WPC{ ~B8km|Y\W+^o눌nt&d#!xUN % 0(UF UP[ UF w 4   0l 0D UF [ UFf   N  m 6 U:^ UUUUUUUUUUUUUUU 0Daa Bkk A 0K11111 D+|||||||||||||||||||| D5 AQ- 0D 0D7HP LaserJet 8000 DN PS0(hH  Z 6Times New Roman RegularX($<Q 9Z .Courier New Regular&@FZ 8CaslonOpnface BT Regular<: 9Z .Courier New Regular{Z='3|x  $    1    XCXXXXXCTheShelterofferedtestimonythatmorethantwostaffmemberswould P  sometimesbeatthehome.((3$ !      0  (#$  0  <4 9Z .Courier New Regular Q  $    2    XCXXXXXCThese otherfacilitieswerenotidentified.Noonetestifiedasto P  anycrimesorotherincidentsinvolvingtheresidentsoftheShelters   existingfacility.<4 9Z .Courier New Regular    U , b"  _X=XXX -XX=   Ad FILEDX=X -  September3,1999Cecil_Crowson_,Jr.AppellateCourtClerkdAx ,cAZ"Arial Regular#' (3$ !  ݁Level 1Level 2Level 3Level 4Level 5 d)'BG&OLE 2.0 Box <=8C HKKKK( $ Figure  1  'dxd++++)!dxdxab'c[C<<CLevel 1Level 2Level 3Level 4Level 5(3$ !  ($$   1  !  _P XXXXTR[A' Legal3'A' Legal3'T8!XXdd8@| | INTHECOURTOFAPPEALSOFTENNESSEE P  _x`[B2.jz`  `@EN- ` 8ttxP&  x_@$ATNASHVILLEWILSONCOUNTYYOUTHEMERGENCY  )C/ANO.01A019812CH00634 * SHELTER,INC.,    h   )     `     h   )   ` PlaintiffAppellant,)   `     h   )   `     h   )   `     h   )V.   `     h   )APPEALASOFRIGHTFROMTHE      `     h   )WILSONCOUNTYCHANCERYCOURT   `     h   )   `     h   )   `     h   )   `     h   )WILSONCOUNTYANDWILSON h   )  COUNTYBOARDOFZONINGAPPEALS,)   `     h   )HONORABLE_C.K._ԀSMITH,   ` DefendantsAppellees.)CHANCELLORForAppellant    h   ForAppellees !h _RANDLE_ԀW.HILL,JR.   h   MICHAELR.JENNINGS d# Nashville,Tennessee h   Lebanon,Tennessee :$ @$XXXX 0!XXOPINION  !! 0XX ! Ԉ 4)2 REVERSEDANDREMANDED h      p      x Susano,J.  b:09 _[   ` TheWilsonCountyBoardofZoningAppeals( theBZA)deniedthepetitionofWilsonCountyYouthEmergencyShelter,   Inc.( theShelter)forauseonreviewtoconstructagroup  X homeon5.46acresofpropertyinWilsonCounty.TheShelter T proposestomoveitsexistingfacilityinthecountytothenew  location.Onpetitionforcertiorari,thetrialcourtaffirmed \  theactionoftheBZA.TheShelterappeals,arguingthatthe X  BZAsdecisionwasillegal,arbitrary,andbeyondits   jurisdiction.Bywayofaseparateissue,theShelterargues `  thatthereisnomaterialevidencetosupporttheBZAsdenialof \  itspetition.  @,,"I.ThePetition `    ` TheShelterproposestobuildagrouphomeasa !t residenceandinhouseschoolingfacilityforupto12 p#  individualsinanA1ZonebeingtheAgriculturalZonein %  WilsonCounty.Thehomeisdesignedtoaccommodateupto12 &x" individualsandtwostaffmembers.   #  1       t($$    ` TestimonybeforetheBZAreflectsthattheresidents +|!( are,andwillcontinuetobe,childrenbetweentheagesof12and x-(#* 18.Someareabusedandneglected,whileothershavebeenunruly $/$, athome.Thehomeisdescribedasalevelonefacility nota 0&. lockdownfacility.Someoftheinhabitantshavebeenguiltyof |2,(0  passivedelinquen[cy]charges,suchasburglaryandminor (4)2 larceny,whilesomehave drugissues.Thehomedoesnottake 5+4 childrenwhohavebeenguiltyofviolentcrimes. P     ` ThemajorityofthechildrencomefromtheDepartment  X ofChildrenServicesunderacontractwiththestate. T Approximately25%oftheresidentsarefromWilsonCounty.The  averagestayisapproximately27days.In1996,theexisting \  facilityinWilsonCountyserviced162children.Thedirectorof X  thefacilitytestifiedthattherehadbeenrunawaysinthepast   butthattherewerenoincidentsassociatedwiththose `  individuals.HestatedthattheShelterhadbeenatitspresent \  location,onaquarteracrelot,forsevenyearswithnoproblems  regardingcrimeinthecommunity. d    ` Whenthechildrenleavethefacility,somegotofoster   homes;somereturnhome;andsomegototheWilsonCountyYouth !h Ranch,anothergrouphomeinWilsonCounty.Thehomeoperatedby d# theShelterisdescribedasa temporaryemergencyshelter.The %  facilityisaUnitedWayagency.Itreceives$45perdayper &l" childfromthestatetohelpdefraythedailyperchildcostof h($ $56.UnitedWayandprivatefundraisingmakeupthedifference. *& @xx!II.TheOpposition l-#*    ` TheShelterspetitionwasmetbyapetitionin 0&. oppositionsignedby96individualswholiveintheareaofthe |2,(0 proposedsite.Numerouspeoplespokeinoppositionatthe (4)2 hearingbeforetheBZA. 5+4    ` AmongthereasonsgivenforopposingtheShelters ,9.8 petitionwerethefollowing:becausethe crimerate[is] P  climbinglikeitis;thereareelderlypeopleinthecommunity   whodontfeelsafe byhavingthistypeofshelterputintheir  X community;theproposedhomewilldepreciatethevaluesofthe T surroundingproperties;at otherfacilities,  #  2      ׀there hasbeena  lotofrobberyaroundthearea,breakins;fearthatsomeone \  willbreakout androbsomebody,orrape[]oneofthe[]kidsin X  theneighborhood;becausethereisnopublicsewer outthere;    wontfeelsafetoletthekidsroamaround;twopeoplecant `  supervise 12kidswiththistypebackground;anearbycreek \  willriseandcoverupthepropertyinquestion;problemswith  sewagebecauseofthecompositionofthesoil;lackofwaterto d thesite;andsimilarcomplaints. `    ` Theneighborsvocaloppositionwasmetbystatements !h oftheShelterspersonneltotheeffectthattherewasawater d# easementtotheproperty;thatafirehydranthadalreadybeen %  purchased;andthatthepropertyhadbeenapprovedbytheHealth &l" Departmentforasanitaryseptictanksystem. h($ @@ @ III.PlanningStaffsRecommendation +p!(    ` TheWilsonCountyPlanningCommissionstaffrecommended $/$, approvaloftheShelterspetition ifitisfoundbythe[BZA] 0&. tofollowtheintentoftheA1district.Thestaffsuggested |2,(0 thattheBZAgive [c]arefulconsideration...tothelevelof (4)2 servicesavailabletotheproperty,andstatedthat 5+4 Ї  8 ` thereisnopublicwateralongthisportion P  ofHighway231Southandfireprotection &  wouldberestrictedaccordingly.Theresno   firehydrant,andservicewouldbeprovided   byEmergencyManagementfromapumpertruck.  X Staffisconcernedwiththelackoffire ~. protectionforthisproposedgrouphome.T` x` x @xx!IV.BZAsDecision \     ` Inathreetoonedecision,theBZAdeniedthe   Shelterspetition.Asabasisforitsdecision,theBZAcited l  theproposed location,lackoffireprotection,andthenumber h ofpeopleatthegrouphomeonadailybasis.  @,,"V.TheA1Zone l    ` Aspertinenttotheissuesonthisappeal,Wilson ! CountysA1AgriculturalZoneregulationsprovideasfollows: |#,   8 ` SECTION5.20AGRICULTURAL(A1)&"` x` x k+  8 ` 5.20.01GENERALINTENT(0$` x` x   8 ` Thisdistrictisintendedtoaccommodateuses ,*& typicallyconductedinagriculturalareas,in + ' additiontoruraldensityresidentialuses.+!(` x` x +  8 ` WithinA1AgriculturalDistrictsasshownon -4#* theOfficialZoningAtlasofWilsonCounty, Z. $+ thefollowingregulationsshallapply.0/$,` x` x   8 ` 5.20.02USESPERMITTED0&.` x` x G-@XX%*** 28(0   8 ` 5.20.03USESPERMISSIBLEONAPPEAL44)2` x` x .  8 ` Thefollowingusesmaybepermissibleon 5+4 appealbytheBoardofZoningAppealsin 6f,5 accordancewithprovisionscontainedin 7<-6 Section6.40oftheseregulations.b8.7` x` x   8 ` A.Aircraftlandingfield,hangarsand :/9 equipment.P ` x` x @&***   S/   ` B.Automobilegraveyard;  X    ` C.Bicycleserviceandrepair; ~.    ` D.Cemetery; T    ` E.Church; *    ` F.Commercialanimalfacility;     ` G.CountryClub;      ` H.Dogkennel; \     ` I.Golfcourse; 2     ` J.Grouphome; X     ` K.Hospital; 4     ` L.Library;       ` M.Livestockholding/feedingarea;     8 ` N.Manufacturingincidentaltoretail f  utilizingnomorethan35%oftheareaof < structureformanufacturing;b` x` x    ` O.Nursinghome; 8    ` P.Recreationaluses;     ` Q.Retirementcenter;    8 ` R.Sanitarylandfillsubjecttomeetingall j requirementsofaregisteredsolidwaste @ disposalsiteasdefinedinChapter120017 f oftheRulesoftheTennesseeDepartmentof < PublicHealthandEnvironmentandany   criteriaidentifiedbyWilsonCounty   officials;!n` x` x    ` S.School; "D    ` T.Serviceuses; p#     ` U.Utilityand/orgovernmentaluse; F$   8 ` V.Usespermittedorpermissibleonappeal %  inaC1NeighborhoodCommercialDistrict.%!` x` x   8 ` W.Othersimilarusesasreviewedand &x" approvedbytheBoardofZoningAppeals.'N#` x` x    ` 5.20.04USESPROHIBITED J)%   8 ` Usesnotspecificallypermittedor * ' permissibleonappeal.+|!(` x` x   (Emphasisadded).PertinentprovisionsregardingtheBZAareas $/$, follows: 0&. :   ` SECTION6.40BOARDOFZONINGAPPEALS (4)2   8 ` 6.04.01CREATIONANDAPPOINTMENT.AWilson 5+4 CountyBoardofZoningAppeals(hereafter 6Z,5 referredtoastheBoard)ishereby 70-6 establishedinaccordancewithSection137 V8.7 106oftheTennesseeCodeAnnotated....,9.8` x` x  :/9 @XX%*** P    8 ` 6.40.04POWERS.TheBoardshallhavethe   followingpowersandduties: ` x` x @XX%*** ~.   8 ` B.SPECIALEXCEPTIONS.Tohearanddecide * inaccordancewiththeprovisionsofthis  regulation,requestsforspecialexceptions,   suchasusespermittedonappeal,...\ ` x` x   8 ` TheBoardmayatitsdiscretionrequire X  reasonableconditionsbemetconcerningthe .  locationofstructures,accesstoproperty,   noise,dust,vibrations,andanyother   reasonablerequirementtheBoarddeems `  necessarytoprotectthesurroundingproperty 6 whengrantingspecialexceptions,...\ ` x` x @XX%***    8 ` D.PROCEDUREFORAUTHORIZINGASPECIAL d EXCEPTIONASAUSEPERMISSIBLEONAPPEAL. : Thefollowingprocedureisestablishedto ` integrateproperlytheUsesPermissibleon 6 Appealwithotherlanduseslocatedinthe   zone.Theseusesshallbereviewedbythe   BoardofZoningAppealsasaSpecial !h ExceptionUseonAppealrequestand "> authorizedorrejectedunderthefollowing d# procedure::$` x` x   8 `  1.APPLICATION.Anapplicationshall %! befiledwiththeBoardofZoningAppealsfor &l" review.Saidapplicationshallshowthe 'B# locationandintendedusesofthesite,and h($ shallbeaccompaniedbyfive(5)copiesofa >)% plotplanofproposeddevelopmentwhichhas *& beenapprovedbytheCountyHealth * ' Department,togetherwithanyothermaterial +p!( pertinenttotherequestwhichtheBoardmay ,F") require.l-#*` x` x   8 `  2.PUBLICHEARING.Uponapplication, /$, theBoardofZoningAppealsshallgiveaten /%- (10)daynotificationofapublichearing. 0t&. Suchnoticeoftimeandplaceofsuchhearing 1J'/ shallbepublishedinadailypaperof p2 (0 generalcirculationinWilsonCounty.F3(1` x` x   8 `  3.RESTRICTIONS.Intheexerciseof 4*3 itsapproval,theBoardofZoningAppealsmay 5x+4 imposesuchconditionsregardingthe 6N,5 location,character,orotherfeaturesofthe t7$-6 proposeduseoflandorbuildingsasitmay J8-7 deemadvisableinthefurtheranceofthe  9.8 generalpurposeoftheseRegulations.9/9` x` x Ї  8 `  4.VALIDITYOFPLANS.Allapproved P  plans,conditions,restrictions,andrules &  madeapartoftheapprovaloftheBoardof   ZoningAppealsshallconstitutecertification   onthepartoftheapplicantthatthe  X proposedusesshallconformtosuch ~. regulationsatalltimes.T` x` x @xx!VI.ApplicableLaw \     ` Zoninglaws,beinginderogationofthecommonlawand   tendingtodepriveapropertyownerofauseofitspropertythat l  wouldotherwisebelawful, aretobestrictlyconstruedbythe h courtsinfavorofthepropertyowner. Stateexrel.Browning  FerrisIndustriesofTenn.,Inc.v.BoardofCommissionersof  KnoxCounty ,806S.W.2d181,187(Tenn.App.1990).Seealso \  AndersonCountyv.RemoteLandfillServices,Inc. ,833S.W.2d x ( 903,909(Tenn.App.1991). D"    ` Anactionbyaboardofzoningappealsisan %L  administrativeratherthanalegislativeact. McCallenv.City H'" ofMemphis ,786S.W.2d633,639(Tenn.1990).Thisisbecause )$ suchanaction executes[alaw]alreadyinexistence. Id .The * & term administrativeis usedinterchangeablywithjudicialor ,\"( quasijudicial. Id .at638. X.$*    ` Areviewofanadministrativeactionisbycommonlaw 1'. writofcertiorari.SeeT.C.A.278101.Seealso McCallen , |3,)0 786S.W.2dat639. H5*2    ` Whethertheactionbythelocalgovernmentalbodyis 8P.6 legislativeoradministrativeinnature,thecourtshouldrefrain L:/8 [     fromsubstitutingitsjudgmentforthebroaddiscretionary P  authorityofthelocalgovernmentalbody. Id .at64142.   However,acourtshouldinvalidateadecisionthatisclearly  x illegal,arbitrary,orcapricious. Id . t$    ` Thequestionofwhetherthereissufficientevidenceto   sustainazoningactionisaquestionoflaw. MCProperties, H  Inc.v.CityofChattanooga ,994S.W.2d132,134(Tenn.App. d  1999).Hence,appellatereviewisdenovowithoutapresumption 0  ofcorrectness. Id .     ` Ifthereisnoevidencetosupportthezoningaction, ` itisarbitrary. Sextonv.AndersonCounty ,587S.W.2d663,667   (Tenn.App.1979).Inreviewingazoningaction,anappellate   courtmustdosowiththerecognitionthat thediscretionary "4 authorityofthegovernmentbodymustbeexercisedwithin 0$ existingstandardsandguidelines. McCallen ,786S.W.2dat639. %  @#VII.Analysis T)$    ` ThereisnoevidencetosupporttheBZAsdecisionto ,h"( denytheShelterspetitionforauseonreviewtoestablisha d.$* grouphomeonpropertyintheWilsonCountyA1Zone.TheBZA 0%, baseditsdenialonavaguereferenceto location,alackof 1l'. fireprotection,andthenumberofpeoplelivinginthehome. h3)0 TheproofsimplydoesnotsustaintheBZAsreasonsfordenying 5*2 theShelterspetition. 6p,4    ` Attheoutset,itshouldbenotedthattheA1Zone :/8 contemplatesuseofpropertyasagrouphomeandforaschool. P  Suchusesareclearlyspecifiedasusespermittedonreview.   Thismeansthatanapplicantforsuchusescannotobtainthe  X necessarypermittoproceedwithitsplanswithoutgoingthrough T theappealprocessoutlinedintheZoningOrdinance;butoncethe  applicantgoesthroughtheprocessandtherequesteduse \  satisfiesallotherpertinentregulationsofthelocalzoning X  regulations,itmustbegranted.Theplanningstaffwasinerror   whenitstatedthatitwasfortheBZAtosaywhetheragroup `  homewasan intendeduseintheA1Zone;thezoningordinance \  expresslysaysthatitis.Cf. Sexton ,587S.W.2dat665(When  alegislativebodyincludesacertainusewithinagivenzoneas  auseonreview,suchauseisanintendeduseinthatzone). <    ` Aspreviouslyindicated,numerouscitizensappearedin ! oppositiontotheSheltersproposeduseofthesubjectproperty; #@ but itisnotafunctionoftheboardtoconductareferendumon <%  publicattitudesrelativeto[a]petition.587S.W.2dat664 &" n.1.Whatwesaidin Sexton regardingalandfillapplieswith (D$ equalforcehere: `* &   8 ` Variousmembersofthecommunityexpressed -h#* beliefsandopinionsthatthepresenceofthe .>$+ landfillwouldcreatenoxiousodorsand d/%, resultinfallingpropertyvalues;theyalso :0%- thoughtthattrucksdeliveringrefusetothe 1&. siteofthefillwouldcauseadditional 1'/ damagetothelocalroads.Thesestatements 2l(0 wereofferedontheissueofwhetherthe 3B)1 intendeduseis potentiallydangerous, h4*2 noxiousoroffensive.Nonerisestothe >5*3 dignityofbeingmaterialevidenceonthe 6+4 issue.Ineachinstance,thestatements 6,5 amounttoanexpressionofopiniononthe 7p-6 ultimateissue,unsubstantiatedbyfactual 8F.7 premises.Speculations,expressionoffears l9/8 andconsiderationsofanaestheticor B:/9 politicalnaturedonotformabasisto ;0: supportadecisionmadebyanadministrative P  bodychargedwithadjudicatory &  responsibility. ` x` x  Id .at66566. T    ` TheonlyevidencebeforetheBZAregardingfire |  protectionwastheSheltersproofthatithadawatereasement x(  tothepropertyandthatithadalreadypurchasedafirehydrant. $  Ontheissueofasewagesystem,theonlyproofbeforetheBZA   wasthattheHealthDepartmenthadapprovedasanitaryseptic |, tanksystemfortheproperty. (    ` Whenanemployeeoftheplanningcommissionwasasked 0 iftheplannedusemetallrequirementsotherthanthewater ,  issuewhich,aswehavenoted,hasinfactbeenfully ! satisfiedhereplied: [a]sfarasweareaware,yes,it #4 does. 0%     ` ThereissimplynoevidencethattheShelters (8$ applicationforauseonreviewviolatesanypartorprovisionof 4*& theA1ZoningRegulation.WhiletheBZAhasauthoritytoact +!( underthezoningregulations,itmustact withinexisting -<#* standardsandguidelines. McCallen ,786S.W.2dat639.It 8/$, clearlydoesnothaveunbridledauthoritytodenyanotherwise 1&. fullycompliantrequestsimplybecauseothercitizensareopposed 2`(0 totheuse. \4 *2 @"VIII.Conclusion 7d-6    ` Thejudgmentofthetrialcourtisreversed.This ;0: matterisremandedtothetrialcourtfortheentryofanorder P  directingtheBZAtoapprovetheSheltersrequestforauseon   reviewtoconstructagrouphomeonthesubjectproperty.Costs  X onappealandcostsinthetrialcourtaretaxedtothe T appellees.     `     h     __________________________ X     `     h     CharlesD.Susano,Jr.,J. .  CONCUR: `  ________________________  HoustonM.Goddard,P.J.  ________________________ 6 HerschelP.Franks,J.