ÿWPCg" …#†VUNÜ %* 0 (04Xl 0l{ 0Dç 0J+ 0Tu É 0^Ñ 0h/ 0r— 0| 0†… 0 1u› U, 0d< U,  U>Ì U 6 B)@DCi AM¬U*ù D3# BV?s 0@²¶òY¨äHåv~-vÓ« AO~ ÆÍ 0D“! 0D×! D/" BJ"˜HP LaserJet 4/4MHPPCL5E,,,,0®ØP 7<ÊG7¾e âP(ÈhH  Z ‹6Times New Roman RegularX($¡¡U_A 3|xª ((3üÝ$¤¤Ý ƒ!ÝÝ  Ýà  àòòÚ  Ú0Ú  Úóó(#Ã$òòÚ  Ú0Ú  Úóó2 ÿÿ0Indent1Ô2ÔÔ3  Ô2" ÿÿ0Indent2à0 àÔ2ÔÔ3  Ô2, ÿÿ0Indent3à0 àà0 àÔ2ÔÔ3  Ô26 ÿÿ0Indent4à0 àà0 àà0 àÔ2ÔÔ3  Ô2@ ÿÿ0Indent5à0 àà0 àà0 àà0 àÔ2ÔÔ3  Ô2J ÿÿ0Indent6à0 àà0 àà0 àà0 àà0 àÔ2ÔÔ3  Ô2T ÿÿ0Indent7à0 àà0 àà0 àà0 àà0 àà0 àÔ2ÔÔ3  Ô2^ ÿÿ0Indent8à0 àà0 àà0 àà0 àà0 àà0 àà0 àÔ2ÔÔ3  Ô  ÿÿ?AGMSYaioIndent0I.A.1.a.(1)(a)i)a)< Œ 9p`(ModernP ÿÿ8Mac DefaultMac DefaultÓ ` °šXÓ< Œ 9p`(Monaco< Œ 9p`(&Times New Roman< Œ 9p`(Courier New% Line 7 d&&&&7Border 1dd€-'Cþÿ << Gÿÿ< Œ 9p`(Arial++++'ÿÿdxd d 5Ý ƒ!ÝÑ#€d#ÑÔ€ÔÔ€$ÔÝ  ÝÝ ƒ"ÝÝ  ÝÔ€)ÔÔ€)ÔÓ  ÓÔ YYY ÔFILEDÔ€)XÔÌÌò òFebruary€14,€1996ÌÌCecil€Crowson,€Jr.ÌÔ€)ôÔAppellate€Court€Clerkó ó("ÿÿ$££Ò  ÒÒ  Ò ¬Ý ƒ!ÝÑ#€d#ÑÔ€ÔÔ€$ÔÝ  ÝÝ ƒ $Ýà àòòÚ  ÚÚ  ÚóóÝ  ÝÔ€%ÔÔ€%ôÔThe€City€filed€"matters€outside€the€pleadings"€in€support€of€itsÏmotion.€€Because€of€this,€our€disposition€of€this€case€is€controlled€by€theÏsummary€judgment€rule,€Tenn.€R.€Civ.€P.€56.€€òòSeeóó€Tenn.€R.€Civ.€P.€12.02.Ì OÝ ƒ!ÝÑ#€d#ÑÔ€ÔÔ€$ÔÝ  ÝÝ ƒ $Ýà àòòÚ  ÚÚ  ÚóóÝ  ÝÔ€%ÔÔ€%ôÔT.C.A.€ðð€6„2„103(b)€formerly€provided€that€"[e]very€act,€contract,€andÏagreement€òòultra€viresóó€shall€be€null€and€void."Ì ÚÝ ƒ!ÝÑ#€d#ÑÔ€ÔÔ€$ÔÝ  ÝÝ ƒ $Ýà àòòÚ  ÚÚ  ÚóóÝ  ÝÔ€%ÔÔ€%ôÔIn€1991,€the€General€Assembly€entirely€replaced€Title€6,€Chapters€1€andÏ2€of€the€Tennessee€Code€Annotated€with€new€provisions.€€òòSeeóó€Chapter€154,ÏPublic€Acts€of€1991.€€All€of€the€statutory€provisions€cited€in€this€opinionÏare€those€existing€before€that€change.Ì >Ý ƒ!ÝÑ#€d#ÑÔ€ÔÔ€$ÔÝ  ÝÝ ƒ $Ýà àòòÚ  ÚÚ  ÚóóÝ  ÝÔ€%ÔÔ€%ôÔFor€example,€the€former€provisions€of€T.C.A.€ðð€6„2„102€required€thatÌÌà àà8 à[e]ach€ordinance,€or€the€caption€and€a€completeÏsummary€of€each€ordinance,€shall€be€published€afterÏits€final€passage€in€a€newspaper€of€generalÏcirculation€in€the€municipality.€€No€ordinance€shallÏtake€effect€until€the€ordinance€or€its€caption€andÏsummary€is€published.ÌÌIt€is€undisputed€that€the€city's€resolution€of€November€27,€1989,€was€notÏpublished€as€required€by€this€code€section.€€òòSee€alsoóó€T.C.A.€ðð€6„2„308€quotedÏin€the€body€of€this€opinion.€€There€was€also€no€compliance€with€this€latterÏstatutory€provision.ÌPtPtHHÚ(ÿáÿâùFG(üHHÚ(d'@Styl{WP}01•ÃÃÃÃÃÃÃÃÃÃÃÃÃÃÃÃÃÃà Ãà Ãà Ãà Ãà ÃÃÃÃÃÃÃÃÃÃÃÐ ÐÐHHÐÐ  ÐÐ2ÐÐÿÿ¸æ$ÿÐÐHHÐÐÐÐÐÐÐÐ  ÐÐ ÐÐ ÐÑÑÑGenevaÑÑ ÑÑ € ÑÑ<Px–ÈÑÒÒÒ443!#4ÒÒ$ *$ÒÒ$*$ÒÒ ÿKK ÒÒ  Geneva ÒÒ  Geneva ÒÓ.,ÓÓÓÓ6ÓÓ ÓßßßßßßßßßßßßßßßßßßÑMonacoÑÑ ÑÒ  BA: T Monaco ÒÒ  BA: T Monaco Ò€-‚ƒCþÿ<< CÿÿƒLevel 1Level 2Level 3Level 4Level 5(3¯$¢¢Ý ƒ!ÝÝ  Ý($$””ò òÚ  Ú1Ú  Úó ó„„'÷ÿ dxdüÿP PdÝ ƒ!ÝÔ . ÔÔ€ÔÓ&€##X„d&ÓÑ#€##Xd#ÑÔ€$ÔÝ  ÝÑ P ÑÔ€%ÔÑ\R AØ'\ÑÑ7€u3XXdìdÈ7ÑÓ  ÓÑ  ÑIN€THE€COURT€OF€APPEALS€OF€TENNESSEEÌÌÌÓ  ÓÌÌJOHNNY€KING,€€€€€€€€€€€€€€€€)€C/A€NO.€03A01„9511„CH„00386Ì€€€€€€€€€€€€€€€€€€€€€€€€€€€€)€CAMPBELL€COUNTY€CHANCERY€COURTÌà à€€Plaintiff„Appellant,€)Ì€€€€€€€€€€€€€€€€€€€€€€€€€€€€)Ì€€€€€€€€€€€€€€€€€€€€€€€€€€€€)Ì€€€€€€€€€€€€€€€€€€€€€€€€€€€€)Ìà àà àà àà àà à€€€)Ìv.€€€€€€€€€€€€€€€€€€€€€€€€€€)€HONORABLE€BILLY€JOE€WHITE,Ì€€€€€€€€€€€€€€€€€€€€€€€€€€€€)€CHANCELLORÌÙ€€ÙßL€(,';+'h|` Å `€€L߀€€€€€€€€€€€€€€€€€€€€€€€€€€€)Ì€€€€€€€€€€€€€€€€€€€€€€€€€€€€)Ì€€€€€€€€€€€€€€€€€€€€€€€€€€€€)Ì€€€€€€€€€€€€€€€€€€€€€€€€€€€€)ÌCITY€OF€CARYVILLE,€€€€€€€€€€)Ì€€€€€€€€€€€€€€€€€€€€€€€€€€€€)€Ìà à€€€Defendant„Appellee.€)€AFFIRMED€ANDÏREMANDEDÌÌÌÌÌÌPHILIP€A.€KAZEE€of€SEXTON,€SEXTON,€&€KAZEE,€P.C.,€Oneida,€forÏAppellant.ÌÌCARROL€D.€KILGORE€of€BRANSTETTER,€KILGORE,€STRANCH€&€JENNINGS,ÏNashville,€for€Appellee.€€€ÌÌÌÌÌÌÌÌÌÌÌÌÌÌÌÌÌÌÓ  ÓòòÌO€P€I€N€I€O€NóóÌÓ  ÓÌà àà àà àà àà àà àà àà àà àSusano,€J.ÇÓÓà àà àThis€is€a€breach€of€contract€action.€€The€defendant€CityÏof€Caryville€(Caryville€or€City)€refused€to€honor€a€contractÏadmittedly€executed€by€its€Mayor.€€The€contract€granted€theÏplaintiff€Johnny€King€(King)€the€exclusive€right€to€operate€andÏmanage€a€solid€waste€landfill€for€the€City.€€The€trial€courtÏgranted€Caryville's€Tenn.€R.€Civ.€P.€12.02(6)€motion€to€dismiss× ƒ. ××  ×,Ïfinding€that€ÌÌÒ ` ÒÒ ` ÒÓÓunder€the€provisions€of€[Caryville's]Ïstatutory€Charter€and€particularly€of€T.C.A.Ïformer€ðð€6„2„201(1)€and€(19),€the€power€[toÏauthorize€the€contract]€could€only€beÏexercised€by€following€the€formal€requisitesÏfor€the€adoption€of€ordinances€and€not€by€mereÏresolution€of€the€City€Council,€so€that€theÏResolution€adopted€and€the€Contract€enteredÏinto€are€òòultra€viresóó€and€therefore€null€andÏvoid€under€T.C.A.€former€Ìðð€6„2„103(b).× ƒ/ ××  ×ÌÌÌÌÒ ° ÒÒ ° ÒÓÓKing€appeals,€raising€one€issue.€€That€issue,€taken€essentiallyÏverbatim€from€his€brief,€is€as€follows:ÌÌÒ ` ÒÒ ` ÒÓÓDid€the€trial€court€err€in€finding€that€theÏCity€of€Caryville€had€no€implied€or€inherentÏpower,€by€resolution,€to€provide€for€theÏcollection€and€disposal€of€the€City's€garbageÏor€solid€waste,€and€to€enter€into€contractsÏwith€private€persons€for€that€purpose,€in€Ïview€of€the€power€expressly€conferred€upon€theÏCity€"to€prevent€or€remove€nuisances"€byÏformer€T.C.A.€ðð6„2„201(2)?ÌÌÌÌÓÓWe€affirm.ÌÌÒ ° ÒÒ ° ÒÓ  ÓIÌÌÓ  Óà àà àThe€facts€of€this€case€are€not€in€dispute.€€On€NovemberÏ27,€1989,€Caryville's€Board€of€Aldermen€(Board)adopted€aÏresolution,€the€relevant€terms€of€which€are€as€follows:ÌÌÒ ` ÒÒ ` ÒÓÓWHEREAS,€the€City€of€Caryville€is€currentlyÏincurring€substantial€expense€in€disposing€ofÏsolid€waste€originating€from€within€the€City;ÏandÌÌà à*à àà à*à àà à*ÌÌWHEREAS,€Johnny€King€of€Oneida,€Tennessee€hasÏpresented€a€proposal€whereby€that€[sic]€thisÏCity€may€greatly€reduce€the€cost€of€disposingÏof€solid€waste,€and€further€protect€the€healthÏand€safety€of€our€citizens;€nowÌà àÌTHEREFORE,€I€move€that€we€accept€the€proposalÏas€heretofore€presented€by€Johnny€King,Ïauthorize€the€Mayor€to€submit€the€City'sÍapplication€for€registration€of€a€solid€wasteÏdisposal€or€processing€operation,€with€theÏTennessee€Department€of€Public€Health,€SolidÏWaste€Division,€State€of€Tennessee,€and€toÏauthorize€the€Mayor€to€execute€such€contractsÏand€leases€and€such€other€documents€as€may€beÏnecessary€to€effectuate€and/or€carry€out€theÏproposal€as€presented€by€Johnny€King.ÌÌÌÌÒ ° ÒÒ ° ÒÓÓThis€resolution€was€the€only€official€action€taken€by€the€BoardÏauthorizing€the€Mayor€to€contract€with€King.ÌÌà àà àTwo€days€after€the€resolution€was€adopted,€the€Mayor€ofÏCaryville,€expressly€acting€on€behalf€of€the€City,€executed€aÏcontract€with€King€ÌÌÒ ` ÒÒ ` ÒÓÓfor€the€specific€purpose€of€establishing€andÏoperating€a€landfill€in€Scott€County,ÏTennessee,€upon€the€real€property€described€inÏthe€lease€dated€November€29,€1989,€for€the€useÏand€benefit€for€the€City.€ÌÌÌÌÒ ° ÒÒ ° ÒÓÓAs€indicated,€King€and€the€Mayor€also€executed€a€lease€agreementÏunder€which€Caryville€agreed€to€lease€some€113€acres€from€King€toÏbe€used€as€the€City's€solid€waste€landfill.€€According€to€King'sÏcomplaint,€the€City€breached€the€contract.€€This€fact€is€notÏdisputed€as€far€as€this€appeal€is€concerned.€€King€sued€CaryvilleÏon€the€contract,€and€the€Chancellor,€as€previously€noted,€foundÍthat€Caryville's€execution€of€the€contract€was€òòultra€viresóó€andÏthat€the€contract€was€therefore€null€and€void.€€He€accordinglyÏgranted€Caryville€summary€judgment,€dismissing€the€complaint.ÌÌÓ  ÓIIÌÌÓ  Óà àà àThe€issue€in€this€case€causes€us€to€focus€on€Caryville'sÏincorporation.€€òòCf.€ò òCity€of€Lebanon€v.€Baird,€ó óóó756€S.W.2d€236,Ï244€(Tenn.1988).€€Caryville€selected€the€mayor„aldermanic€form€ofÏgovernment,€thereby€making€the€City€subject€to€the€statutoryÏprovisions€of€Chapter€1€of€Title€6€of€the€Tennessee€Code.€ÏCaryville's€adoption€of€that€form€of€government€had€the€furtherÏeffect€of€bringing€it€within€the€ambit€of€Chapter€2€of€Title€6,Ïpursuant€to€T.C.A.€ðð€6„2„101,€as€that€statute€was€in€effect× ƒ0 ××  ×€at€allÏtimes€relevant€to€this€controversy.€€That€statute€provided€asÏfollows:Ìà àà àÌÒ ` ÒÒ ` ÒÓÓAll€municipalities€organized€or€amending€theirÏcharters€under€chapter€1€of€this€title€shallÏbe€controlled€by€and€subject€to€theÏlimitations€and€restrictions€of€this€chapter.ÌÌÌÌÒ ° ÒÒ ° ÒÓÓà àà àThe€statutory€powers€granted€to€Caryville€were€set€forthÏin€T.C.A.€ðð€6„2„201.€€It€provided,€in€pertinent€part,€as€follows:ÌÌÒ ` ÒÒ ` ÒÓÓEvery€corporation€formed€as€above€shall€haveÏfull€power€and€authority:€ÌÌ€(1)€To€enact€such€bylaws€and€ordinances€asÏmay€be€necessary€and€proper€to€preserve€theÏhealth,€quiet,€and€good€order€of€the€town;ÌÌ€(2)€To€prevent€or€remove€nuisances;ÌÌà à*à àà à*à àà à*ÌÌ(19)€To€pass€all€bylaws€and€ordinancesÏnecessary€and€proper€to€enforce€the€powersÏgranted,€not€inconsistent€with€theÏConstitution€and€laws€of€the€United€States€orÏof€the€state€of€Tennessee.€€€ÌÌÌÌÒ ° ÒÒ ° ÒÓÓà àà àMuch€of€King's€brief€is€devoted€to€his€argument€thatÏCaryville€had€the€implied€or€inherent€power€to€provide€for€theÏcollection€and€disposal€of€the€City's€garbage€under€T.C.A.€ðð€6„2„201(2),€which€empowered€Caryville€"[t]o€prevent€or€removeÏnuisances."€€This€argument€misses€the€point.€€The€issue€is€notÏòòwhatóó€powers€the€City€had;€but€rather€òòhowóó€those€powers€had€to€beÏexercised.€€òòò òCity€of€Lebanon€v.€Bairdó óóó,€756€S.W.2d€236,€241Ï(Tenn.€1988)€("Thus,€the€law€recognizes€a€difference€between€theÍexistence€of€a€municipal€power€and€the€manner€or€mode€ofÏexercising€municipal€power€legitimately.")€€Subsections€(1)€andÏ(19)€of€T.C.A.€ðð€6„2„201€mandated€that€the€passage€of€an€ordinanceÏwas€necessary€in€order€to€"enforce€the€powers"€of€the€City.€€ItÏfollows€that€the€City's€contract€with€King€was€not€properlyÏauthorized€by€the€November€27,€1989,€resolution€since€that€actionÏwas€unattended€by€the€requisite€formalities€of€an€ordinance× ƒ1 ××  ×.€€TheÏChancellor€found€that€"under€.€.€.€T.C.A.€former€ðð€6„2„201(1)€andÏ(19),€the€power€could€only€be€exercised€by€following€the€formalÏrequisites€for€the€adoption€of€ordinances€.€.€."€€We€agree;€butÏthere€was€still€another€justification€for€the€Chancellor's€ruling,Ïand€that€was€previously€found€at€T.C.A.€ðð€6„2„308:ÌÌÒ ` ÒÒ ` ÒÓÓòòNo€appropriation€of€moneyóó,€or€order€involvingÏit,€or€levy€of€taxes,€shall€be€made€unless€theÏordinance€authorizing€the€same€be€read€once€onÍthree€(3)€separate€days,€and€passed€on€itsÏthird€reading€by€a€majority€of€the€entireÏboard,€by€calling€the€ayes€and€noes.€€AllÏother€ordinances€shall€be€read€on€two€(2)Ïseparate€days.€€All€ayes€and€noes€on€allÏordinances€shall€be€recorded.€€ÌÌÌÌÒ ° ÒÒ ° ÒÓÓ(Emphasis€added).€€Under€this€section,€it€is€clear€that€the€KingÏcontract,€involving€as€it€did€the€"appropriation€of€money"€for€theÏlease,€had€to€be€authorized€by€ordinance.€€Because€Caryville€didÏnot€follow€the€proper€procedure€to€authorize€the€Mayor€to€bind€theÏCity€by€contract,€we€agree€with€the€Chancellor's€judgment€that€theÏCity's€execution€of€the€contract€was€òòultra€viresóó.òò€óó€ò òòòKeenan€&€WadeÏv.€City€of€Trenton,€ó óóó130€Tenn.€71,€168€S.W.€1053,€1055€(1914)Ï("[T]he€legislative€stipulation,€here€appearing,€that€the€mannerÏof€exercise€should€be€by€way€of€ordinance€made€it€incumbent,€inÏorder€to€validity€[sic],€that€such€more€deliberate€form€ofÏauthorization€should€have€been€adopted.");€òòò òTerry€v.ÏCommissioners€of€Cookeville,€ó óóó198€S.W.2d€1010,€1012Ï(Tenn.1947);€ò òòòCity€of€Lebanonó óóó€at€243.€€("The€procedure€is€itselfÏessential€to€the€validity€of€the€act€since€it€is€this€process€thatÏprovides€the€protection€to€the€citizens€.€.€.€.€€For€the€city€toÏignore€the€distinction€drawn€by€a€charter€between€a€resolution€andÏan€ordinance€results€in€the€act€being€òòultra€viresóó.").ÌÌÓ  ÓÇIIIÌÌÓ  Óà àà àWe€must€next€determine€the€effect€of€our€holding€thatÏCaryville's€dealings€with€King€were€òòultra€vires.€€óóThe€general€ruleÏis€that€òòultra€viresóó€conduct€renders€the€resulting€act€null€andÏvoid.€€T.C.A.€ðð€6„2„103(b)€("Every€act,€contract,€and€agreementÏòòultra€viresóó€shall€be€null€and€void.");€ò òòòCity€of€Lebanonóóó ó,€756ÏS.W.2d€at€241.€€The€Supreme€Court€has€noted€exceptions€to€thisÏgeneral€rule.€€In€ò òòòCity€of€Lebanonó óóó,€the€court€observed€thatÌÌÒ ` ÒÒ ` ÒÓÓ[i]f€a€city's€action€is€òòultra€vires,€óónotÏbecause€the€power€has€not€been€granted€to€itÏto€act€in€the€first€instance,€but€because€theÏcity€failed€to€exercise€a€power€it€has€in€theÏmanner€prescribed€by€controlling€law,€theÏquestion€is€what€consequences€flow€fromÏvoiding€the€action.€.€.€.€When€the€city€hasÏattempted€to€enter€a€contract€that€is€òòultraÏvires€óóbecause€it€was€not€entered€into€in€theÏauthorized€manner,€the€issue€is€oftenÏpresented€as€to€whether€the€concepts€ofÏequitable€estoppel€or€implied€contract€areÏapplicable.€€ÌÌÌÌÒ ° ÒÒ ° ÒÓÓ756€S.W.2d€at€243.€€However,€in€the€present€case,€King€did€notÏpresent€an€"equitable€estoppel€or€implied€contract"€issue€toÏeither€the€trial€court€or€this€court.€€Furthermore,€there€are€noÏfacts€before€us€to€suggest€that€either€doctrine€is€applicableÍhere.€€òòCf.€ò òCity€of€Lebanonó óóó€at€243„46.€€These€exceptions€do€notÏprovide€Kind€a€"safe€harbor"€from€the€general€rule€that€an€actionÏòòultra€viresóó€is€null€and€void.ÌÌà àà àOur€decision€finding€this€contract€to€be€null€and€voidÏis€further€bolstered€by€the€provisions€of€T.C.A.€ðð€6„2„103(a):ÌÌÒ ` ÒÒ ` ÒÓÓAll€persons€dealing€with€municipalÏcorporations€shall€be€put€upon€inquiry;€and€inÏall€cases€the€burden€of€proof€shall€be€uponÏthem€to€show€the€law€is€pursued€as€to€itsÏpowers.ÌÌÌÌÒ ° ÒÒ ° ÒÓÓKing€has€failed€to€meet€his€burden.€€On€the€contrary,€it€isÏabundantly€clear€that€"the€law€[was€not]€pursued€as€to€[theÏCity's]€powers"€as€far€as€the€subject€contract€is€concerned.€€òòSeeÏalso€ò òCity€of€Lebanonó óóó€at€244€("Moreover,€when€entering€a€contractÏwith€a€municipality,€'[o]ne€dealing€with€municipal€officers,Ïboards,€or€committees€is€bound€at€his€peril€to€take€notice€of€theÏlimitation€of€their€authority.'"€€(quoting€from€ò òòòKries€&€Co.€v.ÏCity€of€Knoxvilleóóó ó,€145€Tenn.€297,€305,€237€S.W.€55,€57€(1921)).ÌÌà àà àFor€all€of€the€foregoing€reasons,€we€affirm€theÏChancellor's€holding€that€the€contract€between€King€and€the€CityÍof€Caryville€was€null€and€void.€€We€therefore€affirm€the€judgmentÏof€the€trial€court€in€its€entirety€and€remand€this€case€to€thatÏcourt€for€the€collection€of€costs€assessed€there.€€Costs€on€appealÏare€taxed€and€assessed€to€the€appellant.ÌÌÓÓ€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€Ïà àà àà àà àà àà àà àà àà àà à___________________________________Ìà àà àà àà àà à€Charles€D.€Susano,€Jr.,€J.ÌÇÌÌCONCUR:ÌÌÌÌ_________________________ÌHerschel€P.€Franks,€J.ÌÌÌÌ_________________________ÌDon€T.€McMurray,€J.