ÿWPCÝ ÍbÉ£™ïÛ‰`}ÌÖ+o&Z¸æôFó5Ÿ^Ñ[m4–ÒP¡ÁsL`H@{s–Û^äA„MÕ…݉2P×ÇÙxýH]ძ¤Q›©ÛÒˆè†A˜i¸ó¸@壠ÎÖu0Â1©à kRºÚ”Ï8¸9Û¦fM=‚ÉÚh"š-c껕u±„sÖäÙØ›Ä.2õèNñ›; ^r€"Ôm(ÑsÐp VÎÐÐ8Ò„LB~ʈ}ò±“U³S~YƒËá¡ yt®&F½Á1gE´@’8ƒ“Göt´ÛkNW?¨é‚UºWªë ;Åt«)ܓөþGš{ë€ ¿3VùaoÌc‰0óC`8ëe’qhCVAü”ˆþuU¥Úƒ—ÞÇZfu2Zѽ¾/óêÒÑlܘ.¢ÅozB’z„§¢­6p‹I±ºÏº+Ǽ(Žxx_‘-»ôÊ}¦÷PÙ'êÌqs3Ⱦ”½ xr‹˜(™¹L<«Y¸—9o‘8ç¬KHöÕ«éd="‹-þë ß%!j!aÄ‘çknò:7(k‹¨ï¡ Œï9D%\apЫòŒÚt%+€Èn°üµR¾Çµ%“'EÜÊXŒ#ÆDÖLä ¢¸[agd#!xU N™ %ç 04í 0³! bÔ wÜ 4à ô  † N‘ ^ “ Ÿ m¡ 1¸ 0Dééé-!5U:VVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVV 0P D5àà B AQ2ƃ 0PI 0D™˜HP LaserJet 8000 DN PSØÚØÚÚØØÚ0'í€"  Z 6Times New Roman Regular¼( ¤U$¡¡Ó  Ó(c(2A$¤¤Ý ƒ¤U!ÝÓ  ÓÝ  ÝÒ°ÒÒX°ÒÔ€XÕRX»¼Ôà ` àòòÚ  Ú0Ú  Úóó- ù-{Z='3|xdishmon v. shelby state - opinion Î  ' IB011C20IB011C2 .   ŠO'L ÿU‹ÿÀÀÀ 'Ý ƒ•$ÝÓ  ÓÒ°ÒÒX°ÒÔ€X’X»¼Ôà ` àòòÚ  Ú1Ú  ÚóóÝ  ÝÔ_ÔIn€a€brief€submitted€to€the€administrative€law€judge,€Mr.€Dishmon€described€his€position€atÐ ° ÐShelby€State€as€follows:Ð  ð ÐÌà8 ` à[Dishmon]€served€at€the€pleasure€of€the€President€of€Shelby€State€CommunityÐ €Ð ÐCollege€and€it€was€incumbent€upon€him€by€the€terms€of€his€contract€to€faithfullyÐ pÀ Ðperform€the€duties€assigned€to€him€by€the€President€to€the€best€of€his€ability.€Ð ` ° Ð[Dishmon]€acted€as€an€agent€for€the€President€in€carrying€out€what€were€perceivedÐ P   Ðby€[Dishmon]€as€lawful€acts€within€the€discretionary€powers€of€a€college€president.(#Ã$òòÚ  Ú0Ú  Úóó  Ý ƒb¾¸"ÝÓ  ÓÝ  ÝÔ_ÔÔ€¼ׄ»»¼ÔÔ€Ϋ»¼ׄÔÓ  Óò òÔ Ad ÔFILEDÔ€X~\ XΫÔÐ  ÐÌOctober€15,€1999ÌÌCecil€Crowson,€Jr.ÌAppellate€Court€ClerkÔdA„Ôó ó,O²ÀAZ‹"Arial Regular((3¾¸$££Ý ƒ¤U!ÝÓ  ÓÝ  Ý]]]])ÿÿ!dxdx dabZc[Cþÿ<<CÿÿƒLevel 1Level 2Level 3Level 4Level 5((3¾¸$¢¢Ý ƒ¤U!ÝÓ  ÓÝ  Ý($$””ò òÚ  Ú1Ú  Úó óÝ ƒ¤U!ÝÓ  ÓÝ  ÝÔ_ÔÑ„°ÑÒ°ÒÒX°ÒÑTR[° AØ'ÿ Legal3Ø' AØ'ÿ Legalÿ3Ø'TÑÑ€ÑÑ8€ Ðfunding€for€additional€faculty€and€operating€expenses.€€The€Board€of€RegentsÐ ¨9ø4@ Ðquestioned€Shelby€Stateððs€enrollment€figures€and€decided€to€audit€student€enrollment,Ð ° Ðfinancial€aid,€and€student€records€during€the€fall€1991€semester.€€That€auditÐ T¤ Ðuncovered,€among€other€things,€violations€of€the€Board€of€Regentsðð€and€ShelbyÐ øH ÐStateððs€guidelines€and€policies€governing€the€payment€of€fees,€the€awarding€ofÐ œ ì Ðfinancial€aid,€the€granting€of€scholarships€and€emergency€loans,€and€irregularities€inÐ @  Ðstudent€admissions€and€student€records.€€The€results€of€this€audit€triggered€anotherÐ ä 4  Ðaudit€by€the€Comptroller€of€the€Treasury€uncovering€additional€problems€regardingÐ ˆØ  Ðunfunded€grants,€uncollected€debts€from€students,€and€liabilities€to€the€United€StatesÐ ,|  ÐDepartment€of€Education.Ð Ð  ÐÌà ` àMr.€Dishmon,€as€Dean€of€Student€Affairs,€was€responsible€for€several€of€theÐ h Ðareas€criticized€by€the€audit.€€Accordingly,€on€July€24,€1992,€Shelby€Stateððs€presidentÐ ¼  Ðterminated€Mr.€Dishmon€for€poor€performance.€€In€his€letter€notifying€Mr.€DishmonÐ `° Ðof€his€decision,€the€president€informed€Mr.€Dishmon€that€he€was€entitled€to€a€hearingÐ T Ðbefore€an€administrative€law€judge€if€he€wished€to€contest€his€termination.€Mr.Ð ¨ø ÐDishmon€requested€a€hearing€which€was€held€on€February€10€and€11€and€March€8,Ð Lœ Ð1993€before€an€administrative€law€judge€assigned€by€the€Secretary€of€State.€€On€JulyÐ ð@  Ð1,€1994,€the€administrative€law€judge€filed€an€initial€order€finding€that€Mr.€DishmonÐ ” ä" Ðwas€ð ðin€technical€violationðð€of€several€Tennessee€Board€of€Regents€policies€but€thatÐ 8"ˆ$ Ðð ðhis€violations€were€never€due€to€bad€faith€on€his€part.ðð€€He€also€found€that€ShelbyÐ Ü#,& ÐStateððs€president€had€been€aware€of€the€policy€violations€and€had€taken€ð ðvirtually€noÐ €%Ð ( Ðactionðð€to€remedy€them.€€Accordingly,€the€administrative€law€judge€concluded€thatÐ $'t"* ÐMr.€Dishmon€ð ðbecame€the€scapegoat€for€Shelby€Stateððs€collective€policy€violationsÐ È($, Ðover€which€he€was€only€one€of€a€group€of€well„meaning€violatorsðð€and€ordered€himÐ l*¼%. Ðreinstated€to€his€previous€or€a€similar€position€and€that€Shelby€State€pay€his€legalÐ ,`'0 Ðexpenses.Ð ´-)2 ÐÌà ` àRather€than€reinstating€Mr.€Dishmon,€Shelby€State€requested€its€own€presidentÐ ü0L,6 Ðto€review€the€administrative€law€judgeððs€order.€€On€April€13,€1995,€while€this€appealÐ  2ð-8 Ðwas€pending,€Mr.€Dishmon€moved€for€reinstatement€and€back€pay.€€On€May€11,€1995,Ð D4”/: ÐShelby€Stateððs€interim€president,€who€had€replaced€the€president€who€discharged€Mr.Ð è581< ÐDishmon,€informed€Mr.€Dishmon€that€Shelby€State€would€reinstate€him€effectiveÐ Œ7Ü2> ÐJune€1,€1995.€€Four€days€later,€the€interim€president€issued€a€final€order€affirming€theÐ 09€4@ Ðadministrative€law€judgeððs€initial€order.€€Mr.€Dishmon€requested€the€interim€presidentÐ Ô:$6B Ðto€clarify€his€decision€regarding€damages€and€back€pay.€€Neither€the€interim€presidentÐ ° Ðnor€Shelby€State€responded€to€this€request.Ð T¤ ÐÌà ` àThereafter,€on€July€12,€1995,€Mr.€Dishmon€filed€a€petition€for€judicial€reviewÐ œ ì Ðin€the€Chancery€Court€for€Davidson€County.€€Based€on€allegations€that€Shelby€StateððsÐ @  Ðrefusal€to€pay€him€was€ð ðcontrary€to€law,€arbitrary€and€capricious,ðð€he€requested€theÐ ä 4  Ðtrial€court€to€award€him€back€pay€from€the€date€he€had€been€dismissed€as€Dean€ofÐ ˆØ  ÐStudent€Affairs.€€On€September€5,€1996,€the€trial€court€filed€a€memorandum€opinionÐ ,|  Ðconcluding€that€the€administrative€law€judge€and€Shelby€State€had€arbitrarily€ignoredÐ Ð  ÐMr.€Dishmonððs€request€for€back€pay.€€In€its€September€24,€1996€judgment,€the€trialÐ tÄ Ðcourt€awarded€Mr.€Dishmon€ð ðfull€back€pay€beginning€with€his€wrongful€terminationÐ h Ðof€July€24,€1992€until€his€reinstatement€effective€June€1,€1995.ðð€€Shelby€State€hasÐ ¼  Ðperfected€this€appeal.Ð `° ÐÌà@ËË.Dàò òII.ó óˆÐ ¨ø ÐÌà ` àThe€scope€of€appellate€review€generally€extends€to€the€issues€raised€by€theÐ ð@  Ðparties.€€However,€appellate€courts€may,€on€their€own€motion,€consider€issues€notÐ ” ä" Ðraised€by€the€parties€in€order€to€prevent€needless€litigation,€injury€to€the€publicððsÐ 8"ˆ$ Ðinterest,€and€prejudice€to€the€judicial€process.€€òòSeeóó€Tenn.€R.€App.€P.€13(b).€€AmongÐ Ü#,& Ðthe€issues€most€commonly€considered€by€appellate€courts€on€their€own€motion€is€theÐ €%Ð ( Ðtrial€courtððs€subject€matter€jurisdiction.€Ð $'t"* ÐÌà ` àThe€concept€of€subject€matter€jurisdiction€involves€a€courtððs€power€toÐ l*¼%. Ðadjudicate€a€particular€type€of€controversy.€€òòSee€Meighan€v.€U.S.€SprintÐ ,`'0 ÐCommunications€Co.óó,€924€S.W.2d€632,€639€(Tenn.€1996);€òòTurpin€v.€Conner€Bros.Ð ´-)2 ÐExcavating€Co.óó,€761€S.W.2d€296,€297€(Tenn.€1988).€€Courts€derive€their€subjectÐ X/¨*4 Ðmatter€jurisdiction€from€the€Constitution€of€Tennessee€or€from€legislative€act,€òòseeÐ ü0L,6 ÐKane€v.€Kaneóó,€547€S.W.2d€559,€560€(Tenn.€1977);€òòBrown€v.€Brownóó,€198€Tenn.€600,Ð  2ð-8 Ð618-19,€281€S.W.2d€492,€501€(1955),€and€cannot€exercise€jurisdictional€powers€thatÐ D4”/: Ðhave€not€been€conferred€directly€on€them€expressly€or€by€necessary€implication.€€òòSeeÐ è581< ÐHicks€v.€Hicksóó,€No.€01A01-9309-CH-00417,€1994€WL€108896,€at€*2€(Tenn.€Ct.€App.Ð Œ7Ü2> ÐMar.€30,€1994)€(No€€Tenn.€€R.€App.€P.€11€application€filed).Ð 09€4@ ÐÐ Ô:$6B Ðà ` àA€courtððs€subject€matter€jurisdiction€in€a€particular€circumstance€depends€onÐ ° Ðthe€nature€of€the€cause€of€action€and€the€relief€sought.€€òòSee€Landers€v.€Jonesóó,€872Ð T¤ ÐS.W.2d€674,€675€(Tenn.€1994).€€It€does€not€depend€on€the€conduct€or€agreement€ofÐ øH Ðthe€parties,€€òòsee€Shelby€County€v.€City€of€Memphisóó,€211€Tenn.€410,€413,€365€S.W.2dÐ œ ì Ð291,€292€(1963);€òòJames€v.€Kennedyóó,€174€Tenn.€591,€595,€129€S.W.2d€215,€216Ð @  Ð(1939),€and€thus€the€parties€cannot€confer€subject€matter€jurisdiction€on€a€trial€or€anÐ ä 4  Ðappellate€court€by€appearance,€plea,€consent,€silence,€or€waiver.€€òòSee€Caton€v.€Pic„Ð ˆØ  ÐWalsh€Freight€Co.óó,€211€Tenn.€334,€338,€364€S.W.2d€931,€933€(1963);€òòBrown€v.Ð ,|  ÐBrownóó,€198€Tenn.€at€618„19,€281€S.W.2d€at€501.Ð Ð  ÐÌà ` àJudgments€or€orders€entered€by€courts€without€subject€matter€jurisdiction€areÐ h Ðvoid,€òòsee€Brown€v.€Brownóó,€198€Tenn.€at€610,€281€S.W.2d€at€497;€òòRiden€v.€Snideróó,€832Ð ¼  ÐS.W.2d€341,€343€(Tenn.€Ct.€App.1991);€òòScales€v.€Winstonóó,€760€S.W.2d€952,€953Ð `° Ð(Tenn.€Ct.€App.€1988).€€The€lack€of€subject€matter€jurisdiction€is€so€fundamental€thatÐ T Ðit€requires€dismissal€whenever€it€is€raised€and€demonstrated.€€òòSeeóó€Tenn.€€R.€Civ.€P.Ð ¨ø Ð12.08.€€Thus,€when€an€appellate€court€determines€that€a€trial€court€lacked€subjectÐ Lœ Ðmatter€jurisdiction,€it€must€vacate€the€judgment€and€dismiss€the€case€without€reachingÐ ð@  Ðthe€merits€of€the€appeal.€€òòSee€J.W.€Kelly€&€Co.€v.€Conneróó,€122€Tenn.€339,€397,€123Ð ” ä" ÐS.W.€622,€637€(1909).€Ð 8"ˆ$ ÐÌà@-Dàò òIII.ó óˆÐ €%Ð ( ÐÌà ` àMr.€Dishmonððs€petition€sought€judicial€review€under€the€Tennessee€UniformÐ È($, ÐAdministrative€Procedures€Act.€€The€Act,€however,€is€inapplicable€to€proceedings€thatÐ l*¼%. Ðdo€not€fit€within€its€adjudicatory€definitions.€€òòSee€National€Health€Corp.€v.Ð ,`'0 ÐSnodgrass,€óó555€S.W.2d€403,€405„06€(Tenn.€1977);€òòMid„South€Indoor€Horse€Racing,Ð ´-)2 ÐInc.€v.€Tennessee€State€Racing€Commððnóó,€798€S.W.2d€531,€536€(Tenn.€Ct.€App.€1990).€Ð X/¨*4 ÐJudicial€review€under€the€Act€is€limited€to€final€decisions€in€contested€cases.€€òòSeeóóÐ ü0L,6 ÐTenn.€Code€Ann.€ðð€4„5„322(a)(1)€(1998);€òòóóBen€H.€Cantrell,€òòJudicial€Review€under€theÐ  2ð-8 ÐTennessee€Uniform€Administrative€Procedures€Act€ð!ð€An€Updateóó,€13€Mem.€St.€U.L.Ð D4”/: ÐRev.€589,€595€(1983).€€Thus,€judicial€review€under€Tenn.€Code€Ann.€ðð€4„5„322€is€notÐ è581< Ðavailable€if€the€proceeding€to€be€reviewed€is€not€a€contested€case.€€òòSee€Mid„SouthÐ Œ7Ü2> ÐIndoor€Horse€Racing,€Inc.€v.€Tennessee€State€Racing€Commððnóó,€798€S.W.2d€at€536.Ð 09€4@ ÐÐ Ô:$6B Ðà ` àAccording€to€Tenn.€Code€Ann.€ðð€4„5„102(3)€(1998),€a€€ð ðcontested€caseðð€is€aÐ ° Ðproceeding€in€which€the€legal€rights,€duties€or€privileges€of€a€party€are€required€byÐ T¤ Ðany€statute€or€constitutional€provision€to€be€determined€by€an€agency€after€anÐ øH Ðopportunity€for€a€hearing.€€To€determine€whether€any€particular€dispute€is€a€contestedÐ œ ì Ðcase€under€the€Uniform€Administrative€Procedures€Act,€we€must€examine€theÐ @  Ðapplicable€statutes€and€constitutional€provisions€to€see€if€any€of€them€provide€that€aÐ ä 4  Ðcomplainantððs€rights€must€only€be€determined€after€an€opportunity€for€a€hearing.€€òòSeeóóÐ ˆØ  ÐWilliam€P.€Kratzke,€òòA€Review€of€Contested€Case€Provisions€of€the€TennesseeÐ ,|  ÐUniform€Administrative€Procedures€Actóó,€13€Mem.€St.€U.L.€Rev.€551,€554€(1983).€€WeÐ Ð  Ðhave€found€no€provision€in€the€United€States€Constitution,€the€Constitution€ofÐ tÄ ÐTennessee,€or€the€applicable€statutes€that€requires€Shelby€State€to€provide€its€deansÐ h Ðwith€a€hearing€in€employment€disputes.Ð ¼  ÐÌà ` àShelby€State€is€part€of€the€community€college€system.€€òòSeeóó€Tenn.€Code€Ann.Ð T Ððð€49„8„101(a)€(1996).€Its€management€and€control€is€vested€in€the€Board€of€Regents.€Ð ¨ø ÐòòSeeóó€Tenn.€Code€Ann.€ðð€49„8„101(b).€€Among€the€Board€of€Regentsðð€statutory€dutiesÐ Lœ Ðis€the€duty€to€establish€a€formal€grievance€procedure€for€the€support€staff€of€theÐ ð@  Ðcommunity€college€system€which€affords€them€a€contested€case€hearing€with€regardÐ ” ä" Ðto€demotions,€suspensions,€suspensions€without€pay,€or€terminations€for€cause.€€€òòSeeóóÐ 8"ˆ$ ÐTenn.€Code€Ann.€ðð€49„8„117(b)(3)€(1996).€€According€to€Tenn.€Code€Ann.€ðð€49„8„Ð Ü#,& Ð117(a)(2),€ð ðsupport€staffðð€includes€employees€ð ðwho€are€neither€faculty€nor€executive,Ð €%Ð ( Ðadministrative€or€professional€staff€of€the€.€.€.€community€college.ðð€€Ð $'t"* ÐÌà ` àMr.€Dishmon,€as€Dean€of€Student€Affairs,€was€not€a€support€staff€employee€atÐ l*¼%. ÐShelby€State,€but€rather€was€a€member€of€the€schoolððs€administration.׃×Ý ƒ#ÃÝòòÚ  Ú1Ú  ÚóóÝ  Ý×  ×€€Because€Mr.Ð ,`'0 ÐDishmon€was€not€a€support€staff€employee,€he€had€no€statutory€right€to€a€contestedÐ ´-)2 Ðâ âcase€hearing€regarding€the€termination€of€his€employment€contract.€€His€employmentÐ X/¨*4 Ðdispute€with€Shelby€State,€accordingly,€did€not€constitute€a€contested€case€underÐ ° ÐTenn.€Code€Ann.€ðð€4„5„102(3).€€Ð T¤ Ðâ âÌà ` àThe€record€indicates€that€Shelby€State€appealed€the€administrative€law€judgeððsÐ œ ì ÐJuly€1994€reinstatement€order€to€its€interim€president.€€The€interim€president€reviewedÐ @  Ðthe€case€and€entered€a€final€order€approving€Mr.€Dishmonððs€reinstatement€and€theÐ ä 4  Ðpayment€of€his€legal€expenses.€€That€determination€appears€to€be€the€final€step€of€theÐ ˆØ  Ðgrievance€procedure€for€administrative€employees€like€Mr.€Dishmon.€€Rather€thanÐ ,|  Ðtreating€his€claim€for€back€pay€as€a€grievable€matter,€Mr.€Dishmon€should€haveÐ Ð  Ðpursued€it€as€damages€for€breach€of€his€employment€contract€by€filing€a€claim€withÐ tÄ Ðthe€Tennessee€Claims€Commission€in€accordance€with€òòóóTenn.€Code€Ann.€ðð€9„8„Ð h Ð307(a)(1)(L)€(Supp.€1998).Ð ¼  ÐÌà ` àMr.€Dishmonððs€demand€for€back€pay€from€Shelby€State€was€not€a€contestedÐ T Ðcase.€€Accordingly,€he€did€not€have€a€right€to€seek€judicial€review€of€the€interimÐ ¨ø Ðpresidentððs€decision€in€the€trial€court€under€Tenn.€Code€Ann.€ðð€4„5„322.€€The€trialÐ Lœ Ðcourt€should€have€dismissed€Mr.€Dishmonððs€petition€for€lack€of€subject€matterÐ ð@  Ðjurisdiction€even€if€Shelby€State€did€not€assert€the€defense.Ð ” ä" ÐÌà@¥¥.Dàò òIV.ó óˆÐ Ü#,& ÐÌà ` àWe€vacate€the€trial€courtððs€judgment€and€remand€the€case€with€directions€thatÐ $'t"* Ðthe€trial€court€enter€an€order€dismissing€Mr.€Dishmonððs€petition€for€lack€of€subjectÐ È($, Ðmatter€jurisdiction.€€We€tax€the€costs€of€this€appeal€in€equal€proportions€to€LeonÐ l*¼%. ÐDishmon€and€Shelby€State€Community€College.€€€€Ð ,`'0 ÐÌÓ€Óà ` àà ¸ àà  àà h àà À àà  àà p à______________________________Ð X/¨*4 Ðà ` àà ¸ àà  àà h àà À àà  àà p àWILLIAM€C.€KOCH,€JR.,€JUDGEÐ p0À+5 ÐÌCONCUR:Ð  2ð-7 ÐÌ_______________________________Ð Ð4 09 ÐSAMUEL€L.€LEWIS,€JUDGE€Ð è581: ÐÌÌ_______________________________Ð 09€4= ÐBEN€H.€CANTRELL,€JUDGE