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ATLANTA -- Developer Dan O'Leary's uphill battle to build a $1 billion gambling complex just got steeper.

Georgia Lottery Board Chairman James Braswell said he considers O'Leary's proposal a "public policy decision" and won't consider it until Gov. Nathan Deal and other elected officials signal their support.

The remarks came after O'Leary presented his idea for a complex in Norcross featuring 7,500 video lottery terminals as a "silver bullet" that would fund the HOPE scholarship program and create 2,500 jobs.

He said it could generate $350 million each year for the HOPE scholarship program but it needs the board's approval first.

But Braswell said the seven-member board won't consider it without support from elected officials. Deal has said he opposes the expansion of gambling and legislative efforts backing the project have stalled.