T1 The questions presented in this appeal are (1) whether section 2205 of the Lead-Impacted Communities Relocation Assistance Act1 is unconstitutional, (2) whether section 2203(M) of the Lead-Impacted Communities Relocation Assistance Act is unconstitutional, and (8) whether section 307(D) of the Oklahoma Open Meeting Act (Open Meeting Act) 2 authorizes a public body subject to its provisions to allow anyone who does not stand to profit from a purchase or appraisal of real property into an execution session wherein the purchase or appraisal is discussed. We find that the plaintiffs have failed to show that sections 2205 and 2203(M) of the Lead-Impacted Communities Relocation Assistance Act are unconstitutional. We also find that section 807(D) of the Open Meeting Act restricts attendance in executive sessions to the members of the public body, the public body's attorney, and the public *185body's immediate staff when the body is discussing the purchase or appraisal of real property.3

I. LEAD-IMPACTED COMMUNITIES RELOCATION ASSISTANCE ACT AND TRUST AGREEMENT

{2 The geographical area around and including Picher is known as the Tar Creek Superfund Site (Tar Creek).4 A On September 8, 1983, Tar Creek was placed on the National Priorities List as an area that posed a significant public health or environmental risk, or both.5 The area had substantial lead and zinc contamination.6 In response to the elevated health risk, particularly to children six years of age and under who resided in the contaminated area, the Oklahoma Legislature passed the Lead-Impacted Communities Relocation Assistance Act (Act), and, with the Governor's approval, it became law.7

T3 The 2004 legislation created a relocation assistance plan for renters and property owners with children six years of age and under.8 Because a subsidence risk9 was *186identified in 2006, the Legislature extended the assistance plan to most renters and home owners in an area of greatest subsidence risk as well as to commercial businesses, nonprofit organizations, and others.10 Relocation assistance includes purchase of a home owner's property at an amount comparable to housing elsewhere in the county, a payment of an amount up to twelve months rent for comparable housing elsewhere in the county, and reimbursement for moving expenses.11 In exchange, those accepting the assistance cannot reside within one-half mile of the area until the Commissioner of Health determines it to be safe for habitation.12 Participation in the Act's assistance program is completely voluntary, and "[nlo person shall be required to relogate under the provisions of" the Act.13

T4 The assistance program is funded, in part, by the Oklahoma Department of Environmental Quality (ODEQ) making grants from appropriated monies to a public trust.14 The Legislature specifically provided that the Trust "shall be subject to the Oklahoma Open Meeting Act and the Oklahoma Open Records Act." 15 Further a majority of trustees cannot come from the most affected area, and any trustee having a direct pecuniary interest in any pending decision cannot participate in the decision under the Act's terms.16

5 Section 2205 of the Act provides:

A. Neither the enactment of this act nor the grant of funds to a trust shall create any property right or right in action. The courts shall have no jurisdiction to entertain any action against a recipient trust, the State of Oklahoma, their officers or agents founded on a claim that the claimant should have received different or better treatment from the trust.

B. The determinations made by the trust pursuant to this relocation assistance program including, without limitation, determinations as to what constitutes the most affected area of the site, the area of greatest subsidence risk, the average rental cost of comparable housing, the average cost of comparable properties, the eligibility of any person for assistance, and the determination of the proper amount of such assistance, if any, shall be committed *187to the sole discretion of the trust based on the information available to it and shall not be subject to judicial review.

T6 At least in part due to a tornado which hit Picher on May 10, 2008, damaging a large number of houses and completely destroying others, the Legislature again amended the Act.17 The most significant change made by the 2008 legislation for purposes of the issues presented here is the addition of subsection M in section 2208. Subsection M provides:

Any person eligible to receive assistance under the provisions of the Lead-Impacted Communities Relocation Assistance Act prior to May 10, 2008, shall remain eligible to receive the same amount of assistance adjusted for the amount of any private insurance payments for storm related damage if applicable. Any property valuation or other type of relocation assistance assessment made for the purposes of the Lead-Impacted Communities Relocation Assistance Act shall be based on the value of property as it existed no earlier than January 31, 2006, and not later than May 10, 2008, and comparable to property elsewhere in the county. The trust shall be authorized to enact or amend any of its procedures or deadlines as necessary to implement the provisions of this subsection.

T7 In September of 2004, the Secretary of the Environment, as trustor, and the trustees signed the Lead-Impacted Communities Relocation Assistance Trust (Trust) agreement, and the Governor accepted the beneficial interest in the Trust on behalf of the State of Oklahoma (State). The Trust agreement generally follows along the Act's lines and includes general trust provisions.

II. THE PARTIES AND OTHERS INVOLVED WITH THE TRUST

T8 At the time the petition was filed in the district court, the plaintiffs Johnny and Patty Lafalier had signed a contract with the Trust for the purchase of their property and were in the process of receiving relocation assistance. Their property was damaged by the tornado, and they received private insurance for the damage. At the time the petition was filed, the plaintiff Missy Beets had transferred ownership of her property to the Trust and had received relocation assistance. The plaintiffs sought class action certification, but, at the time the petition in error was filed, the class had not been certified.

9 Larry Roberts is the Trust's operations manager and its only employee. J.D. Strong is the Secretary of the Environment. In Executive Order 2007-07, Governor Henry designated the Secretary of the Environment as having "responsibility" for the Trust. After the enactment of the 2006 amendments, the Trust contracted with Cinnabar Service Company to provide the appraisals and retained Van Tuy! and Associates to review the appraisals.18 Roberts, Strong, and representatives of the appraisal companies attended the Trust's executive sessions.

III, HISTORY

1 10 On April 2, 2009, the plaintiffs filed a petition in the district court in Ottawa County, Oklahoma, stating two causes of action: (1) The Trust had willfully violated the Open Meeting Act by allowing J.D. Strong and representatives of Cinnabar and Van Tuyl into its executive sessions with the result that their properties were undervalued, and (2) the plaintiffs were treated unequally due to the deduction of insurance proceeds from the relocation assistance offer pursuant to title 27A, section 2208(M) of the 2008 Oklahoma Statutes. The plaintiffs sought (1) class certification, (2) the appointment of an administrator to audit the Trust, to reappraise the properties, to fairly compensate the plaintiffs, to compensate for past underpayments, and to oversee the Trust's future management, (8) reimbursement of amounts deducted for private insurance or FEMA payments, (4) an order finding title 27A, sections 2203(M) and 2205 of the Oklahoma *188Statutes unconstitutional, (5) an order for disclosure of all minutes and other records from executive sessions which violated the Open Meeting Act, and (6) attorney fees and costs. The Trust responded asserting the affirmative defenses of sovereign immunity and estoppel, among other things.

T 11 The Trust filed a motion for summary judgment arguing (1) that title 27A, section 2205 is constitutional, (2) that under section 2205, the plaintiffs cannot contest the deduction of insurance payments authorized by section 2208(M), (8) that the Trust did not violate the Open Meeting Act by allowing J.D. Strong, Larry Roberts, and representatives of Cinnabar and Van Tuyl into its executive sessions, and (4) that the plaintiffs are estopped from challenging the Trust's offers because they accepted the relocation assistance benefits.19 The plaintiffs responded and their arguments are set out and addressed below.

112 The district court granted judgment in the Trust's favor. The trial court found that title 27A, section 2205 shields the Trust from suit by invoking the government's sovereign immunity.20 The district court also found that the Trust had the discretion to allow J.D. Strong and the appraisers' representatives into its executive sessions. Lastly, the district court found that the plaintiffs have standing to sue. The plaintiffs petitioned for appellate review, the Trust responded, and we retained the appeal for disposition 21 and solicited briefs.22

IV. SUMMARY JUDGMENT, STANDARD OF REVIEW, PRESUMPTION OF CONSTITUTIONALLY

113 Under Rule 13(a) of the Rules of District Courts,23 a party may move for summary judgment or summary disposition of any issue when the evidentiary materials filed in support of the motion show that there is no genuine issue of any material fact. The moving party must support the motion by attaching and referencing evidentiary materials supporting the party's statement of undisputed facts.24 The opposing party must state the material facts which the party contends are disputed and attach supporting evidentia-ry materials.25 The court shall grant judgment to one of the parties if it appears that there is no substantial controversy as to any material fact and that one party is entitled to judgment as a matter of law.26

114 Summary judgment settles only questions of law.27 We review rulings on issues of law de novo pursuant to the plenary power of the appellate courts without deference to the district court.28

115 Even though the moving party must show that there is no dispute of fact and that they are entitled to judgment as a matter of law, there is a presumption that every statute is constitutional.29 The party seeking a statute's invalidation as unconstitutional has the burden to show the statute is clearly, palpably, and plainly inconsistent with the Constitution.30 We scrutinize a constitutional attack on a statute with great *189caution and grave responsibility.31

v. TITLE 27A, SECTION 2205 OF THE OKLAHOMA STATUTES

116 The district court found that the State had invoked the doctrine of sovereign immunity in title 27A, section 2205 and, thus, the plaintiffs' claims, other than the one regarding violations of the Open Meeting Act, were "immune from suit." We do not agree that section 2205 is an invocation of the State's sovereign immunity. In section 152.1 of the Governmental Tort Claims Act,32 the Legislature invoked the doctrine of sovereign immunity for the state, including a "public trust created pursuant to Title 60 of the Oklahoma Statutes of which the State of Oklahoma is the beneficiary...." 33 When the Legislature has invoked the State's sovereignty, it has done so in express, unambiguous terms as it does section 152.1 which states: "The State of Oklahoma does hereby adopt the doctrine of sovereign immunity." To construe section 2205 as an invocation of sovereign immunity would create a redundancy, which this Court will not do absent a compelling reason.34

T17 In contrast to the title 51, section 152.1, the Legislature has created a number of statutory restrictions to judicial review of agency decisions, including withholding a cause of action.35 When the Legislature withholds a cause of action, it also does so in unambiguous terms as it does in section 2205. According to the Act's title and language, section 2205 provides that the Act does not create "any property right or right in action." Section 2205 further provides that the courts shall have no jurisdiction over claims that claimants should have received different or better treatment from the trust. The district court and the State misconstrue section 2205 as an assertion of sovereign immunity, rather than the Legislature's withholding a right of action. The plaintiffs contended that section 2205 contravened Article II, section 6 (courts of justice open); Article II, section 7 (due process of law); Article V, section 46 (prohibition against local and special laws on certain subjects); and Article V, section 60 (system of checks and balances).36

A. ARTICLE II, SECTION 6 OF THE OKLAHOMA CONSTITUTION

118 Article II, section 6 of the Oklahoma Constitution provides: "The courts of justice of the state shall be open to every person, and speedy and certain remedy afforded for every wrong and for every injury to person, property, or reputation; and right and justice shall be administered without sale, denial, delay, or prejudice." This Court has consistently ruled that this constitutional provision is a mandate to the judiciary and not a substantive limitation on the Legislature.37 Section 6 is not "intended to deprive the Legislature of the power to abolish reme*190dies for future accruing causes of action (where not otherwise specifically prohibited), or to create new remedies for other wrongs as in its wisdom it might determine.38

{19 In St. Paul Fire & Marine Insurance Co. v. Getty Oil Co.,39 we upheld title 12, section 109 of the 1981 Oklahoma Statutes against an attack under Article II, section 6 of the Oklahoma Constitution. Section 109 is a statute of repose barring tort actions against builders, architects, owners, lessors, or possessors of property for damages caused by defective design or construction for injuries occurring more than ten years after completion of an improvement to real property. We noted that Article V, section 36 of the Oklahoma Constitution vests the Legislature with "the authority to define what constitutes an actionable wrong, provided of course, that such legislation may not disturb a vested right."40 We recognized that balancing Article V, section 86 with Article II, section 6 of the Oklahoma Constitution requires a finding that Article II, section 6 is not a limit on the Legislature's authority.41

" 20 Public protection falls within the Legislature's authority, as does the authority to define what constitutes an actionable wrong unless constitutionally forbidden, i.e., the Legislature cannot completely cut off an existing or vested right.42 The plaintiffs have no constitutionally secured right under Article II, section 6 for the court to provide a remedy, where, as here, the Legislature has explicitly refused to recognize a private cause of action, leaving the plaintiffs with no wrong recognized by law.43

B. ARTICLE II, SECTION 7 OF THE OKLAHOMA CONSTITUTION

121 In addition to relying on Article II, section 6, the plaintiffs contend that they have a vested right to due process under Article II, section 7. Article II, section 7 provides: "No person shall be deprived of life, liberty, or property, without due process of law." Section 2203(D) of the Act provides: "Participation in the assistance program shall be voluntary. No person shall be required to relocate under the provisions of this act." The plaintiffs submit, without evidentiary support, that they are being forced from their property because services are being discontinued and the area is a health hazard.44 While the cireumstances may, in the plaintiffs' minds, leave them no reasonable alternative, they are under no obligation to accept the Trust's assistance offer. This is not a case of eminent domain where the state leaves a land owner with no choice. The fact that the plaintiffs are unhappy with the Trust's offer does not mean that the State is taking their property without due process. The plaintiffs have failed to present any evi-dentiary materials showing coercive state action which would violate Article II, section 7 of the Oklahoma Constitution.45

C. ARTICLE V, SECTION 60 OF THE OKLAHOMA CONSTITUTION

1 22 Before the district court, the plaintiffs also relied on Article V, section 60 of the *191Oklahoma Constitution as requiring a judicial inquiry into how the Trust is spending the money.46 Article V, section 60 states:

"The Legislature shall provide by law for the establishment and maintenance of an efficient system of checks and balances between the officers of the Executive Department, and all commissioners and superintendents, and boards of control of State institutions, and all other officers entrusted with the collection, receipt, custody, or disbursement of the revenue or moneys of the State whatsoever." requires the Legislature to provide for an efficient system of checks and balances between the Executive Department's officers and all commissioners, superintendents, State institutions' boards of control, and all other officers entrusted with the collection, receipt, custody, or disbursement of the state revenues or moneys.

{23 In response to this mandate, the 1907-1908 Legislature defined the duties and powers of the State Examiner and Inspector 47 (now State Auditor and Inspector), and the Legislature amended the duties and powers in 1909.48 The titles to the 1907-1908 act and the 1909 - amendment stated that they were passed in compliance with what is now Article VI, section 19 of the Oklahoma Constitution, providing for a State Examiner and Inspector, and Article V, section 60. In State ex rel. Taylor v. Cockrell,49 we recognized that the 1907-1908 act and its 1909 amendment were enacted to "carry into effect the mandatory provisions of said section 60 by providing for a system of checks and balances between officers of the executive department and all other officers intrusted with the receipt, custody, or disbursement of the moneys of the state whatsoever."

{24 Like its enactment of the 1907-1908 act, the Legislature provided for a system of checks and balances for public trusts with the enactment of title 60, sections 176.1(B)(2) and 180.1 of the Oklahoma Statutes. Section 176.1(B)(2) provides that a public trust having the State as its beneficiary must deliver "to the State Auditor and Inspector, annual audits as provided in Seetion 180.1 of Title 60 of the Oklahoma Statutes." Section 180.1 requires "[the trustees of every trust created for the benefit and furtherance of any public function with the State of Oklahoma ... as beneficiary ... must cause an audit to be made of, including, but not limited to, the funds, accounts, and fiscal affairs of such trust, such audit to be ordered within thirty (30) days of the close of each fiscal year of the trust." The Legislature complied with the requirements of Article V, section 60 when it enacted title 60, sections 176.1(B)(2) and 180.1. Article V, section 60 requires a system of checks and balances within the Executive Department, which the Legislature has provided, but nothing in Article V, section 60 of the Oklahoma Constitution requires a judicial inquiry of a public trust's discretionary acts as the plaintiff argues. Title 27A, section 2205 does not implicate Article V, section 60 of the Oklahoma Constitution.

D. ARTICLE V, SECTION 46 OF THE OKLAHOMA CONSTITUTION

125 The plaintiffs argued before the district court that section 2205 violates Article V, section 46 of the Oklahoma Constitution. The provision of section 46 upon which the plaintiffs rely provides: "The Legislature shall not, except as otherwise provided in this Constitution, pass any local or special law ... [regulating the practice or jurisdiction of, or changing the rules of evidence in judicial proceedings or inquiry before the courts...." The plaintiffs argue that this provision requires that they "must have equal access to the courthouse."

*192126 Article V, section 46 is an unequivocal mandate to the Legislature.50 Under no cireumstances is the Legislature allowed to pass a special law regarding one of the subjects listed in section 46.51 The single question for testing a statute's compliance with section 46 is whether the statute is a general law or a special law.52 If it is a special law dealing with one of section 46's enumerated subjects, then it does not meet section 46's mandate and is unconstitutional.53

127 A general law relates to all persons or things of a class, and a special law relates to particular persons or particular things within a class.54 A general law operates uniformly upon all persons or things brought within the class by common cireum-stances, even though it may directly affect only a few.55 "Special laws are those which single out less than an entire class of similarly affected persons or things for different treatment." 56 The class upon which section 2205 operates is "those owning and leasing property" in an area generally known as the Tar Creek Superfund Site and, thus, are exposed to a high risk of lead exposure or to "a serious subsidence risk." 57 The Legislature's action in withholding a cause of action under the Act in section 2205 operates uniformly across the class of persons placed at health risk and property damage in the defined area. No part of the class is separated for different treatment. Because section 2205 operates uniformly on the whole class, it is a general law under Article V, section 46 of the Oklahoma Constitution.58

*193VI. TITLE 27A, SECTION 2208(M) OF THE OKLAHOMA STATUTES

1 28 We have found title 27A, section 2205 of the Oklahoma Statutes to be constitutional against the plaintiffs' challenges, but section 2205 does not ban all claims against the Trust. Section 2205 bans claims that claimants "should have received different or better treatment from the trust." 59 We find nothing in section 2205 which bars a suit seeking a declaration that title 27A, section 22083(M) is unconstitutional.60

€29 The plaintiffs attack title 27A, section 2208(M) as unconstitutionally treating those with insurance dissimilarly from those without insurance in violation of the plaintiffs' rights to equal protection and in violation of Article V, section 59 of the Oklahoma Constitution. Article V, section 59 prohibits the Legislature from enacting a special law where a general law can be made applicable. The Fourteenth Amendment to the United States Constitution prohibits states from denying "to any person within its jurisdiction the equal protection of the laws." U.S. Const. amend. XIV, § 1. Article II, section 7 of the Oklahoma Constitution is this State's counterpart.61

A, EQUAL PROTECTION

T30 Neither the Fourteenth Amendment to the United States Constitution nor Article IL, section 7 of the Oklahoma Constitution prohibits all legislative classifications.62 Rather the protections afforded by these provisions is freedom from arbitrary discrimination.63 The plaintiffs here have not alleged that they are part of an inherently suspect classification. The fundamental right that they allege has been abused by section 2203(M) is the right to due process before their property is taken. The plaintiffs do not elaborate how section 2208(M) has taken their property or what property has been taken. Having decided earlier in this opinion that plaintiffs have failed to show any state action which is a taking of their real property, we need not address the issue further. We glean from the briefs that the plaintiffs are also complaining that their property in the amount of the insurance payments was taken without due process. The plaintiffs have failed to present evidence sufficient to show that their property was taken without due process.64

YT31 Plaintiffs have failed to show that title 27A, section 2208(M) is drawn upon *194an inherently suspect classification or impinges upon the plaintiffs' fundamental rights so as to be subject to heightened review.65 Thus, the Equal Protection Clause requires only that section 2208(M)'s "classification rationally further a legitimate state interest." 66 Under the highly deferential rational-basis review, a legislative classification is constitutional if there is any conceivable set of facts which provides a rational basis for the classification.67 We do not judge the classification for wisdom, fairness, or logic.68

1382 Although not explicitly articulated, section 2208(M)'s obvious objective is to provide sufficient funds to those in the risk area, whether receiving insurance payments or not, to allow them to relocate while avoiding appraisal and reappraisal problems caused by damage or destruction to property from the tornado. Under section 2208(M), the Trust can avoid reappraising property after the tornado by allowing an insurance payment to substitute for a property's diminution in value caused by damage from the tornado, and assistance recipients should still have sufficient funds to relocate elsewhere in the county. We do not find the legislative classification is so arbitrary or lacks a sufficient relationship to this legislative purpose as to violate the Equal Protection Clause.

B. ARTICLE V, §ECTION 59 OF THE OKLAHOMA CONSTITUTION

133 Plaintiffs also attack title 27A, section 2208(M) as a violation of Article V, section 59 of the Oklahoma Constitution. Article V, section 59 provides: "Laws of a general nature shall have a uniform operation throughout the State, and where a general law can be made applicable, no special law shall be enacted." Section 59 does not prohibit all special laws but prohibits a special law only when a general law will accomplish the legislative goal. The first prong of a section 59 analysis is the same as the Article V, section 46 analysis discussed above.69 Here the plaintiffs contend that section 2208(M) is a special law in that it treats the buyout recipients receiving insurance payments differently than those not receiving payments. The plaintiffs contend that section 2208(M) is a special law. The plaintiffs end their analysis with the first prong but ignore the two additional prongs in an Article V, section 59 analysis. Even if section 2208(M) is a special law, it does not violate article V, section 59 unless it fails one of the other two prongs.

134 If the statute is a general law under the first prong, we need not proceed further with the analysis under section 59.70 However, if the statute is a special law under the first prong, the analysis proceeds to the second prong.71 The second prong inquiry is whether the legislative objective can be achieved by a general law or whether the statute addresses "a special situation possessing characteristics impossible of treatment by general law."72 In answering the second prong inquiry, we consider "the nature and objective of the legislation as well as the conditions and cireumstances under which the statute was enacted."73 The Tar Creek site is an area which puts persons living there at health and safety risks. Sec*195tion 2203(M) was enacted in the wake of the May 10, 2008 tornado. The obvious objective, as we have stated, is to allow those living in the risk area to have sufficient funds to relocate while avoiding appraisal and reappraisal problems. Here there are special cireumstances, and the plaintiffs have failed to even suggest general legislation which would accomplish section 2208(M)'s goal.

135 Under the third prong, we must determine if the statute is reasonably and substantially related to a valid legislative objective.74 'We addressed this in paragraph 82 and found that title 27A, section 2208(M) is reasonably and substantially related to a valid legislative objective; ie, land owners within the risk area are eligible to receive at least the comparable value of their property before the tornado damage if insurance payments from the tornado are taken into consideration. We find that the special situation of those landowners and lessors in this high risk area along with the damage from the tornado does not allow for a general law to be enacted to address the situation. The plaintiffs have failed to show that section 2203(M) violates Article V, section 59 of the Oklahoma Constitution.

VII. THE OPEN MEETING ACT

T36 Title 27A, section 2203(J) makes the Trust subject to the provisions of the Open Meeting Act. The plaintiffs complain that the Trust has violated the Open Meeting Act75 by allowing J.D. Strong and the appraisal companies' representatives to attend the Trust's executive sessions.76

187 The current Open Meeting Act was enacted in 1977,77 with the stated public policy of encouraging and facilitating "an informed citizenry's understanding of the governmental processes and governmental problems." 78 Because it was enacted for the public's benefit, the Open Meeting Act "is to be construed liberally in favor of the public." 79

{38 Section 303 of the Oklahoma Open Meeting Act80 states the general rule that "[Inlo public body shall hold executive sessions unless otherwise specifically provided." (Emphasis added.) The Open Meeting Act at section 807(B)(8) provides an exception to this general rule by allowing executive sessions for the purpose of purchasing or appraising real property. Section 807(D) of the Open Meeting Act, the provision at issue here, sets out the restrictions placed on executive sessions held for the purpose of purchasing or appraising real property. Section 307(D) provides:

An executive session for the purpose of discussing the purchase or appraisal of real property shall be limited to members of the public body, the attorney for the public body, and the immediate staff of the public body. No landowner, real estate salesperson, broker, developer, or any other person who may profit directly or indirectly by a proposed transaction concerning real property which is under consideration may be present or participate in the executive session.

(Emphasis added.)

139 The plaintiffs contend that the first sentence of section 307(D) defines the outer limits of the persons who may attend an executive session and the second sentence places a further limitation on those persons named in the first sentence. In other words, if a member of the public body, its attorney, or its immediate staff may profit from the proposed transaction, then they must be excluded from the executive session. The Trust takes the position that the second sentence is expansive in that all those named in the first sentence may attend the executive session and anyone else who does not stand *196to profit from the executive session may also attend.81

140 Section 807(D) uses the phrase "shall be limited." Here, we deem "shall" as mandatory,82 meaning anyone not listed is excluded from the executive session. Further, by listing those who may attend the executive session, the Legislature must have intended to exclude everyone not listed.83 Section 807(D)'s clear language is an expression of legislative intent that no one other than those enumerated are allowed to attend the executive sessions wherein the appraisal or the purchase of real property is discussed.

T41 Section 807(D)'s second sentence excludes any landowner, real estate salesperson, broker, developer, or any other person who may profit from the purchase or appraisal of the real property under discussion. As we construe section 307(D), any person allowed to attend the executive session in the first sentence is excluded if the person stands to profit from the transaction. This is the only plausible construction of section 307(D), and the only construction which honors both sentences of section 807(D). The Trust's position would make unnecessary seetion 307(D)'s first sentence because, under its position, anyone not standing to profit from the proposed transaction could attend the executive session. We cannot acquiesce in the Trust's construction of section 807(D). "A statute must be read to render every part operative and to avoid rendering parts thereof superfluous or useless." 84

142 Section 807(D) does not include J.D. Strong, who is the Secretary of the Environment, and the appraisers as persons who are allowed to attend the Trust's executive sessions. A secretary in a governor's cabinet is appointed by the Governor with the advice and consent of the state senate.85 The duties of a secretary over a cabinet area are to (1) "[aldvise the Governor of any policy changes or problems within the area they represent;" (2) "[aldvise the entities represented of any policy changes or problems as directed by the Governor; and" (3) "[eloordinate information gathering for the Legislature as requested."86 Although Executive Order 2007-07 states that "[the See-retary of the Environment shall be responsible for the ... Lead-Impacted Communities Relocation Assistance Trust" this does not mean that he is responsible for the Trust's operation. Rather, he is a liaison between for the Governor and the Trust.87 When *197attending the Trust's meetings in his capacity as the Secretary of the Environment, he is there on behalf of the Governor. Section 808 of the Open Meeting Act specifically requires: "Any meeting between the Governor and a majority of the members of any public body shall be open to the public and subject to all other provisions of this act." Section 308 cannot be avoided by having the Governor's representative attend an executive session. To so allow would gut section 808 of any real force. We conclude that the Trust has violated the Open Meeting Act by allowing persons not authorized under title 25, section 307(D) to attend its executive sessions wherein the appraisal and purchase of real property are discussed.

143 The district court incorrectly found that the Trust had not violated the provisions of the Open Meeting Act. Therefore, it did not address whether the violations were willful such that the minutes and records of the executive sessions should be immediately made public under title 25, section 807(F)(2). Thus, the question of the Trust's willfuiness is a determination for the district court on remand.

VIII, SUMMARY

1 44 The plaintiffs have failed to show that title 27A, sections 2208(M) and 2205 are unconstitutional. We agree with the plaintiffs that the Trust has violated the Open Meeting Act, specifically section 807(D), by allowing the Secretary of the Emvironment and the appraisers' representatives to attend its executive sessions held for the purpose of discussing appraisals and purchases of real property. The plaintiffs have also asked for access to the executive session records. Access to the records is allowed under title 25, section 307(F)(2) if the Trust's violation of the Open Meeting Act are willful. This is a question for the district court on remand.

145 Even though we disagree with the district court's decision that the State invoked its sovereign immunity in title 27A, section 2205, we find that the Trust is entitled to judgment on the issues of the constitutionality of title 27A, sections 2203(M) and 2205.88 The case is remanded to the district court for further proceedings consistent with this opinion.

AFFIRMED IN PART; REVERSED IN PART; REMANDED TO THE DISTRICT COURT WITH INSTRUCTIONS.

concurring in part and dissenting in part.

1 1 I respectfully dissent to section VII of the majority opinion, regarding the Open Meetings Act. J.D. Strong, in his capacity as Secretary of the Environment for the State of Oklahoma, was responsible for the oversight of the Lead-Impacted Communities Relocation Assistance Trust. The district court determined it was within the sound discretion of the members of the Trust to allow Mr. Strong's presence at an executive session. The court cited 1976 OK AG 834 to support the court's decision. The court quoted a portion of the Attorney General's opinion as it made this observation:

"[The opinion offers good advice to any entity seeking to allow someone into an executive session for whatever purpose where it states ... 'and the decision as to who should be present is within the sound discretion of the board exercised in a reasonable manner based on the facts and ctrewmstamnces in each instance"" [Emphasis added by district court.]

4 2 The district court used the same analysis as that quoted above to find that it was within the sound discretion of the Trustees to invite Cinnabar and Van Tuyl and Associates to attend executive sessions. The representatives of the appraisal companies contracted with the Trust to provide services on behalf *198of the Trust in furtherance of the Trust's duties and may be considered staff, The court found that the presence of these people did not violate the prohibitions found in 25 0.8. § 307(D) 1

13 The Attorney General opinion quoted by the district court has been relied on since 1976, and while the Supreme Court of Oklahoma is not bound by the Attorney General's opinion on questions of law, the Attorney General serves as legal advisor to state agencies. In Globe Life and Accident Ins. Co. v. Oklahoma Tax Com'n, 1992 OK 65, 18, 831 P.2d 649, 650, the Court observed:

"This Court decided the issue of whether an agency was bound by the opinion of the Attorney General in Branch In Branch, this Court stated: 'The Attorney General is the "chief law officer" of Oklahoma. Since 1919, the Attorney General's opinions have been binding on state officials unless the opinion is inconsistent with a final determination of a court of competent jurisdiction." [Branch Trucking Co. v. Oklahoma Tax Comm'n, 1990 OK 41, ¶ 10, 801 P.2d 686, 690]

14 Given well-established law that A.G. opinions are binding on state officials, I conclude that the general statement in a 1976 A.G. opinion, quoted above by the district court, regarding using sound discretion concerning who may be admitted to an executive session was binding on the Trust officials. Distinguishing that opinion by noting it regarded the rehiring of school personnel does nothing to limit the generalization made by the Attorney General. Is there some reason a school board can use sound discretion in an executive session, but the Trust cannot? I conclude the Trust properly relied on that A.G. opinion. Where the appellate courts have not spoken, relying on the Attorney General's office, who serves as the attorney for state officials, is reasonable.

T5 If this Court now wishes to find differently, it should not retroactively apply its opinion. - Certainly the legislature would have acted to change the law if state officials subject to the Open Meetings Act had been abusing the law by relying on this A.G. opinion. But this Court now finds a violation. The penalty for willful violation of the Open Meetings Act is criminal in nature, a misdemeanor, carrying a penalty of a fine not exceeding $500.00, and/or imprisonment in the county jail not exceeding one year. 25 0.9$.2001, § 314. This Court has previously held: "Wilfulness does not require a showing of bad faith, malice, or wantonness, but rather, encompasses conscious, purposeful violations of the law or blatant or deliberate disregard of the law by those who know, or should know the requirements of the Act." Rogers v. Excise Bd. of Greer County, 1984 OK. 95, 1 14, 701 P.2d 754, 761. The Court of Criminal Appeals has held regarding the misdemeanor penalty:

"The third allegation is that there was no proof of eriminal intent. However, the record discloses that the failure to comply with the Open Meeting Act was a willful violation. Beyond that, the criminal intent needs not be proven since this was a crime classified as in malum prohibitum."

Hilliary v. State, 1981 OK CR 78, ¶ 5, 630 P.2d 791, 798.

T6 The opinion of this Court puts the Trust in an impossible position. Previous opinions of the Court entitle the Trust to rely on opinions of the Attorney General; in fact, they must follow those opinions unless this Court has effectively overruled them. Now, the majority opinion orders the district court to determine the Trust's willfulness in what the Court has found to be a violation. A determination of a willful violation subjects the members of the Trust to possible criminal prosecution. Public officials should not face this type of dilemma in trying to perform their duties for the citizens of Oklahoma.

I 7 Accordingly, I dissent to this section of the majority opinion.