ÿWPC¸i …# VUNa %¯ 0.Nµ 0+Í bÐ w@Ø 4 , 0D;  0@‡ D3Ç †ú 0J€ 0TÊ 0^ 0h| 0räV^ 0|` mÜ 0†ó 0y 1u  0d~ BâUˆ>ÿB)=DCf AM©U*ö0 ÜPt,? ßÊõQ¿” u¤!þ$A&mX(uÅ)}:+a·,q.­‰/ë62\!4}5Œ6ž7m¬8ò:p <”{>.@5=AVrB5ÈC*ýD™'F„ÀG4DIxJR’L°äPA”UJÕY\:]J^jX_v~Â`vÓ@b AOhÆbh 0D(i D/li B›i˜HP LaserJet 4Si/4SiMX PS 600dpiPSCRIPTÀÌÀääÀÀÌ0 (í€"  Z ‹6Times New Roman Regular¼(&öy$¡¡Ó  ÓÙñÓ Ù(}(2l¾$¤¤Ý ƒöy!ÝÓ  ÓÙñÓ ÙÝ  ÝÒ°ÒÒ„°ÒÔ€X4¥X¼¼Ôà ` àòòÚ  Ú0Ú  Úóó- ù- @EABDFGHDIJÓ€TDÒ 73|xT(#Ã$òòÚ  Ú0Ú  Úóó("ÿÿ$££Ò  ÒÒ  Ò----'ÿÿdxdFreddie Lee Jones v. Dept. of Safety - Opinion Ì  ' IB011C20IB011C2 .   2 ÿÿ0Indent1Ô2ÔÔ3  Ô2" ÿÿ0Indent2à0 àÔ2ÔÔ3  Ô2, ÿÿ0Indent3à0 àà0 àÔ2ÔÔ3  Ô26 ÿÿ0Indent4à0 àà0 àà0 àÔ2ÔÔ3  Ô2@ ÿÿ0Indent5à0 àà0 àà0 àà0 àÔ2ÔÔ3  Ô 2J ÿÿ0Indent6à0 àà0 àà0 àà0 àà0 àÔ2ÔÔ3  ÔÿU‹ÿÀÀÀ2T ÿÿ0Indent7à0 àà0 àà0 àà0 àà0 àà0 àÔ2ÔÔ3  Ô2^ ÿÿ0Indent8à0 àà0 àà0 àà0 àà0 àà0 àà0 àÔ2ÔÔ3  Ô%* ÿÿ?AGMSYaioIndent0I.A.1.a.(1)(a)i)a)P ÿÿ8Mac DefaultMac DefaultÓ ` °šXÓ d< Œ 9p`(&Times New Roman% Line 7 dCCCC7Border 1dd€DCþÿ << Gÿÿ< Œ 9p`(Arial &Ý ƒ!ÝÑ  ÑÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÔ€JÔÔ€JÔÓ  Óò òÔ YYY ÔFILEDÔ€JXÔÌÌDecember€4,€1996ÌÌCecil€W.€CrowsonÌAppellate€Court€ClerkÔ  Ôó ó ÒÝ ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  Ý›Mr.€Brown€had€been€arrested€previously€in€October€1988€forÏpossessing€cocaine€for€resale.€€He€pled€guilty€to€a€lesser€possessionÏcharge€in€March€1990€at€the€same€time€that€he€pled€guilty€to€theÏpossession€charges€resulting€from€this€incident.Ì jÝ ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  Ý›Mr.€Jones€was€never€charged€with€a€criminal€offense€based€onÏthe€illegal€drugs€found€during€the€search€of€the€2491€¢Haischi£€StreetÏhouse.Ì 5Ý ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  ÝAct€of€May€21,€1937,€ch.€255,€1937€Tenn.€Pub.€Acts€1028Ï(codified€at€Tenn.€Code€Ann.€ðððð€52„1301€through€„1323€(repealedÏ1971)).€€The€legislation€tracked€the€Uniform€Narcotic€Drug€Act€draftedÏby€the€National€Conference€of€Commissioners€on€Uniform€State€Laws€inÏ1932.€€€òòSeeóó€Uniform€Narcotic€Drug€Act,€¢9B£€U.€L.A.€11€(amended€1958).Ì Ý ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  ÝThe€original€statute€defined€ð ðnarcotic€drugsðð€to€include€cocoaÏleaves,€opium,€and€every€other€substance€neither€chemically€norÏphysically€distinguishable€from€them.€€Act€of€May€21,€1937,€ch.€255,€ððÏ1,€1937€Tenn.€Pub.€Acts€1028,€1030.€Later€amendments€added€otherÏsubstances€to€the€definition.Ì ÀÝ ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  Ý›Act€of€Feb.€23,€1955,€ch.€83,€1955€Tenn.€Pub.€Acts€258€(codifiedÏoriginally€at€Tenn.€Code€Ann.€ðððð€52„1401€through€„1407;€parts€laterÏtransferred€and€¢redesignated£€as€Tenn.€Code€Ann.€ðððð€53„11„201€throughÏœ„204).Ì› GÝ ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  ÝThis€administrative€proceeding€appears€to€have€been€patternedÏafter€the€administrative€forfeiture€proceedings€used€for€illegal€tobaccoÏsales,€òòseeóó€Act€of€Mar.€5,€1937,€ch.€133,€ðð€7,€1937€Tenn.€Pub.€Acts€587,Ï592„94,€and€illegal€manufacture€and€sale€of€alcoholic€beverages.€€òòSeeóóÏAct€of€Mar.€5,€1939,€ch.€49,€ðð€19,€1939€Tenn.€Pub.€Acts€199,€231.Ì ŠÝ ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  ÝIn€the€absence€of€a€timely€claim,€the€seized€property€wasÏsummarily€forfeited.€€òòSeeóó€Tenn.€Code€Ann.€ðð€52„1406€(codified€at€Tenn.ÏCode€Ann.€ðð€53„11„203€(1991)).Ì kÝ ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  ÝAct€of€May€3,€1971,€ch.€163,€1971€Tenn.€Pub.€Acts€366.€€TheÏpurpose€of€this€Act€was€ð ðto€provide€for€a€comprehensive€system€of€drugÏand€drug€abuse€control€for€Tennessee.ðð€€It€was€patterned€after€theÏUniform€Controlled€Substances€Act€drafted€by€the€National€ConferenceÏof€Commissioners€on€Uniform€State€Laws€in€1970.€€òòSee€óóUniformÏControlled€Substances€Act,€9€[Pt.€II]€¢U.L.A.£€1€(1987).Ì ôÝ ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  Ý›Act€of€May€3,€1971,€ch.€163,€ðð€2(d),€1971€Tenn.€Pub.€Acts€366,Ï367.€€The€term€ð ðcontrolled€substanceðð€was€later€redefined€in€Act€ofÏMay€24,€1989,€ch.€591,€ðð€1,€1989€Tenn.€Pub.€Acts€1169,€1254€(presentlyÏcodified€at€Tenn.€Code€Ann.€ðð€39„17„402(4)€(Supp.€œ1996)).Ì› 7Ý ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  Ý›Act€of€May€3,€1971,€ch.€163,€ðððð€36(a)(2),€36(a)(3),€36(a)(5),Ï1971€Tenn.€Pub.€Acts€366,€402„03.€€This€provision€was€first€codified€atÏTenn.€Code€Ann.€ðð€52„1433.€€In€1983,€it€was€transferred€andÏ¢redesignated£€as€Tenn.€Code€Ann.€ðð€53„11„409,€and€in€1990€it€was€againÏtransferred€and€¢redesignated£€as€Tenn.€Code€Ann.€ðð€53„11„451.Ì cÝ ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  ÝAct€of€May€3,€1971,€ch.€163,€ðð€36(i),€1971€Tenn.€Pub.€Acts€366,Ï405€(codified€at€Tenn.€Code€Ann.€ðð€53„11„451(I)€(Supp.€1996)).Ì kÝ ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  ÝAct€of€May€3,€1971,€ch.€163,€ðð€34(b),€1971€Tenn.€Pub.€Acts€366,Ï400€(codified€as€amended€at€Tenn.€Code€Ann.€ðð€53„11„407€(Supp.Ï1996)).Ì sÝ ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  ÝAct€of€Mar.€27,€1972,€ch.€597,€ðð€12,€1972€Tenn.€Pub.€Acts€446,Ï448„49€(codified€as€amended€at€Tenn.€Code€Ann.€ðð€53„11„451(a)(6)Ï(Supp.€1996)).Ì WÝ ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  Ý›Act€of€May€11,€1983,€ch.€412,€ðð€4,€1983€Tenn.€Pub.€Acts€794,Ï796€(codified€at€Tenn.€Code€Ann.€ðð€53„11„451(a)(6)).Ì gÝ ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  Ý›Act€of€May€23,€1984,€ch.€1005,€ðð€4,€1984€Tenn.€Pub.€Acts€1190,Ï1192€(codified€at€Tenn.€Code€Ann.€ðð€53„11„451(a)(7)€(Supp.€1996)).Ì £Ý ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  ÝAct€of€Apr.€3,€1986,€ch.€783,€ðð€1,€1986€Tenn.€Pub.€Acts€759,€759Ï(codified€at€Tenn.€Code€Ann.€ðð€53„11„451(a)(4));€Act€of€Apr.€20,€1994,Ïch.€925,€ðð€2,€1994€Tenn.€Pub.€Acts€848,€856€(codified€at€Tenn.€Code€Ann.Ïðð€53„11„451(a)(4)).€€The€preamble€of€the€1986€Act€declared€that€theÏfederal€civil€drug€forfeiture€statute,€21€U.S.C.€ðð€881€(1988€&€Supp.Ï1992),€ð ðserves€the€purpose€set€out€herein€and€mirrors€the€intent€of€theÏlegislature.ððÌ áÝ ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  ÝThe€Actððs€caption€€described€it€as€ð ð[an€Act]€to€subject€toÏforfeiture€all€real€property€used€to€facilitate€a€violation€of€TennesseeÏCode€Annotated,€Section€39„6„401,€et€seq.€.€.€.ðð€€òòSeeóó€Act€of€Apr.€3,Ï1986,€ch.€783,€1986€Tenn.€Pub.€Acts€759.€€Ì RÝ ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  Ý›Act€of€Mar.€22,€1990,€ch.€774,€1990€Tenn.€Pub.€Acts€260Ï(codified€at€Tenn.€Code€Ann.€ðð€53„11„452€(Supp.€1996)).Ì Ý ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  Ý›Tenn.€Code€Ann.€ðð€53„11„452(a)(2).Ì Ý ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  Ý›Tenn.€Code€Ann.€ðð€53„11„452(d)(1)(A).Ì Ý ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  ÝTenn.€Code€Ann.€ðð€53„11„452(c)(4).Ì cÝ ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  Ý›Act€of€Apr.€20,€1994,€ch.€925,€1994€Tenn.€Pub.€Acts€848Ï(codified€at€Tenn.€Code€Ann.€ðððð€40„33„201€through€„214€(Supp.€1996)).Ì èÝ ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  ÝThe€Act€provides€that€all€existing€forfeiture€proceduresÏapplicable€to€property€covered€by€the€Act€are€repealed€to€the€extentÏthat€they€are€inconsistent€with€the€new€uniform€procedure.€€òòSeeóó€Act€ofÏApr.€20,€1994,€ch.€925,€ðð€3,€1994€Tenn.€Pub.€Acts€848,€856.Ì fÝ ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  Ý›The€scope€and€procedure€for€judicial€review€of€administrativeÏdecisions€in€drug€forfeiture€cases€has€been€governed€by€the€UniformÏAdministrative€Procedures€Act€since€1986€when€the€General€AssemblyÏdid€away€with€the€common„law€writ€of€certiorari€proceeding€in€Tenn.ÏCode€Ann.€ðð€53„11„202€that€had€been€used€since€1955.€€Act€of€Apr.€3,Ï1986,€ch.€738,€ðð€3,€1986€Tenn.€Pub.€Acts€604,€606.Ì ŠÝ ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  ÝòòState€v.€Hartley,óó€790€¢S.W.2d£€276,€277„78€(Tenn.€1990);€òòState€exÏrel.€¢Balsinger£€v.€Town€of€¢Madisonville£,óó€222€Tenn.€272,€280,€435€¢S.W.2d£Ï803,€806€(1968).Ì $Ý ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  ÝòòState€v.€Moore,óó€206€Tenn.€96,€98,€332€¢S.W.2d£€176,€177€(1960).Ì +Ý ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  Ýòò¢Trigally£€v.€Mayor€of€Memphis,óó€46€Tenn.€(6€Cold.)€382,€386„87Ï(1869).Ì LÝ ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  ÝòòKirkpatrick€v.€State,óó€19€Tenn.€(¢Meigs£)€124,€126€(1838);€òò¢Goddard£Ïv.€State,óó€10€Tenn.€at€99„100.Ì +Ý ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  ÝòòState€ex€rel.€Timothy€v.€Howse,óó€134€Tenn.€at€82,€183€¢S.W.£€atÏ514„15.Ì Ý ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  ÝòòDavis€v.€State,óó€92€Tenn.€634,€642,€23€¢S.W.£€59,€62€(1893).Ì Ý ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  ÝòòShields€v.€¢McMahan£,óó€112€Tenn.€1,€5,€81€¢S.W.£€597,€597€(1903),Ïòòrevððd€on€other€groundsóó,€òòBrown€v.€Howsóó,€163€Tenn.€138,€155„56,€40ÏS.W.2d€1017,€1022€(1931).Ì zÝ ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  Ýòò¢Casone£€v.€State,óó€176€Tenn.€279,€284,€140€¢S.W.2d£€1081,€1083Ï(1940);€òò¢Caneperi£€v.€State,óó€169€Tenn.€472,€475„76,€89€¢S.W.2d£€164,€165Ï(1936).Ì *Ý ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  ÝòòState€v.€¢McCrary£,óó€205€Tenn.€306,€311,€326€¢S.W.2d£€473,€475Ï(1959).Ì Ý ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  Ý›The€federal€courts€have€reached€the€same€conclusion€withÏregard€to€the€guarantee€of€a€jury€trial€in€U.€S.€Const.€amend.€VII.€€òòNLRB€v.ÏJones€&€Laughlin€Steel€Corp.,óó€301€U.S.€1,€48„49,€57€S.€Ct.€615,€629Ï(1937);€òòUnited€States€v.€One€1976€Mercedes€Benz€¢280S£,óó€618€F.2d€453,Ï458€(7th€Cir.€1980).Ì HÝ ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  ÝIn€addition€to€Tennessee,€Hawaii,€New€Hampshire,€Rhode€Island,Ïand€Washington€have€established€an€administrative€process€forÏdisposing€of€some€types€of€drug€forfeiture€cases.€€òòSeeóó€€Haw.€Rev.€Stat.€ððÏ¢712A£„10€(Supp.€1992)€(administrative€forfeiture€hearings€before€theÏattorney€general€concerning€seized€property€whose€value€does€notÏexceed€$100,000);€N.H.€Rev.€Stat.€Ann.€ðð€318„¢B:17£„d€(1995)Ï(administrative€forfeiture€hearings€before€the€Department€of€JusticeÏwith€regard€to€seized€property€whose€value€does€not€exceed€$75,000);ÏR.I.€Gen.€Laws€ðð€21„28„5.04.2(h)€(1989)€(administrative€forfeitureÏhearings€before€the€attorney€general€concerning€seized€property€whoseÏvalue€does€not€exceed€$20,000);€Wash.€Rev.€Code€Ann.€ðð€69.50.505(e)Ï(West€Supp.€1996)€(administrative€hearings€conducted€before€the€chiefÏlaw€enforcement€officer€of€the€seizing€agency).Ì ¦Ý ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  ÝForfeiture€statutes€specifically€dispensing€with€a€jury€include:ÏAlaska€Stat.€ðð€17.30.116(c)€(¢Michie£€1983);€Ariz.€Rev.€Stat.€Ann.€ðð€13„4311(D)€(Supp.€1996);€¢Colo.Rev£.€Stat.€€ðð€16„13„505(6)€(Supp.€1996);ÏConn.€Gen.€Stat.€Ann.€ðð€54¢„36h£(b)€(West€1994);€Ga.€Code€Ann.€ðð€16„13„49(o)(5)€(1996);€Idaho€Code€ðð€37„2744(d)(1)(3)(D)€(1994);€¢Kan£.€Stat.ÏAnn.€ðð€60„4113(g)€(1994);€Me.€Rev.€Stat.€Ann.€tit.€15,€ðð€5822(4)€(WestÏSupp.)€(1995);€N.H.€Rev.€Stat.€Ann.€ðð€318„¢B:17£„b€(IV)(e)€(1995);€UtahÏCode€Ann.€ðð€58„37„13(9)(g)€(Supp.€1996);€¢Vt£.€Stat.€Ann.€tit.18,€ððÏ4244(d)€(Supp.€1995).€€Forfeiture€statutes€specifically€providing€for€aÏjury€trial€include:€Cal.€Health€&€Safety€Code€ðð€11488.5(c)(2)€(WestÏSupp.€1996);€Fla.€Stat.€Ann.€ðð€932.704(2)€(West€Supp.€1996);€N.Y.€PenalÏLaw€ðð€480.10€(Supp.€1996);€R.I.€Gen.€Laws€ðð€21„28„5.04.2(j)€(1989);€Va.ÏCode€Ann.€ðð€19.2„386.10€(Michie€1995);€W.€Va.€Code€ðð€¢60A£„7„705Ï(1992).Ì 7Ý ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  ÝòòUnited€States€v.€One€1976€Mercedes€Benz€280Sóó,€618€F.2d€at€458;ÏòòPeople€v.€One€1941€Chevrolet€Coupe,óó€231€P.2d€832,€844€(Cal.€1951);€òòInÏre€Forfeiture€of€1978€Chevrolet€Van,óó€493€So.2d€433,€436€(Fla.€1986);ÏòòIdaho€¢Depððt£€of€Law€Enforcement€ex€rel.€Code€v.€Free,óó€885€P.2d€381,€384„85€(Idaho€1994);€òòPeople€ex€rel.€¢OððMalley£€v.€6323€N.€¢LaCrosse£€Ave.,óó€634Ï¢N.E.2d£€743,€746€(Ill.€1994);€òòCommonwealth€v.€One€1972€Chevrolet€Van,óóÏ431€¢N.E.2d£€209,€209€(Mass.€1982);€òòColon€v.€¢Lisk£,óó€47€¢N.W.£€302,€303€(N.Y.Ï1897);€òò¢Keeter£€v.€State€ex€rel.€¢Saye£,óó€198€P.€866,€870€(Okla.€1921);€òòStateÏv.€1920€Studebaker€Touring€Car,óó€251€P.€701,€704€(Or.€1926);ÏòòCommonwealth€v.€One€(1)€1984€Z„28€¢Camaro£€Coupe,óó€610€A.2d€36,€39€(Pa.Ï1992);€òò¢Medlock£€v.€1985€Ford€F„150€Pick€Up,€óó417€¢S.E.2d£€85,€87€(S.C.Ï1992).Ì @Ý ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  Ýòò¢Swails£€v.€State,óó€431€¢S.E.2d£€101,€103€(Ga.€1993);€òòState€v.€Clark,óóÏ670€So.2d€493,€501€(La.€Ct.€App.€1996);€òòIn€re€Forfeiture€of€$1,159,420,óóÏ486€¢N.W.2d£€326,€337€(Mich.€Ct.€App.€1992);€òòState€v.€One€1921€CadillacÏTouring€Car,óó€195€¢N.W.£€778,€780€(Minn.€1923);€òòState€v.€Morris,óó€405€¢S.E.2d£Ï351,€352„53€(N.C.€Ct.€App.€1991).Ì Ý ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  ÝTenn.€Code€Ann.€ðð€53„11„201(b)(1)€(Supp.€1996).Ì Ý ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  Ý›Tenn.€Code€Ann.€ðð€53„11„204€(1991).Ì Ý ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  ÝTenn.€Code€Ann.€ðð€53„11„451(d)(4).Ì `Ý ƒ!ÝÑ#€d#ÑÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÝ ƒ$ÝÒ  ÒÒ „ ÒÔ€6XÔà àòòÚ  ÚÚ  ÚóóÝ  Ý›The€hearing€would€have€been€held€two€months€earlier€in€AugustÏ1992€had€Mr.€Jones€not€failed€to€appear€at€a€scheduled€deposition.ÌPtPtHHÚ(ÿáÿâùFG(üHHÚ(d'hStyl{WP}01•ÃÃÃÃÃÃÃÃÃÃÃÃÃÃÃÃÃÃà Ãà Ãà Ãà Ãà ÃÃÃÃÃÃÃÃÃÃÃÐ ÐÐHHÐÐ  ÐÐ2ÐÐÿÿ¸æ$ÿÐÐHHÐÐÐÐÐÐÐÐ  ÐÐ ÐÐ ÐÑÑÑGenevaÑÑ ÑÑ € ÑÑ<Px–ÈÑÒÒÒ443!#4ÒÒ$ *$ÒÒ$*$ÒÒ ÿKK ÒÒ  Geneva ÒÒ  Geneva ÒÓ.,ÓÓÓÓ6ÓÓ ÓßßßßßßßßßßßßßßßßßßÑGenevaÑÑ ÑÒ  inion Geneva ÒÒ  inion Geneva Ò€‚ƒCþÿ<< CÿÿƒLevel 1Level 2Level 3Level 4Level 5($$””ò òÚ  Ú1Ú  Úó ó„„'÷ÿ dxdüÿP PdÝ ƒ!ÝÔ . ÔÔ€6ÔÔ€6¼ÔÓ  ÓÝ  ÝÑ Ü ÑÒ  ÒÒ ° ÒÒ  ÒÒ „ ÒÑ\R AØ'\ÑÑ  ÑÑ\R AØ'\ÑÑ€ÑÑ7€ž£¼¼ddÈ7ÑÑ  ÑÑ  Ñ›Þ ÞÌÌà@ àÔ€6„Ôò òIN€THE€COURT€OF€APPEALS€OF€TENNESSEEÌà@ àMIDDLE€SECTION€AT€NASHVILLEÌÌÔ€6¼ÔÌÌÌó óFREDDIE€LEE€JONES,à àà àà à)Ìà àà àà àà àà àà à)Ìà àPlaintiff/Appellant,à àà à)Ìà àà àà àà àà àà à)à àDavidson€ChanceryÌà àà àà àà àà àà à)à àNo.€93„3580„IÌ¢VS£.à àà àà àà àà àà à)Ìà àà àà àà àà àà à)à àAppeal€No.Ìà àà àà àà àà àà à)à à01„A„01„9505„CH„00187̜ـ€ÙÙ€€ÙßR€IKDA1-j|Çþ4` ç `€€@ÿRß›MICHAEL€C.€GREENE,à àà àà à)ÌCOMMISSIONER,€TENNESSEEà à)ÌDEPARTMENT€OF€SAFETY,à àà à)Ìà àà àà àà àà àà à)Ìà àDefendant/Appellee.à à)ÌÌÌÌà@ àAPPEAL€FROM€THE€CHANCERY€COURT€FOR€DAVIDSON€COUNTYÌà@ àAT€NASHVILLE,€TENNESSEEÌÌà@ àTHE€HONORABLE€IRVIN€H.€¢KILCREASE£,€JR.,€CHANCELLORÌÌÌÌÌÓ  ÓòòFor€the€Plaintiff/Appellantóó:à àòòFor€the€Defendant/Appelleeóó:ÌÓ  ÓÌE.E.€Edwards,€IIIà àà àà àCharles€W.€¢Burson£ÌJames€A.€Simmonsà àà àà àAttorney€General€and€ReporterÌNashville,€TennesseeÌà àà àà àà àà àà àRebecca€¢Lyford£Ìà àà àà àà àà àà àCounsel€to€the€StateÌà àà àà àà àà àà àNashville,€TennesseeÌÌÌÌà@ àÔ€6„Ôò òAFFIRMED€AND€REMANDEDó óÌÌÔ€6¼ÔÌÌÌÌà àà àà àà àà àà àWILLIAM€C.€KOCH,€JR.,€JUDGEÇÑ ° ÑÑ „ ÑӀӜԀ6„Ô›à@ àò òòòO€P€I€N€I€O€Nóóó óÌÔ€6¼ÔÌà àThis€appeal€involves€over€$45,000€seized€during€theÏsearch€of€a€house€in€Memphis€for€illegal€drugs.€€After€theÏCommissioner€of€Safety€ordered€the€forfeiture€of€the€money,Ïthe€person€claiming€the€funds€filed€a€petition€for€review€inÏthe€Chancery€Court€for€Davidson€County€asserting€that€theÏforfeiture€statutes€deprived€him€of€his€constitutional€right€toÏa€jury€trial€and€violated€the€Equal€Protection€and€Due€ProcessÏClauses€of€the€United€States€and€Tennessee€Constitutions.€ÏThe€trial€court€upheld€the€forfeiture€statutes€and€theÏforfeiture,€and€this€appeal€followed.€€We€have€determinedÏthat€Tennesseeððs€forfeiture€statutes€are€constitutional€andÏthat€the€record€contains€substantial€and€material€evidenceÏsupporting€the€commissionerððs€forfeiture€order.€€Accordingly,Ïwe€affirm€the€judgment.€ÌÌà@ àò òI.ó óÌÌà àOn€May€26,€1989,€the€Shelby€County€Sheriffððs€DepartmentÏobtained€a€warrant€to€search€the€house€at€2491€¢Haischi£€StreetÏin€Memphis€based€on€reliable€information€that€cocaine€wasÍbeing€stored€and€sold€there.€€When€the€deputies€executed€theÏwarrant€on€May€27,€1989,€they€encountered€¢Halbert£€Brown× ƒL ××  ×Ïwho€confirmed€that€he€lived€in€the€house.€€The€search€yieldedÏfour€handguns,€an€M„1€carbine,€0.6€grams€of€cocaine,€1.5€gramsÏof€marijuana,€and€drug€paraphernalia.€€The€deputies€alsoÏdiscovered€$541€in€Mr.€Brownððs€pants€pocket€and€$5,380€in€aÏpadlocked€closet€in€one€bedroom.€€In€addition,€they€found€aÏpaper€grocery€sack€hidden€behind€a€built„in€entertainmentÏcenter€containing€over€$40,065,€divided€into€two€thousandÏdollar€rolls€separately€wrapped€in€plastic€sandwich€bags.ÌÌà àMr.€Brown€was€arrested€and€questioned€at€the€scene.€€HeÏdenied€that€the€seized€money€was€his€and€insisted€that€he€didÏnot€know€who€the€money€belonged€to.€€After€Mr.€BrownÏrefused€to€sign€a€notice€of€seizure€form,€the€deputies€mailedÏhim€a€copy€of€the€form€several€days€later€by€certified€mail.€ÏThe€form€stated€that€the€money€and€other€property€would€beÏforfeited€unless€a€written€claim€was€filed€with€theÏCommissioner€of€Safety€within€fifteen€days€after€the€date€ofÏthe€notice.€ÌÌà àNo€one€filed€a€timely€claim€for€the€property.€€On€AugustÏ9,€1989,€the€commissioner€ordered€the€forfeiture€of€theÏ$45,986€and€notified€Mr.€Brown€of€his€action€by€certified€mail.€ÏOn€August€16,€1989,€a€lawyer€representing€both€Mr.€Brown€andÏFreddie€Lee€Jones€requested€the€commissioner€to€reconsiderÏhis€order.€Mr.€Jones€asserted€that€he€too€resided€at€2491Ï¢Haischi£€Street,€that€all€the€money€found€in€the€house,€exceptÏthe€$541€in€Mr.€Brownððs€pocket,€belonged€to€him,€and€that€heÏhad€not€received€proper€notice€of€the€forfeiture€proceeding.¢× ƒM ××  ×£€ÏThe€commissioner€denied€the€petition€for€reconsideration,Ïand€the€Chancery€Court€for€Davidson€County€affirmed€theÏcommissionerððs€decision.€€This€court,€however,€reversed€theÏdenial€of€Mr.€Jonesððs€claim€and€remanded€the€case€to€theÏcommissioner€for€further€proceedings.€€òòBrown€v.€TennesseeÏ¢Depððt£€of€Safety,óó€App.€No.€01A01„9102„CH„00043,€slip€op.€at€11Ï(Tenn.€Ct.€App.€April€1,€1992)€(No€Tenn.€R.€App.€P.€11Ïapplication€filed).ÌÌà àThe€commissioner€assigned€the€case€to€anÏadministrative€law€judge€after€the€remand.€€The€¢ALJ£€deniedÏMr.€Jonesððs€motion€to€transfer€the€case€to€circuit€court€for€aÏjury€trial€and€conducted€a€hearing€on€Mr.€Jonesððs€petition€forÏthe€return€of€the€$45,445€on€October€22€and€23,€1992.€€On€JuneÏ10,€1993,€the€¢ALJ£€filed€an€initial€order€concluding€that€theÏ$40,065€found€in€the€paper€bag€hidden€behind€theÏentertainment€center€should€be€returned€to€Mr.€Jones.ÌÌà àAll€parties€appealed€the€¢ALJ£ððs€initial€decision€to€theÏcommissioner.€€On€October€4,€1994,€the€commissioner€filed€anÏorder€denying€Mr.€Brownððs€recusal€motion€and€declining€toÏaddress€the€constitutionality€of€the€forfeiture€statutes.€€TheÏcommissioner€also€concluded€that€Mr.€Jones€had€failed€toÏprove€that€he€resided€at€2491€¢Haischi£€Street€when€the€moneyÏwas€seized€and€that€Mr.€Jones€had€failed€to€establish€anÏinterest€in€the€seized€money.€€Accordingly,€the€commissionerÏordered€the€forfeiture€of€the€entire€$45,986€to€the€seizingÏagency.€€ÌÌà àMr.€Jones€filed€a€petition€for€review€in€the€ChanceryÏCourt€for€Davidson€County€alleging€that€the€forfeiture€statuteÏwas€unconstitutional€in€several€particulars€and€that€theÍcommissionerððs€decision€was€not€supported€by€substantialÏevidence.€€The€trial€court€determined€that€the€forfeitureÏstatutes€were€not€constitutionally€suspect€and€that€theÏcommissionerððs€decision€was€supported€by€substantialÏevidence.€€This€appeal€followed.ÌÌà@ àò òII.ó óÌà@ àòòò òEvolution€of€the€Drug€Forfeiture€Statutesó óóóÌÌà àTennesseeððs€drug€forfeiture€statutes€have€changedÏsubstantially€over€the€past€sixty€years.€€The€first€civilÏforfeiture€procedure€was€enacted€in€1937€when€the€GeneralÏAssembly€passed€the€Uniform€Narcotic€Law.¢× ƒN ××  ×£€€The€lawÏrequired€the€forfeiture€and€disposal€of€ð ð[¢a]ll£€narcotic€drugs,× ƒO ××  ×Ïthe€lawful€possession€of€which€is€not€established€or€the€titleÍto€which€cannot€be€ascertained.ðð€€òòSeeóó€Tenn.€Code€Ann.€ðð€52„1315.€€It€also€provided€for€a€judicial€forfeiture€proceedingÏconducted€by€ð ðthe€court€or€magistrate€having€jurisdiction.ðð€ÏòòSeeóó€Tenn.€Code€Ann.€ðð€52„1315(a).€ÌÌà àEighteen€years€later,€the€General€Assembly€enactedÏadditional€legislation€regarding€the€seizure€and€confiscationÏof€contraband€drugs.¢œ× ƒP ××  ×›£€€The€ð ðcontraband€drugsðð€covered€byÏthis€Act€included€marijuana€and€substances€defined€asÏð ðnarcotic€drugsðð€in€the€Uniform€Narcotic€Drug€Law.€€òòSeeóó€Tenn.ÏCode€Ann.€ðð€52„1401€(repealed€1971).€€The€new€statutes€notÏonly€authorized€the€forfeiture€of€contraband€œdrugs›€œbut,›€forÏthe€first€time,€authorized€the€forfeiture€of€conveyances€usedÏto€transport€contraband€drugs.€€òòSeeóó€Tenn.€Code€Ann.€ðð€52„1403€(repealed€1971).ÌÌà àIn€another€significant€departure€from€the€UniformÏNarcotic€Drug€Law,€the€1955€statute€provided€for€anÍadministrative,€rather€than€a€judicial,€forfeiture€proceeding.× ƒQ ××  ×€ÏòòSeeóó€Tenn.€Code€Ann.€ðð€52„1404€(codified€as€amended€at€Tenn.ÏCode€Ann.€ðð€53„11„201€(Supp.€1996)).€€Persons€claiming€anÏinterest€in€property€seized€as€contraband€were€authorized€toÏfile€a€written€claim€with€the€Commissioner€of€Safety,€and€theÏcommissioner€was€empowered€to€conduct€a€hearing€on€theÏclaim.× ƒR ××  ×€€òòSeeóó€Tenn.€Code€Ann.€ðð€52„1404.€€Persons€dissatisfiedÏwith€the€commissionerððs€disposition€of€the€claim€wereÏpermitted€to€obtain€judicial€review€by€filing€a€common„lawÏwrit€of€certiorari€in€the€Circuit€Court€for€Davidson€County.€ÏòòSeeóó€Tenn.€Code€Ann.€ðð€52„1405€(codified€as€Tenn.€Code€Ann.€ððÏ53„11„202(a)„(e)).€€The€review€was€limited€to€the€record€ofÏthe€proceedings€before€the€commissioner,€and€the€partiesÏwere€specifically€not€permitted€to€introduce€additionalÏevidence€in€the€circuit€court€proceeding.ÌÌà àIn€1971€the€General€Assembly€replaced€most€of€theÏUniform€Narcotic€Drug€Law€with€the€ð ðTennessee€Drug€ControlÏAct€of€1971.ðð¢œ× ƒS ××  ×›£€€This€Act€again€increased€the€number€of€drugsÏconsidered€to€be€ð ðcontrolled€substances.ððœ× ƒT ××  ×›€€It€also€expandedÏthe€types€of€property€subject€to€forfeiture€to€include€rawÏmaterials€and€equipment€used€to€produce€illegal€controlledÏsubstances,€property€used€to€contain€illegal€controlledÏsubstance€or€raw€materials,€and€books,€records,€and€otherÏmaterials€used€œto›€violate€the€law.¢× ƒU ××  ×£€€While€retaining€theÍadministrative€forfeiture€procedure€Ñ ° Ñestablished€in€1955,œ× ƒV ××  ×›Ïthe€Act€empowered€the€circuit€and€criminal€courts€to€enjoinÏviolations€of€the€controlled€substance€laws€and€gaveÏdefendants€in€these€civil€proceedings€a€statutory€right€to€aÏjury€trial.× ƒW ××  ×ÌÌà àDuring€the€intervening€twenty„five€years,€the€GeneralÏAssembly€has€expanded€the€scope€of€the€civil€drug€forfeitureÏlaws€on€five€occasions.€€In€1972€it€added€ð ðmoney€or€any€otherÏthing€of€valueðð€received€in€an€illegal€drug€transaction€to€theÏlist€of€property€subject€to€forfeiture.× ƒX ××  ×€€In€1983,€it€authorizedÏthe€forfeiture€of€ð ðall€proceeds€traceableðð€to€an€illegal€drugÏtransaction,× ƒY ××  ×€and€one€year€later€it€authorized€the€forfeitureÍof€ð ðdrug€paraphernalia.ðð× ƒZ ××  ×€€In€1986,€and€again€in€1994,€itÏmodified€the€scope€of€the€provision€relating€to€the€forfeitureÏof€conveyances.œ× ƒ[ ××  ×›ÌÌà àThe€caption€and€preamble€of€the€1986€Act€amending€theÏdrug€forfeiture€procedures€reveal€that€the€General€AssemblyÏconsidered€but€rejected€a€provision€authorizing€theÏforfeiture€of€real€property€used€to€facilitate€an€illegal€drugÏtransaction.× ƒ\ ××  ×€€The€General€Assembly€revisited€the€issue€fourÏyears€later€and€determined€that€both€real€property€used€toÏfacilitate€an€illegal€drug€transaction€and€interests€in€realÏproperty€acquired€with€the€proceeds€of€an€illegal€drugÍtransaction€should€be€subject€to€forfeiture.× ƒ] ××  ×€€Forfeitures€ofÏinterests€in€real€property€differ€from€all€other€civil€drugÏforfeitures€in€three€material€respects.€€First,€the€forfeitureÏcannot€occur€until€the€holder€of€an€interest€in€the€realÏproperty€is€convicted€of€a€specified€drug„related€offense.× ƒ^ ××  ×€ÏSecond,€the€forfeiture€procedure€is€judicial€rather€thanÏadministrative€and€is€commenced€by€the€filing€of€a€ð ðcivilÏforfeiture€suitðð€by€a€district€attorney€general€or€the€StateÏAttorney€General€and€Reporter.× ƒ_ ××  ×€€Third,€the€defendants€inÏthese€civil€proceedings€have€a€statutory€right€to€a€juryÏtrial.× ƒ` ××  ×€ÌÌà àThe€final€step€in€the€evolution€of€Tennesseeððs€civil€drugÏforfeiture€procedures€occurred€in€1994€when€the€GeneralÏAssembly€established€a€uniform€procedure€governing€theÍforfeiture€of€personal€property.× ƒa ××  ×€€This€new€procedure€doesÏnot€apply€to€all€types€of€forfeitures,€but€it€does€specificallyÏapply€to€forfeitures€of€personal€property€authorized€by€Tenn.ÏCode€Ann.€ðð€53„11„451.€€òòSeeóó€Tenn.€Code€Ann.€ðð€40„33„201Ï(Supp.€1996)€(amendments€effective€January€1,€1997).€€It€willÏalso€supplant€the€procedure€in€Tenn.€Code€Ann.€ðð€53„11„201.× ƒb ××  ×€€ÌÌà àLike€the€former€procedure,€the€new€uniform€procedureÏfollows€an€administrative€model.€€Claimants€seeking€toÏrecover€personal€property€subject€to€forfeiture€under€Tenn.ÏCode€Ann.€ðð€53„11„451€must€still€file€a€timely€claim€with€theÏCommissioner€of€Safety.€€Tenn.€Code€Ann.€ðð€40„33„206€(Supp.Ï1996).€€Claimants€are€entitled€to€a€contested€case€hearingÏconducted€in€accordance€with€the€Uniform€AdministrativeÏProcedures€Act.€€Tenn.€Code€Ann.€ðð€40„33„209(d)€(Supp.€1996).€ÏPersons€dissatisfied€with€a€final€agency€order€may€seekÏjudicial€review€by€filing€a€written€ð ðnotice€of€reviewðð€in€eitherÍthe€circuit€or€chancery€courts€of€Davidson€County.€Tenn.€CodeÏAnn.€ðð€40„33„213€(Supp.€1996).€€The€standard€of€review€inÏthese€proceedings€tracks€Tenn.€Code€Ann.€ðð€4„5„322(h)€(Supp.Ï1996),€except€that€the€reviewing€court€must€weigh€theÏevidence€using€the€preponderance€of€the€evidence€standard.€ÏTenn.€Code€Ann.€ðð€40„33„213(a),€„213(b)€(Supp.€1996).€€PartiesÏseeking€judicial€review€are€not€entitled€to€a€jury,€Tenn.€CodeÏAnn.€ðð€4„5„322(g)€(Supp.€1996),€and€the€review€is€limited€toÏthe€administrative€record€except€to€the€extent€that€Tenn.ÏCode€Ann.€ðð€4„5„322(e)€and€„322(g)€permit€the€introductionÏof€additional€evidence.ÌÌà àDuring€all€relevant€times€in€this€case,€the€money€seizedÏat€the€2491€¢Haischi£€Street€house€was€subject€to€forfeitureÏunder€Tenn.€Code€Ann.€ðð€53„11„451(a)(6)(A)€or€itsÏpredecessors.€€Persons€claiming€an€interest€in€the€money€hadÏa€statutory€right€to€file€a€claim€with€the€Department€of€SafetyÏand€to€participate€in€an€administrative€proceeding€duringÏwhich€the€state€had€the€burden€of€proving€by€a€preponderanceÏof€the€evidence€that€the€money€should€be€forfeited.€€PersonsÏdissatisfied€with€the€commissionerððs€decision€had€the€right€toÏseek€judicial€review€in€accordance€with€the€UniformÍAdministrative€Procedures€Act.× ƒc ××  ×€€This€review€is€based€on€theÏadministrative€record€and€is€conducted€by€the€trial€courtÏsitting€without€a€jury.ÌÌà@ àò òIII.ó óÌà@ àòòò òConstitutional€Right€to€a€Jury€Trialó óóóÌÌà àThe€right€to€a€jury€trial€guaranteed€by€Tenn.€Const.€art.€I,Ïðð€6€is€among€the€most€valuable€personal€rights€contained€inÏTennesseeððs€Declaration€of€Rights.€€òò¢Harbison£€v.€Briggs€Bros.ÏPaint€Mfg.€Co.,óó€209€Tenn.€534,€540,€354€¢S.W.2d£€464,€467€(1962);ÏòòBank€v.€Cooper,óó€10€Tenn.€(2€¢Yer£.)€599,€604€(1831).€€EveryÏversion€of€our€constitution€has€used€the€same€language€toÏdefine€this€right,€and€thus€its€contours€have€remainedÏunchanged€for€the€past€120€years.€€òòState€ex€rel.€Timothy€v.ÏHowse,óó€134€Tenn.€67,€80„81,€183€¢S.W.£€510,€514€(1915).€€Tenn.ÏConst.€art.€I,€ðð€6€guarantees€the€right€to€a€jury€trial€as€itÏexisted€at€common€law€when€the€Tennessee€Constitution€ofÍ1796€was€adopted.€€òòTown€of€¢Smyrna£€v.€Ridley,óó€730€¢S.W.2d£€318,Ï321€(Tenn.€1987);€òòWillard€v.€State,óó€174€Tenn.€642,€645,€130Ï¢S.W.2d£€99,€100€(1939);€òò¢Marler£€v.€Wear,óó€117€Tenn.€244,€246,€96Ï¢S.W.£€447,€448€(1906).ÌÌà àTenn.€Const.€art.€I,€ðð€6€does€not€guarantee€a€jury€trial€inÏevery€sort€of€case.€òòState€ex€rel.€Timothy€v.€Howse,óó€134€Tenn.Ïat€81,€183€¢S.W.£€at€514.€€It€does€not€apply€to€cases€that€couldÏbe€tried€without€a€jury€prior€to€1796,€òòNewport€¢Hous£.€Auth.€v.Ï¢Ballard£,óó€839€¢S.W.2d£€86,€88€(Tenn.€1992);€òòMemphis€&€ShelbyÏCounty€Bar€¢Assððn,€Inc.£€v.€¢Vick£,óó€40€Tenn.€App.€206,€216„17,€290Ï¢S.W.2d£€871,€876€(1955),€and€there€were€many€types€of€casesÏthat€could€be€tried€without€a€jury€at€that€time.€€òò¢Goddard£€v.ÏState,óó€10€Tenn.€(2€¢Yer£.)€96,€99„100€(1825).€€The€common€lawÏdid€not€require€a€jury€trial€in€equitable€proceedings,¢× ƒd ××  ×£Ïproceedings€in€which€there€were€no€disputed€factual€issues,¢× ƒe ××  ×£Íproceedings€for€the€punishment€of€small€offenses,¢× ƒf ××  ×£€orÏpaternity€proceedings.¢× ƒg ××  ×£ÌÌà àThe€common€law€also€did€not€require€a€trial€by€jury€inÏð ðsummary€proceedings.ðð€€A€summary€proceeding€is€one€thatÏis€more€speedy€and€informal€than€a€customary€legalÏproceeding.€€òòState€ex€rel.€¢Mynatt£€v.€King,óó€137€Tenn.€17,€29„30,Ï191€¢S.W.£€352,€355€(1916);€òòState€ex€rel.€Timothy€v.€Howse,óó€134ÏTenn.€at€82,€183€¢S.W.£€at€514.€€A€summary€proceeding€has€beenÏrecognized€as€permissible€in€cases€involving€the€ouster€ofÏpublic€officials€for€misconduct,× ƒh ××  ×€disbarment€of€lawyers,¢× ƒi ××  ×£Ïand€election€contests.¢× ƒj ××  ×£€€It€has€also€been€approved€inÏconfiscation€proceedings€involving€vehicles€used€toÍtransport€contraband€alcoholic€beverages¢× ƒk ××  ×£€and€game€animalsÏtaken€out€of€season.¢× ƒl ××  ×£ÌÌà àIn€addition€to€the€proceedings€that€did€not€require€a€trialÏby€jury€prior€to€1796,€Tenn.€Const.€art.€I,€ðð€6€does€not€apply€toÏclaims€or€proceedings€established€after€the€adoption€of€theÏTennessee€Constitution€of€1796.€€Accordingly,€the€GeneralÏAssembly€is€now€free€to€fashion€new€claims€and€remediesÏthat€do€not€include€the€use€of€a€jury.€€òò¢Plasti£„Line,€Inc.€v.ÏTennessee€Human€Rights€¢Commððn.£,óó€746€¢S.W.2d£€691,€694€(Tenn.Ï1988);€òòState€ex€rel.€¢Cates£€v.€Standard€Oil€Co.,óó€120€Tenn.€86,Ï137,€110€¢S.W.£€565,€577€(1908).¢× ƒm ××  ×£€€ÌÌà@ àò òIV.ó óÌà@ àòòò òJury€Trials€in€Drug€Forfeiture€Casesó óóóÌÌà àEvery€state€has€enacted€statutes€permitting€theÏconfiscation€and€forfeiture€of€property€used€in€or€derivedÏfrom€the€sale€of€illegal€drugs.€€Most€of€these€statutes€follow€aÏjudicial€model€that€requires€the€seizing€agency€to€commenceÏforfeiture€€proceedings€in€court.€€Tennessee€is€one€of€fiveÏstates€that€follow€an€administrative€model€in€which€forfeitureÏcases€are€processed€by€an€administrative€agency€with€theÏright€of€judicial€review€of€the€agencyððs€decision.¢× ƒn ××  ×£€€The€choiceÏbetween€the€judicial€or€administrative€model€influences€theÏclaimantððs€right€to€a€jury€trial.€€ÌÌà àMany€states€have€enacted€forfeiture€statutes€that€notÏonly€establish€the€right€to€recover€seized€property€but€alsoÏproscribe€the€procedure€for€asserting€this€right.€€In€theseÏjurisdictions,€the€statute€itself€frequently€states€whether€orÏnot€the€claimant€may€request€a€trial€by€jury.¢× ƒo ××  ×£€€However,Ïother€states€and€the€federal€government€have€simply€createdÏa€new€statutory€right€to€sue€to€recover€confiscated€propertyÏwithout€providing€a€new€procedure€for€asserting€the€right.ÏWhen€a€statute€does€not€provide€a€specific€remedy,€theÏparties€are€left€to€their€common„law€remedies.€€In€theseÏcircumstances,€the€prevailing€weight€of€authority€is€that€theÏclaimant€has€a€right€to€a€jury€trial€even€if€the€confiscationÍstatute€does€not€specifically€require€one.¢œ× ƒp ××  ×›£€€Several€courts,Ïhowever,€have€reached€different€results.¢× ƒq ××  ×£ÌÌà àWe€need€not€enter€the€debate€concerning€whetherÏpersons€seeking€to€recover€seized€property€had€a€right€atÏcommon€law€to€have€a€jury€consider€their€claim€because€theÏGeneral€Assembly€has€created€a€statutory€forfeitureÏprocedure€that€does€not€include€the€use€of€a€jury.€€TheÏTennessee€Constitution€vests€in€the€General€Assembly€theÏpower€to€enact€legislation€to€protect€the€health,€safety,€andÏwelfare€of€our€citizens,€and€Tenn.€Const.€art.€I,€ðð€6€does€notÍlimit€the€General€Assemblyððs€power€to€establish€new€claimsÏand€remedies€that€do€not€require€a€trial€by€jury.€€Accordingly,ÏTennesseeððs€administrative€forfeiture€statutes€do€not€runÏafoul€of€Tenn.€Const.€art.€I,€ðð€6.ÌÌà@ àò òV.ó óÌà@ àòòò òDue€Process€Claimsó óóóÌÌà àMr.€Jones€also€challenges€the€commissionerððs€€order€onÏdue€process€grounds.€€He€asserts€that€the€administrativeÏproceedings€were€unfair€because€they€were€presided€over€byÏthe€Commissioner€of€Safety.€€He€also€asserts€that€the€delayÏbetween€the€seizure€and€the€administrative€hearingsÏdeprived€him€of€his€right€to€a€prompt€hearing€at€a€meaningfulÏtime.€€We€find€these€claims€to€be€without€merit.̛̜à@ àò òA.ó óÌà@ àòòò òPecuniary€Bias€of€the€Commissioner€of€Safetyó óóóÌÌà àParties€to€administrative€proceedings,€like€parties€toÏjudicial€proceedings,€are€entitled€to€a€neutral€¢decision£„maker.€€òòCooper€v.€Williamson€County€Bd.€of€Educ.,óó€803€¢S.W.2d£Í200,€202€(Tenn.€1990);€òò¢Ogrodowcyk£€v.€Tennessee€Bd.€forÏLicensing€Health€Care€Facilities,óó€886€¢S.W.2d£€246,€252„53Ï(Tenn.€Ct.€App.€1994)€(¢Cantrell£,€J.,€concurring).€€Accordingly,Ïmembers€of€administrative€agencies€are€subject€to€the€sameÏdisqualification€standards€that€apply€to€judges€when€they€areÏperforming€adjudicatory€functions.€€òòTennessee€CableÏTelevision€¢Assððn£€v.€Tennessee€Pub.€Serv.€¢Commððn£,óó€844€¢S.W.2d£Ï151,€164„65€(Tenn.€Ct.€App.€1992);€Tenn.€Code€Ann.€ðð€4„5„302(a)€(1991).ÌÌà àJudges€cannot€have€a€personal€financial€stake€in€theÏproceedings€before€them.€€Tenn.€S.€Ct.€R.10,€Canon€3(C)(1)(c).€ÏAccordingly,€judicial€officers€must€disqualify€themselves€ifÏtheir€decision€affects€their€personal€compensation.€€òòConnallyÏv.€Georgia,óó€429€U.S.€245,€250,€97€S.€Ct.€546,€548€(1977);€òòIn€reÏ¢Dender£,óó€571€¢S.W.2d£€491,€492€(Tenn.€1978).€€This€principleÏapplies€to€administrative€decision„makers.€€òòGibson€v.Ï¢Berryhill£,óó€411€U.S.€564,€579,€93€S.€Ct.€1689,€1698€(1973);Ïòò¢Ogrodowcyk£€v.€Tennessee€Bd.€for€Licensing€Health€CareÏFacilities,óó€886€¢S.W.2d£€at€253.ÌÌà àThis€record€contains€no€evidence€that€the€CommissionerÏof€Safety€has€a€direct,€personal€pecuniary€interest€in€theÏoutcome€of€forfeiture€hearings€like€the€one€involved€in€thisÏcase.€€His€decisions€do€not€affect€his€personal€compensation.€ÏForfeited€property€seized€by€a€state€agency€is€sold€at€aÏpublic€sale€by€the€Commissioner€of€General€Services,× ƒr ××  ×€andÏthe€proceeds€of€the€sale€are€deposited€in€the€state€treasuryÏsubject€to€being€allocated€back€to€the€Department€of€SafetyÏto€be€used€to€enforce€the€laws€regulating€narcotic€drugs€andÏmarijuana.× ƒs ××  ×€€The€Department€of€Safety€does€not€have€accessÏto€the€proceeds€from€the€sale€of€property€seized€by€theÏTennessee€Bureau€of€Investigation€or€local€law€enforcementÏagencies.× ƒt ××  ×ÌÌà àAdministrative€decision„makers€are€presumed€to€carryÏout€their€duties€with€honesty€and€integrity.€€òòCooper€v.ÏWilliamson€County€Bd.€of€Educ.,óó€803€¢S.W.2d£€at€203;€òòTennesseeÏCable€Television€¢Assððn£€v.€Tennessee€Pub.€Serv.€¢Commððn£,óó€844Í¢S.W.2d£€at€165.€€Thus,€the€party€claiming€bias€bears€the€burdenÏof€proving€the€grounds€for€disqualification.€€òòGay€v.€City€ofÏSomerville,óó€878€¢S.W.2d£€124,€127€(Tenn.€Ct.€App.€1994).€€NeitherÏthe€commissioner€nor€his€department€could€have€benefittedÏfrom€this€forfeiture€proceeding€since€the€money€at€issue€wasÏseized€by€a€local€law€enforcement€agency.€€Accordingly,€Mr.ÏJones€has€failed€to€substantiate€his€bias€claim€with€eitherÏlegal€authority€or€facts.€€ÌÌà@ àò òB.ó óÌà@ àòòò òDelay€Between€the€Seizure€and€the€Hearingó óóóÌÌà àMr.€Jones€asserts€that€the€41„month€delay€between€theÏseizure€of€the€money€and€the€hearing€on€his€claim€violated€hisÏconstitutional€right€to€a€hearing€at€a€meaningful€time€and€hisÏstatutory€right€to€a€prompt€hearing.€€He€argues€that€the€delayÏis€entirely€attributable€to€the€government€and€that€he€wasÏprejudiced€because€two€key€witnesses€became€unavailableÏduring€this€period.€€We€have€concluded€that€the€delay€betweenÏthe€seizure€and€the€hearing€is€not€of€constitutionalÏsignificance.€ÌÌà àThis€case€presents€the€first€opportunity€for€this€court€toÏconsider€the€claim€that€a€delay€between€the€seizure€ofÏproperty€and€the€forfeiture€hearing€violated€a€claimantððsÏright€to€a€hearing€at€a€meaningful€time€under€the€Fifth€andÏFourteenth€Amendments€to€the€United€States€ConstitutionÏand€the€Due€Process€Clause€in€Tenn.€Const.€art.€I,€ðð€8.€€Since€theÏTennessee€Supreme€Court€has€found€the€scope€of€the€dueÏprocess€protections€in€the€Tennessee€Constitution€to€beÏsimilar€to€those€in€the€United€States€Constitution,€òòDoe€v.ÏNorris,óó€751€¢S.W.2d£€834,€838€(Tenn.€1988);€òòState€ex€rel.€¢Anglin£Ïv.€Mitchell,óó€596€¢S.W.2d£€779,€786€(Tenn.€1980),€we€will€look€toÏfederal€precedents€for€helpful€guidance.ÌÌà àThe€United€States€Supreme€Court€has€recognized€thatÏdelay€in€instituting€civil€forfeiture€proceedings€can€violate€aÏclaimantððs€due€process€rights.€€Drawing€from€its€speedy€trialÏjurisprudence,€the€Court€determined€that€forfeiture€delayÏclaims€require€an€examination€of€the€facts€of€each€case€inÏlight€of€the€following€four€factors:€(1)€the€length€of€the€delay,Ï(2)€the€reason€for€the€delay,€(3)€the€claimantððs€assertion€ofÏhis€or€her€rights,€and€(4)€the€prejudice€to€the€claimant€causedÏby€the€delay.€€òòUnited€States€v.€Eight€Thousand€Eight€HundredÍand€Fifty€Dollars€in€United€States€Currency,óó€461€U.S.€555,€564,Ï103€S.€Ct.€2005,€2012€(1983).€€€The€Tennessee€Supreme€CourtÏhas€adopted€essentially€the€same€test€to€determine€whetherÏpre„accusatorial€delay€violates€due€process.€òòState€v.€Gray,óóÏ917€¢S.W.2d£€668,€673€(Tenn.€1996)€(holding€that€the€courtsÏmust€consider€the€length€of€the€delay,€the€reason€for€theÏdelay,€and€the€degree€of€prejudice,€if€any,€to€the€accused).€€ÌÌà àOf€these€factors,€the€most€critical€is€the€prejudice€to€theÏaccused.€€òòState€v.€¢Hallock£,óó€875€¢S.W.2d£€285,€289€(Tenn.€¢Crim£.ÏApp.€1993);€òò¢Tillery£€v.€State,óó€565€¢S.W.2d£€509,€510€(Tenn.€¢Crim£.ÏApp.€1978).€€For€the€purposes€of€the€inquiry,€the€courts€areÏchiefly€concerned€with€the€prejudice€to€a€partyððs€ability€toÏmarshal€its€evidence€and€to€present€its€case.€€òòBarker€v.€¢Wingo£,óóÏ407€U.S.€514,€532,€92€S.€Ct.€2182,€2193€(1972);€òòState€v.€Vance,óóÏ888€¢S.W.2d£€776,€778€(Tenn.€Crim.€App.€1994).€€A€delay€will€beÏconsidered€constitutionally€harmless€without€a€clear€showingÏof€actual€prejudice.€€òòState€v.€¢Hallock£,óó€875€¢S.W.2d£€at€289.ÌÌà àThe€41„month€delay€between€the€seizure€of€the€moneyÏand€the€forfeiture€hearing,€while€extremely€long,€cannot€beÏsolely€attributable€to€the€law€enforcement€authorities.€€Mr.ÍJones€did€not€file€a€timely€claim€for€the€return€of€the€money,Ïand€his€standing€to€claim€the€money€was€contested€in€theÏcourts.€€The€courts€did€not€finally€resolve€Mr.€Jonesððs€right€toÏclaim€the€money€until€April€1992.€€We€cannot€fault€theÏcommissioner€for€not€holding€the€forfeiture€hearing€while€Mr.ÏJonesððs€right€to€claim€the€money€was€being€litigated.€€TheÏcommissioner€held€the€administrative€hearing€on€Mr.€JonesððsÏclaim€within€six€months€after€this€court€decided€that€heÏshould€be€given€an€opportunity€to€claim€the€seized€money.× ƒu ××  ×€ÏThus,€the€facts€provide€no€basis€for€concluding€that€theÏcommissioner€intentionally€delayed€the€hearing€to€gain€aÏtactical€advantage€over€Mr.€Jones.ÌÌà àPrejudice€is€evident€when€witnesses€die€or€disappearÏwhile€a€hearing€is€delayed.€€òòBarker€v.€¢Wingo£,óó€407€U.S.€at€532,Ï92€S.€Ct.€at€2193.€€However,€persons€seeking€to€prove€that€aÏdelay€impaired€their€ability€to€present€favorable€evidenceÏmust€demonstrate€actual€prejudice€by€offering€some€proof€ofÏthe€witnessððs€expected€testimony€and€of€their€efforts€toÏassure€that€these€witnesses€would€attend€the€hearing.€€òòStateÍv.€Perkins,óó€713€¢S.W.2d£€689,€692€(Tenn.€¢Crim£.€App.€1986);ÏòòWoodson€v.€State,óó€579€¢S.W.2d£€893,€897€(Tenn.€¢Crim£.€App.€1978);ÏòòFarr€v.€State,óó€506€¢S.W.2d£€811,€814€(Tenn.€¢Crim£.€App.€1974).ÌÌà àMr.€Jones€asserts€that€two€key€witnesses,€¢Halbert£€BrownÏand€Kathryn€Smith,€became€unavailable€because€of€the€delay.€ÏMr.€Brown€was€living€at€the€¢Haischi£€Street€house€at€the€time€ofÏthe€seizure,€and€Ms.€Smith€was€Mr.€Jonesððs€former€girlfriend.€ÏMr.€Jones€intended€to€use€these€witnesses€to€prove€that€heÏwas€also€residing€at€2491€¢Haischi£€Street€at€the€time€of€theÏseizure.€€Mr.€Jones€has€not€satisfactorily€demonstrated€thatÏthe€delay€prevented€him€from€calling€these€witnesses€or€thatÏtheir€testimony€would€have€been€of€material€assistance.ÌÌà àMr.€Jones€did€not€complain€about€his€inability€to€callÏthese€witness€after€this€case€was€remanded€for€a€hearingÏbefore€the€commissioner.€€In€June€1992,€he€represented€in€aÏbrief€that€his€witnesses€had€not€disappeared.€€One€monthÏlater,€his€lawyer€did€not€include€the€absence€or€disappearanceÏof€witnesses€among€the€problems€confronting€him€during€anÏargument€to€the€administrative€law€judge€concerning€how€theÏdelay€had€prejudiced€his€client.€€Thus,€we€can€only€concludeÍthat€these€witnesses€were€available€to€Mr.€Jones€as€late€asÏone€month€before€the€original€date€of€the€forfeiture€hearing.ÌÌà àMr.€Jones€has€never€come€forward€with€an€explanation€ofÏeither€Mr.€Brownððs€Ìor€Ms.€Smithððs€disappearance€between€July€and€October€1992.€ÏIn€fact,€Ms.€Smith€had€not€disappeared€at€all€because€Mr.€JonesÏannounced€at€the€hearing€that€he€knew€where€she€was€and€thatÏshe€was€available€for€a€telephone€deposition.€€He€neverÏexplained€the€steps€he€had€taken€to€assure€her€attendance€atÏthe€hearing.€€Likewise,€he€never€described€the€steps€he€hadÏtaken€to€assure€Mr.€Brownððs€attendance€at€the€hearing.€€TheÏdepartment€had,€however,€attempted€unsuccessfully€toÏsubpoena€Mr.€Brown.ÌÌà àMr.€Jones€also€failed€to€demonstrate€how€Mr.€Brownððs€andÏMs.€Smithððs€testimony€would€have€been€helpful€to€him.€€HeÏintended€to€call€them€solely€for€the€purpose€of€substantiatingÏhis€claim€that€he€was€also€living€at€2491€¢Haischi£€Street€in€MayÏ1989€when€the€money€was€seized.€€He€has€never€indicated€thatÏeither€of€these€witnesses€could€have€provided€testimonyÏconcerning€the€other€necessary€element€of€his€claim€„€that€heÍowned€the€money€he€was€seeking€to€recover.€€In€fact,€theÏrecord€shows€affirmatively€that€these€two€witnesses€wouldÏhave€been€of€no€assistance€on€this€issue.€€Mr.€Brown€told€theÏauthorities€at€the€time€of€the€seizure€that€he€did€not€knowÏwho€the€money€belonged€to,€and€Mr.€Jones€testified€at€theÏOctober€1992€hearing€that€Ms.€Smith€did€not€know€how€muchÏmoney€he€had.ÌÌà àThe€delay€between€the€seizure€of€the€money€and€theÏforfeiture€hearing€was,€for€the€most€part,€caused€by€theÏprotracted€litigation€over€Mr.€Jonesððs€right€to€claim€theÏseized€money.€€Mr.€Jones€has€not€convinced€us€that€this€delayÏseriously€undermined€his€ability€to€present€his€claim.€ÏAccordingly,€we€have€concluded€that€Mr.€Jones€was€provided€aÏhearing€on€his€claim€at€a€meaningful€time€under€theÏcircumstances.€€ÌœÇÌ›à@ àò òVI.ó óÌà@ àòòò òThe€Adequacy€of€the€œSupporting€Proofó óóó›ÌÌà àFinally,€Mr.€Jones€asserts€that€the€commissionerððsÏdecision€is€not€supported€by€substantial€and€materialÏevidence.€€He€argues€that€the€commissionerððs€financial€biasÏcaused€him€to€overlook€the€overwhelming€evidenceÏestablishing€Mr.€Jonesððs€ownership€of€the€seized€money.€ÏHaving€already€resolved€the€allegations€concerning€theÏcommissionerððs€alleged€bias,€we€now€turn€to€the€evidentiaryÏsupport€for€the€commissionerððs€decision.̛̜à@ àò òA.ó óÌÌà àOur€review€of€the€commissionerððs€decision€is€governedÏby€the€Uniform€Administrative€Procedures€Act.€€Tenn.€CodeÏAnn.€ðð€4„5„322(h)(5)€(Supp.€1996)€requires€the€courts€toÏreverse€a€final€administrative€decision€that€is€ð ðunsupportedÏby€evidence€which€is€both€substantial€and€material€in€the€lightÏof€the€entire€record.ðð€€We€do€not€¢reweigh£€the€evidence€underÏthis€standard.€€òò¢Sanifill£€of€Tennessee,€Inc.€v.€Tennessee€SolidÍWaste€Disposal€Control€Bd.,óó€907€¢S.W.2d£€807,€810€(Tenn.€1995);ÏòòHumana€of€Tennessee€€v.€Tennessee€Health€Facilities€¢Commððn£,óóÏ551€¢S.W.2d£€664,€667€(Tenn.€1977).€€Rather,€we€review€theÏrecord€to€determine€whether€the€administrative€decision€isÏbased€on€ð ðsuch€relevant€evidence€as€a€reasonable€mind€mightÏaccept€to€support€a€rational€conclusion€and€such€as€to€furnishÏa€reasonably€sound€basis€for€the€action€under€consideration.ðð€ÏòòSouthern€Ry.€Co.€v.€State€Bd.€of€Equalization,óó€682€¢S.W.2d£€196,Ï199€(Tenn.€1984).ÌÌà àAn€agencyððs€decision€may€be€supported€by€substantialÏand€material€evidence€even€when€the€evidence€could€supportÏanother€conclusion.€€òòHughes€v.€Board€of€¢Commððrs£,óó€204€Tenn.Ï298,€305,€319€¢S.W.2d£€481,€484€(1958);€òòEstate€of€Street€v.ÏState€Bd.€of€Equalization,óó€812€¢S.W.2d£€583,€587€(Tenn.€Ct.€App.Ï1990).€€Thus,€the€possibility€of€drawing€inconsistentÏconclusions€from€the€proof€does€not€prevent€an€agencyððsÏdecision€from€being€supported€by€substantial€and€materialÏevidence.€€òòSeeóó€òò¢Consolo£€v.€Federal€Maritime€¢Commððn£,óó€383€U.S.Ï607,€620,€86€S.€Ct.€1018,€1026€(1966);€2€Kenneth€C.€Davis€&ÏRichard€J.€Pierce,€Jr.,€òòAdministrative€Law€Treatiseóó€ðð€11.2€atÏ177€(3d€ed.€1994).€€The€courts€need€only€reject€an€agencyððsÍfactual€findings€when,€considering€the€record€as€a€whole,€aÏreasonable€mind€would€¢necessarily£€come€to€a€differentÏconclusion.€€5€Jacob€A.€Stein,€òòAdministrative€Lawóó€ðð€51.02,€atÏ51„61€(1992).ÌÌà àThe€substantial€and€material€evidence€standard€in€Tenn.ÏCode€Ann.€ðð€4„5„322(h)(5)€still€requires€a€searching€andÏcareful€inquiry€into€the€record€and€the€basis€for€theÏadministrative€decision.€€òò¢Sanifill£€of€Tennessee,€Inc.€v.ÏTennessee€Solid€Waste€Disposal€Control€Bd.,óó€907€¢S.W.2d£€atÏ810;€òòWayne€County€v.€Solid€Waste€Disposal€Control€Bd.,óó€756Ï¢S.W.2d£€274,€280€(Tenn.€Ct.€App.€1988).€€This€is€especially€trueÏin€forfeiture€proceedings€because€the€facts€must€fall€withinÏboth€the€spirit€and€the€letter€of€the€law€before€a€person€canÏbe€deprived€of€his€or€her€property.€€òòSeeóó€òòBiggs€v.€State,€óó207ÏTenn.€603,€608,€341€¢S.W.2d£€737,€740€(1960);€òòHays€v.€Montague,óóÏ860€¢S.W.2d£€403,€406€(Tenn.€Ct.€App.€1993).ÌÌà@ àò òB.ó óÌÌà àThe€commissioner€determined€that€Mr.€Jones€failed€toÏprove€that€he€owned€the€money€seized€at€2491€¢Haischi£€Street.€ÍThe€commissioner€also€found€that€Mr.€Jones€was€not€aÏresident€of€the€house.€€A€claimant,€however,€is€not€required€toÏprove€residence€but€rather€to€prove€an€¢innocent€interest€inÏthe€seized€property.€€€òòSeeóó€Tenn.€Code€Ann.€ðð€53„11„201(f).€ÏThus,€a€conclusion€that€Mr.€Jones€did€not€reside€in€the€houseÏdoes€not,€by€itself,€defeat€Mr.€Jonesððs€claim,€but€it€could€tendÏto€disprove€Mr.€Jonesððs€claim€that€he€owned€the€money€foundÏin€the€house.ÌÌà àMr.€Jonesððs€description€of€how€the€money€was€packagedÏdiffered€from€the€testimony€of€the€officers€who€seized€theÏmoney.€€He€testified€that€he€placed€loose€money€in€the€holeÏbehind€the€entertainment€center€and€that€very€little€of€theÏmoney€was€packaged€in€sandwich€bags.€€He€also€testified€thatÏthe€money€was€wrapped€in€$1,000€bundles.€€The€officersÏtestified€that€all€the€money€found€behind€the€entertainmentÏcenter€was€separately€wrapped€in€sandwich€bags€and€thatÏeach€bag€contained€a€$2,000€roll€of€bills.€€They€also€testifiedÏthat€all€the€sandwich€bags€full€of€money€were€contained€in€aÏpaper€grocery€sack.€The€omissions€and€inconsistencies€in€Mr.ÏJonesððs€testimony€concerning€the€money€provided€theÍcommissioner€with€an€appropriate€basis€to€find€that€Mr.€JonesÏhad€not€proved€that€the€money€was€his.€€ÌÌà àMr.€Jonesððs€claim€is€also€undermined€by€his€sketchyÏproof€concerning€how€he€was€able€to€accumulate€$45,000€andÏthe€inconclusive€testimony€of€his€spending€and€living€habits.€ÏHe€testified€that€the€money€represented€his€life€savings€andÏthat€he€had€obtain€the€money€through€full„time€work,Ïmoonlighting,€and€gambling.€€He€also€testified€that€he€hadÏstopped€using€banks€during€his€divorce.€€The€only€documentedÏproof€of€Mr.€Jonesððs€income€was€a€1989€W„2€form€showing€thatÏhe€had€earned€$18,434€that€year.ÌÌà àMr.€Jones€also€claimed€that€he€paid€his€child€supportÏthrough€a€payroll€deduction.€€However,€the€available€recordsÏindicated€that€he€had€made€only€thirteen€child€supportÏpayments€between€1978€and€1988€and€that€his€child€supportÏwas€$1,709€in€arrears.€€While€his€former€girlfriend€and€his€firstÏcousin€testified€that€Mr.€Jones€loaned€them€money,€neither€ofÏthem€knew€where€he€got€the€money,€how€much€money€he€had,Ïor€where€he€kept€his€money.€€Mr.€Jones€asserted€that€Mr.ÏBrown€was€the€only€other€person€who€knew€about€his€moneyÍand€its€hiding€place,€but€Mr.€Brown€told€the€officers€who€foundÏthe€money€that€he€did€not€know€who€it€belonged€to.€€Mr.ÏJonesððs€inability€to€describe€the€money€accurately€and€toÏprove€that€he€had€the€means€to€accumulate€approximatelyÏ$45,000€support€the€commissionerððs€decision€that€Mr.€JonesÏhad€not€proved€that€the€seized€money€was€his.€€After€anÏexamination€of€the€entire€record,€we€cannot€conclude€that€aÏreasonable€mind€would€necessarily€come€to€a€differentÏconclusion.ÌÌà àWe€need€not€determine€in€this€case€whether€the€recordÏcontains€substantial€and€material€proof€that€the€seizedÏmoney€was€the€proceeds€of€illegal€drug€trafficking.€€Tenn.ÏCode€Ann.€ðð€53„11„201(f)€does€not€permit€the€commissionerÏto€grant€a€claim€for€seized€property€until€the€claimant€provesÏan€innocent€interest€in€the€seized€property.€€Mr.€Jones€did€notÏsubstantiate€his€claim€that€he€owned€the€seized€money.€€In€theÏabsence€of€any€other€valid€claim€of€ownership,€the€money€mayÏbe€summarily€forfeited€to€the€seizing€agency€without€theÏnecessity€of€presenting€proof€that€it€was€the€proceeds€ofÏillegal€drug€trafficking.€ÌÌà@ àò òVII.€ó óÌÌà àWe€affirm€the€judgment€of€the€trial€court€affirming€theÏcommissionerððs€order€€that€the€$45,445€in€currency€seized€atÏ2491€¢Haischi£€Street€on€May€26,€1989€should€be€forfeited€inÏaccordance€with€Tenn.€Code€Ann.€ðð€53„11„451(a)(6)(A).€€WeÏalso€remand€the€case€for€whatever€further€proceedings€mayÏbe€required€and€tax€the€costs€of€this€appeal€to€Freddie€LeeÏJones€and€his€surety€for€which€execution,€if€necessary,€mayÏissue.ÌÌÓÓà àà àà àà àà àà àà à____________________________Ìà àà àà àà àà àà àà àWILLIAM€C.€KOCH,€JR.,ÏJUDGEÌÌCONCUR:ÌÌ________________________________ÌHENRY€F.€TODD,€¢P.J.£,€M.S.€ÌÌ________________________________ÌSAMUEL€L.€LEWIS,€JUDGE€œ›