Auburn U n i v e r s i t y . W h i l e i t m i g h t be c o n v e n i e n t for this C o u r t t o a d d r e s s t h e i s s u e s r a i s e d by t h e State, this Court i s not empowered by the Declaratory Judgment A c t t o g i v e a d v i s o r y o p i n i o n s , and i t w i l l n o t do so." 935 So. 2d at 1183. 19 1080168 Here, judgment Coosa a n d CBS ordering regulations the each filed sheriff a motion to apply for a the summary rules and a d o p t e d by t h e Etowah County Commission regarding A m e n d m e n t No. 506 i n h i s i n v e s t i g a t i o n o f a p p l i c a n t s f o r bingo licenses. The f a c t t h a t t h e s h e r i f f d i d n o t o p p o s e C o o s a ' s a n d CBS's m o t i o n s he f o r a summary acquiesced i n the had no p r e f e r e n c e its brief, this [who] had Baxley In lawsuit motion A l a . 69, we said: Johnson i t presented parties." We i n this 293 293 A l a . agree 73, "We are no j u s t i c i a b l e suit." 300 State So. 2d convinced controversy the attorney as a p a r t y general, under Rule to respond to c o n s t i t u t i o n a l questions, curiae, said i n o f Banks ex r e l . 106, 109 that this opinion ... between the a t 7 2 , 300 S o . 2 d a t 1 0 9 . with f o r status he lack of a of "the Superintendent i s a sham, c o n t r i v e d t o s e c u r e a n a d v i s o r y that that no p a r t i c u l a r p o s i t i o n i n a t 2 2 - 2 3 . The s h e r i f f ' s s i m i l a r to that Johnson, indicates t o be u s e d . A s CBS takes 'no p o s i t i o n t o t a k e ' v. (1974 ) . and i n the standard "Sheriff Entrekin was strongly r e q u e s t e d judgment o r , at l e a s t , t h a t l a w s u i t . " CBS's b r i e f , position judgment w h i c h he a s k s t o b e t r e a t e d 20 who has filed 4 4 , A l a . R. A p p . a P., and a b r i e f as amicus a the b r i e f of a party i f 1080168 this Court attorney grants general justiciable h i s motion under Rule argues, controversy as does i n the the circuit 44. EBA, In h i s b r i e f , that there was court. "'The action must be adversary in character, that i s , there must be a c o n t r o v e r s y between the p l a i n t i f f and a defendant, subject to the court's jurisdiction, having an interest in opposing h i s c l a i m . Unless the p a r t i e s have such c o n f l i c t i n g interests, the case i s l i k e l y t o be c h a r a c t e r i z e d as one f o r an advisory opinion, ... and hence not justiciable.' " F e n n v . O z a r k C i t y S c h o o l s B d . o f E d u c . , [9 So. 484, 486 ( A l a . 2 0 0 9 ) , ] q u o t i n g Ex p a r t e S t a t e r e l . J a m e s , 711 So. 2 d 952, 960 (Ala. 1998). 3d ex " T h e r e was no justiciable controversy below b e c a u s e t h e o n l y p a r t i e s a l l o w e d by the circuit court (Sheriff E n t r e k i n , CBS Supply[, LLC], and Coosa Entertainment [Group, LLC]) did not have opposing i n t e r e s t s i n the q u e s t i o n presented; i . e . whether Amendment 506 gives primacy to the Legislature's enabling act or the Etowah County C o m m i s s i o n ' s r u l e s and r e g u l a t i o n s . " F r o m d a y o n e , t h e [ s h e r i f f ] ... e x p r e s s e d no o p i n i o n o r i n t e r e s t e i t h e r way. A t t h e h e a r i n g b e l o w [he] a l l b u t a d m i t t e d he was s i m p l y s e e k i n g a n o n j u s t i c i a b l e 'advisory opinion ' "The a l l e g e d l y c o m p e t i n g D e f e n d a n t s ... filed v i r t u a l l y i d e n t i c a l m o t i o n s f o r summary j u d g m e n t i n f a v o r of g i v i n g c o n s t i t u t i o n a l primacy to the County Commission's rules and regulations Sheriff E n t r e k i n never took the opposing position (or any position)." 21 the no 1080168 Attorney the general's attorney acquired amicus c u r i a e b r i e f , general argue jurisdiction controversy before the no to jurisdiction controversy because i t . We therefore vacate that the there agree w i t h judgment of the decide the case a t 1 2 - 1 3 . The circuit was this court no and never justiciable assessment, circuit EBA and court, which i n which no we had justiciable existed. Conclusion The sheriff been purported declaratory-judgment presented dismissed on circuit court's dismiss the attorney 44, A l a . R. that and general App. MOTION OF THE Bolin, C.J., the to basis. controversy and should have Accordingly, we vacate the entered on appeal. We be the afforded October also party 17, deny 2008, the status and we motion of under Rule P. ATTORNEY GENERAL D E N I E D ; JUDGMENT V A C A T E D ; CASE D I S M I S S E D ; AND Cobb, concur. justiciable judgment case the no a c t i o n b r o u g h t by and Murdock, APPEAL Lyons, and DISMISSED. Woodall, Stuart, Shaw, J J . , c o n c u r 22 and i n the Smith, JJ., result.

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