ÿWPCN … %V 0(\<„4ÀÔ 0lã 0DO“UF›w@á 0J! 0Tk 0^¿ 0h 0r… 0|÷ 0†s 0ù 1u‰ U,þ 0d* U,Ž U6º B)ð DC AM\U*©&Ó Bù D3ÏIv~ 0@–vÓÖ AO©Æø 0D¾ D/ B1 X($¡¡C:\WPWIN60\TEMPLATE\BRIEF.WPTnnG 3|x¶((3úÝ$¤¤Ý ƒ!ÝÝ  Ýà  àòòÚ  Ú0Ú  Úóó(#Ã$òòÚ  Ú0Ú  Úóó<4šÛ 9Z ‹.Courier New Regular ¤¥E¦§¨D©eªe«¬Ó€¶2 ÿÿ0Indent1Ô2ÔÔ3  Ô2" ÿÿ0Indent2à0 àÔ2ÔÔ3  Ô2, ÿÿ0Indent3à0 àà0 àÔ2ÔÔ3  Ô26 ÿÿ0Indent4à0 àà0 àà0 àÔ2ÔÔ3  Ô2@ ÿÿ0Indent5à0 àà0 àà0 àà0 àÔ2ÔÔ3  Ô2J ÿÿ0Indent6à0 àà0 àà0 àà0 àà0 àÔ2ÔÔ3  Ô2T ÿÿ0Indent7à0 àà0 àà0 àà0 àà0 àà0 àÔ2ÔÔ3  Ô2^ ÿÿ0Indent8à0 àà0 àà0 àà0 àà0 àà0 àà0 àÔ2ÔÔ3  Ô ÿÿ?AGMSYaioIndent0I.A.1.a.(1)(a)i)a)< Œ 9p`(ModernP ÿÿ8Mac DefaultMac DefaultÓ ` °šXÓ< Œ 9p`(Monaco< Œ 9p`(Courier New% Line 7 d$$$$7Border 1dd€-%Cþÿ << Gÿÿ< Œ 9p`(Arial Ý ƒ!ÝÑ  ÑÑ#€d#ÑÔ€ÔÔ€#ÔÝ  ÝÔ€'ÔÔ€'ÔÓ  Óò òÔ YYY ÔFILEDÔ€'XÔÌÌFebruary€28,€1996ÌÌCecil€W.€CrowsonÌAppellate€Court€ClerkÔ  Ôó ó d))))'ÿÿdxd ÅÝ ƒ!ÝÑ#€d#ÑÔ€ÔÔ€#ÔÝ  ÝÝ ƒ$Ýà àòòÚ  ÚÚ  ÚóóÝ  Ý€€Since€appellees€filed€their€complaint,€several€parties€haveÏeither€lost€or€failed€to€renew€their€licenses.€€Tom€Nichols,ÏTammie€Beasley,€and€Roxanne€Luce€are€no€longer€party€appellees.€ÏFurther,€Robert€Beanððs€and€David€Autryððs€commercial€propagatorÏpermits€expired€in€June€1992.ÌPtPtHHÚ(ÿáÿâùFG(üHHÚ(d'@("ÿÿ$££Ò  ÒÒ  ÒStyl{WP}01•ÃÃÃÃÃÃÃÃÃÃÃÃÃÃÃÃÃÃà Ãà Ãà Ãà Ãà ÃÃÃÃÃÃÃÃÃÃÃÐ ÐÐHHÐÐ  ÐÐ2ÐÐÿÿ¸æ$ÿÐÐHHÐÐÐÐÐÐÐÐ  ÐÐ ÐÐ ÐÑÑÑGenevaÑÑ ÑÑ € ÑÑ<Px–ÈÑÒÒÒ443!#4ÒÒ$ *$ÒÒ$*$ÒÒ ÿKK ÒÒ  Geneva ÒÒ  Geneva ÒÓ.,ÓÓÓÓ6ÓÓ ÓßßßßßßßßßßßßßßßßßßÑMonacoÑÑ ÑÒ  BA: T Monaco ÒÒ  BA: T Monaco Ò€-‚ƒCþÿ<< CÿÿƒLevel 1Level 2Level 3Level 4Level 5($$””ò òÚ  Ú1Ú  Úó ó„„'÷ÿ dxdüÿP PdÝ ƒ!ÝÔ . ÔÔ€ÔÓ&€""X„d&ÓÑ#€""Xd#ÑÔ€#ÔÝ  ÝÑ\R AØ'\Ñ›Ñ7€OXXdÖdÈ7ÑÑ  ÑœRobert›€Bean,€Franklin€Shaffer,à à)ÌDavid€Autry,€Mack€Roberts,€Kevinà à)à àÌAntle,€Tom€Nichols,€Tammie€Beasley,)Ìand€Roxanne€Luce,à àà àà àà à)à àAppeal€No.Ìà àPlaintiffs/Appellees,à àà à)à à01„A„01„9510„CH„€00431Ìà àà àà àà àà àà àà à)Ìv.à àà àà àà àà àà àà à)€Ìà àà àà àà àà àà àà à)ÌNed€Ray€McWherter,€in€his€capacityà à)Ìas€Governor€of€the€State€ofà àà à)à àChancery€Court€No.ÌTennessee,€Charles€W.€Burson,à àà à)à à91„2558„IÌAttorney€General€of€the€Sate€ofà à)€ÌÙ€€ÙœßL€&(%;+'h|äþ` ç `€€Lß›Tennessee,€Tennessee€Wildlifeà àà à)€ÌResources€Commission,€and€Gary€à à)ÌMyers,€Director€of€the€Wildlifeà à)ÌResources€Agency,à àà àà àà à)Ìà àDefendants/Appellants.à àà à)ÌÌÌÔ€#¼ÔÌÌÌà@ àCOURT€OF€APPEALS€OF€TENNESSEEÌÌà@ àMIDDLE€SECTION€AT€NASHVILLEÌÌà@ àAPPEAL€FROM€CHANCERY€COURT,€PART€ONEÌÌà@ àAT€NASHVILLE,€TENNESSEEÌÌà@ àTHE€HONORABLE€IRVIN€H.€KILCREASE,€JR.,€CHANCELLORÔ€#XÔÌÌÌÌÌÌÌELIZABETH€P.€McCARTERÌSenior€CounselÌOffice€of€the€Attorney€GeneralÌ450€James€Robertson€ParkwayÌNashville,€Tennessee€37243„0495Ìà àATTORNEY€FOR€DEFENDANTS/APPELLANTSÌÌF.€CLAY€BAILEY,€JR.ÌTune,€Entrekin€&€WhiteÌ315€Deaderick€StreetÌ21st€Floor,€First€American€CenterÌNashville,€Tennessee€37238Ìà àATTORNEY€FOR€PLAINTIFFS/APPELLEESÌÌÌÌà@ àAFFIRMED€AND€REMANDEDÌÌÌÌà àà àà àà àà àà àà àà àSAMUEL€L.€LEWIS,€JUDGEÌÌÇà@ àòòÔ€#¼ÔOPINIONóóÔ€#XÔÌÌÓÓà àDefendants/appellants€appeal€from€the€chancery€courtsððÏdecision€overruling€appellantsðð€motion€for€summary€judgment€andÏholding€that€Tennessee€Code€Annotated€section€70„4„403(1),€(3)Ïunlawfully€delegates€legislative€authority€to€appellants,€theÏTennessee€Wildlife€Resources€Commission€(ð ðTWRCðð)€and€theÏCommissioner€of€Agriculture€(ð ðCommissionerðð).Ìà àÌà àThis€action€began€on€7€August€1991€when€plaintiffs/appelleesÏfiled€a€complaint€and€application€for€declaratory€judgment€in€theÏDavidson€County€Chancery€Court.€€On€19€August€1991,€the€courtÏentered€an€order€denying€appelleesðð€request€for€a€temporaryÏrestraining€order€and€request€to€take€an€interlocutory€appeal.€ÏThe€court€also€found€that€appellees€had€not€exhausted€theirÏadministrative€remedies€and€reserved€appelleesðð€claims€pendingÏexhaustion€of€those€remedies.€€On€13€January€1992,€appellees€filedÏan€amended€complaint.€€The€amended€complaint€added€appellants€NedÏRay€McWherter,€Charles€W.€Burson,€and€TWRC€and€deleted€appellantÏTennessee€Wildlife€Resource€Agency€(ð ðTWRAðð).€€After€severalÏprocedural€maneuvers€by€both€parties,€appellees€amended€theirÏcomplaint€a€third€and€a€fourth€time.ÌÌà àThe€complaint,€as€amended,€alleged€that€Tennessee€CodeÏAnnotated€sections€70„4„401€to€„417€violated€the€TennesseeÏConstitution.€€One€of€their€constitutional€claims€was€that€theÏGeneral€Assembly€had€unlawfully€delegated€legislative€authority€toÍTWRC€and€the€Commissioner€by€enacting€Tennessee€Code€AnnotatedÏsection€70„4„403(1),€(3).€€This€section€provides,€in€pertinentÏpart,€as€follows:ÌÓÓà8 àò ò70„4„403.€€Classifications€of€wildlife.€€„€ó óLiveÏwildlife,€kept€and€maintained€for€any€purpose,€shall€beÏclassified€in€the€following€five€(5)€classes:Ìà8 à€€(1)€Class€I€„€This€class€shall€include€all€speciesÏinherently€dangerous€to€humans.€€These€species€may€onlyÏbe€possessed€by€zoos,€circuses€and€commercialÏpropagators,€except€as€otherwise€provided€in€this€part.€ÏThe€following€is€a€listing€of€animals€consideredÏinherently€dangerous€.€.€.€.€Ìà8 à€€.€.€.€.Ìà8 à€€The€commission,€in€conjunction€with€the€commissionerÏof€agriculture,€may€add€or€delete€species€from€the€listÏof€Class€I€wildlife€by€promulgating€rules€andÏregulations.Ìà8 à€€.€.€.€.Ìà8 à€€(3)€Class€III€„€This€class€shall€require€no€permitsÏexcept€those€required€by€the€department€of€agriculture,Ïand€shall€include€all€species€not€listed€in€otherÏclasses€and€shall€include,€but€is€not€limited€to,€thoseÏlisted€in€subdivisions€(3)(A)„(Q).€€The€commission,€inÏconjunction€with€the€commissioner€of€agriculture,€mayÏadd€or€delete€species€from€the€list€of€Class€IIIÏwildlife€by€promulgating€rules€and€regulations€.€.€.€.€€ò òÌÌÓÓó óTenn.€Code€Ann.€ðð70„4„403(1),€(3)€(Supp.€1994).€€The€appelleesÏalso€alleged€that€they€were€all€owners€of€one€or€more€of€theÏanimals€regulated€by€the€statute€and€that€each€appellee€wouldÏsuffer€irreparable€injury€if€the€law€and€the€rules€and€regulationsÏpromulgated€pursuant€to€that€law€were€enforced.× ƒ+ ××  ×ÌÌà àOn€31€January€1994,€appellants€filed€a€motion€for€summaryÍjudgment.€€After€a€hearing,€the€court€entered€a€memorandum€opinionÏon€19€July€1995.€€The€court€overruled€defendantsðð€motion€forÏsummary€judgment€and€held€that€the€statute€unlawfully€delegatedÏlegislative€authority€to€TWRC€and€the€Commissioner.€€The€courtÏfound€that€ð ðthe€legislature€did€not€provide€the€agencies€with€anyÏstandards€by€which€they€were€to€proceed€in€deleting€or€addingÏspecies€under€Class€I€and€Class€III.ðð€€On€26€July€1995,€the€courtÏentered€an€order€denying€defendantsðð€motion€for€summary€judgmentÏand€a€final€judgment€pursuant€to€Rule€54.02€of€the€Tennessee€RulesÏof€Civil€Procedure.€€ÌÌà àDefendants€filed€their€notice€of€appeal€on€22€August€1995.€ÏAlthough€the€chancery€court€denied€appellantsðð€motion€as€to€all€ofÏthe€constitutional€claims€made€by€appellees,€appellants€onlyÏappealed€the€unlawful€delegation€portion€of€the€chancery€courtððsÏdecision.€€They€presented€the€following€issue€for€our€review:€€ÌÓÓà8 àWhether€the€trial€court€erred€in€holding€that€ChapterÏ487€of€the€Public€Acts€of€1991€provides€for€anÏunconstitutional€delegation€of€legislative€power€to€theÏTennessee€Wildlife€Resources€Commission€and€theÏCommissioner€of€Agriculture€in€permitting€them,€throughÏthe€promulgation€of€rules,€to€add€to,€or€delete€from,Ïthe€wildlife€lists€in€Classes€I€and€III,€as€set€out€inÏTenn.€Code€Ann.€ðððð€70„4„403(1)€and€(3).ÌÓÓÌà àÌà àð ðThe€legislature€may€create€laws€which€delegate€toÏadministrative€bodies€the€power€to€promulgate€rules€andÏregulations€to€carry€out€the€law.ðð€€òòò òEstrin€v.€Mossóóó ó,€221€Tenn.Ï657,€674,€430€S.W.2d€345,€352€(1968),€òòappeal€dismissedóó,€393€U.S.Í318,€89€S.€Ct.€554,€21€L.€Ed.€2d€513€(1969).€€The€enabling€statuteÏat€issue€expressly€provides€that€TWRC€and€the€Commissioner€may€addÏor€delete€species€from€the€lists€of€Class€I€and€Class€III€wildlifeÏby€promulgating€rules€and€regulations.€€Tenn.€Code€Ann.€ðð70„4„403(1),€(3)€(Supp.€1994).€€The€General€Assemblyððs€power€toÏdelegate,€however,€is€not€without€restrictions.€€The€TennesseeÏSupreme€Court€has€stated€as€follows:ÌÓÓà8 àà à€A€concise€and€accurate€test€to€be€used€inÏdetermining€whether€or€not€a€grant€of€power€to€anÏadministrative€body€constitutes€an€unlawful€delegationÏof€legislative€power€is:ÌÌà8 àà8 àð ðThe€true€distinction€is€between€theÏdelegation€of€power€to€make€the€law,€whichÏnecessarily€involves€a€discretion€as€to€whatÏit€shall€be,€and€conferring€an€authority€orÏdiscretion€as€to€its€execution,€to€beÏexercised€under€and€in€pursuance€of€the€law;€*Ï*€*€it€is€only€necessary€that€the€statuteÏestablish€a€sufficient€basic€standard,€aÏdefinite€and€certain€policy€and€rule€of€actionÏfor€the€guidance€of€the€instrumentality€thatÏis€to€administer€the€law,€*€*€*ðð€16€C.J.S.ÏConstitutional€Law€sec.€133,€pages€560„561.ÌÌÓÓòòò òLobelville€Special€School€Dist.€v.€McCanlessóóó ó,€214€Tenn.€460,Ï463„64,€381€S.W.2d€273,€274€(1964).€€Therefore,€the€determinativeÏissue€in€this€case€is€whether€the€enabling€statute€provided€theÏentities€administering€the€law,€TWRC€and€the€Commissioner,€withÏthe€necessary€standards.ÌÌà àIn€a€1954€case,€the€supreme€court€upheld€an€enabling€statuteÏthat€authorized€the€Department€of€Public€Welfare€to€license€andÏregulate€child€welfare€agencies.€€òòò òDepartment€of€Pub.€WelfareÏv.€National€Help€ððUðð€Assððnóóó ó,€197€Tenn.€8,€13„14,€270€S.W.2d€337,Í339€(1954).€€The€enabling€statute€required€the€department€toÏdevelop€and€publish€standards€to€use€when€licensing€child€welfareÏagencies.€€The€General€Assembly€laid€out€six€factors€for€theÏdepartment€to€follow€when€developing€these€standards.€€òòò òId.óóó ó€at€338.€ÏAfter€reviewing€the€standards,€the€supreme€court€stated€asÏfollows:€ð ðSuch€standards€are€definite€and€clear,€though€they€leaveÏthe€details€of€the€requisites€for€the€issuance€of€license€to€theÏdiscretion€of€the€department.€€These€details€clearly€areÏministerial€matters€and€may€properly€be€delegated.ðð€€òòò òId.óóó ó€at€339.ÌÌà àIn€a€later€case,€the€supreme€court€addressed€theÏconstitutionality€of€an€enabling€statute€that€granted€the€StateÏBoard€of€Education€the€authority€to€develop€requirements€forÏreactivating€special€school€districts.€€òòò òLobelvilleóóó ó,€381€S.W.2d€atÏ274.€€The€enabling€statute€stated€as€follows:ÌÓÓà8 àððIn€establishing€such€standards,€the€state€board€ofÏeducation€is€authorized€and€directed€to€take€intoÏconsideration€such€factors€as€(1)€the€scholasticÏpopulation€of€such€city€or€special€school€districtÏaccording€to€the€most€recent€census,€(2)€the€financialÏability€per€pupil€of€scholastic€population,€and€(3)€theÏexpressed€willingness€of€the€people€of€such€city€orÏspecial€school€district,€as€indicated€by€a€majority€ofÏits€legal€voters€in€a€referendum,€to€raise€local€fundsÏwhich,€together€with€school€funds€received€from€theÏstate€and€other€sources,€shall€be€sufficient€to€provideÏadequate€educational€opportunities€for€their€children.ððÌÌÓÓòòò òId.óóó ó€(quoting€Tenn.€Code€Ann.€ðð49„233).€€The€supreme€courtÏdetermined€that€these€factors€were€sufficient€and€held€that€thereÏwas€not€an€unlawful€delegation€of€legislative€authority.ÌÌà àAppellantsðð€rely€heavily€on€the€case€of€òòò òTasco€DevelopingÏand€Building€Company€v.€Longóóó ó,€212€Tenn.€96,€368€S.W.2d€65Ï(1963),€for€the€proposition€that€a€broad€delegation€ofÏdiscretionary€authority€to€an€administrative€body€does€notÏcontravene€the€constitution.€€A€close€reading€of€this€case,Ïhowever,€reveals€that€it€involved€a€different€issue.€€Although€theÏòòò òTascoóóó ó€court€discussed€delegation€of€legislative€authority,€theÏonly€issue€before€it€was€whether€the€board€overstepped€itsÏauthority,€not€whether€the€enabling€statute€unlawfully€delegatedÏlegislative€powers.€€òòò òId.óóó ó€at€66.ÌÌà àTurning€to€the€instant€case,€it€is€the€opinion€of€this€courtÏthat€the€General€Assembly€failed€to€set€forth€the€standardsÏnecessary€to€guide€TWRC€and€the€Commissioner€in€its€enforcementÏand€application€of€the€law.€€The€only€guidance€provided€by€theÏstatute€in€regard€to€Class€I€is€the€statement€that€Class€IÏincludes€ð ðspecies€inherently€dangerous€to€humansðð€and€a€list€ofÏanimals€ð ðconsidered€inherently€dangerous.ðð€€Tenn.€Code€Ann.€ðð70„4„403(1)€(Supp.€1994).€€The€list,€however,€is€of€little€valueÏconsidering€it€could€include€everything€from€poisonous€frogs€toÏelephants.€€As€to€Class€III,€the€statute€provides€that€it€includesÏð ðall€species€not€listed€in€other€classes.ðð€€òòò òId.€ó óóóðð70„4„403(3).€ÏSubsection€three€also€includes€a€list€of€animals€which€Class€IIIÏð ðshall€include,€but€is€not€limited€to.ðð€€òòò òId.óóó ó€€These€standards€failÏto€provide€ð ða€definite€and€certain€policy€and€rule€of€action€forÏthe€guidanceðð€of€TWRC€and€the€Commissioner.€€òòò òLobelvilleóóó ó,€381ÍS.W.2d€at€274.ÌÌà àNot€only€do€these€standards€provide€little,€if€any,€guidance,Ïbut€the€powers€granted€TWRC€and€the€Commissioner€coupled€withÏthese€pseudo€standards€give€the€administrative€bodies€the€power€toÏamend€the€laws.€€To€explain,€they€have€the€power€to€delete€anyÏspecies€from€either€list€even€though€the€General€Assembly€has€seenÏfit€to€include€that€species€in€the€list.€€In€other€words,€theÏbodies€can€amend€the€law€as€enacted€by€the€General€Assembly.€ÏUsing€the€test€set€forth€in€òòò òLobelvilleóóó ó,€this€statute€gives€TWRCÏand€the€Commissioner€the€discretion€to€determine€what€the€lawÏshall€be€as€opposed€to€discretion€as€to€the€lawððs€execution.€ÏWhile€the€latter€is€permissible,€the€former€is€unlawful.€€òòò òId.ó óóóÌÌà àFor€the€foregoing€reasons,€it€is€the€opinion€of€this€courtÏthat€the€chancellor€correctly€determined€that€Tennessee€CodeÏAnnotated€section€70„4„403(1),€(3)€unlawfully€delegatesÏlegislative€authority€to€TWRC€and€the€Commissioner€of€Agriculture.€ÏThe€decision€of€the€chancellor€is€affirmed,€and€the€case€isÏremanded€for€any€further€necessary€proceeding.€€Costs€of€appealÏare€taxed€to€defendants/appellants,€Ned€Ray€McWherter,€in€hisÏcapacity€as€Governor€of€the€State€of€Tennessee;€Charles€W.€Burson,ÏAttorney€General€of€the€œState›€of€Tennessee;€Tennessee€WildlifeÏResources€Commission;€and€Gary€Myers,€Director€of€the€WildlifeÏResources€Agency.ÌÌÓÓà àà àà àà àà àà àà à______________________________Ìà àà àà àà àà àà àà àSAMUEL€L.€LEWIS,€JUDGEÌÌCONCUR:ÌÌÌ____________________________________ÌHENRY€F.€TODD,€P.J.,€M.S.ÌÌÌÌ____________________________________ÌBEN€H.€CANTRELL,€J.