ÿWPC‚d ÂzÅ®Eÿ;Š¤´Îq"êÖ£!|-4Õ6âŠÓT_®Eÿ;ô¿5ïÄšãyp ü`]ô’ó±ìˆp‚Ò=N(ëUrØ«L9e!“‚¹2ÿ%žþ1¬”UR”âºÿÍöãÀO\NÙŒý‡¨ÑW©2¯¶ç;Þ󂨮èªn»ÅK8¯ùý<ñ;¹œÃ‚BÈç§íÇîÄ;­p¾•¾¼NñUívÉçF™ºÐaÚwdFØ‘{†q¼mÒ™ÐÚYrð;ò>øm^0ÅìÌlóLêÒðdx¥èyQ0¨´q(ÿ%‚¶5üb·ƒ<ŽÚ›«LlrÿT-ÛlbžïM‰w£âê”=ê[ùx…Ò„ÏàËU]÷á9ñ(:QíPÝÞŽDUÞ‘šŠ-ÕÁü1©èCÅâ‚ä 0·äTîÙû×8^mušS…¢‚óT;B Ž¸ÚN£wͦŒEs»6=ÚaÇ!Æ.Žz»w#±yÓ!Žq)`ÿéù Öúj¶XUïA6S/dúºmð¦Äýþ?öï£Ñ›o y³•@ø˜ Î4ø÷h. *Ç)6{!Gö©§º¥Zêù%}¼# -à/:[ÿZ¥K N¤öÚb#É\ %% UN+ 0ˆy U*N  O äo zSÒÍ÷Ÿ– ³ 0D½ÆÆÇÆÆS P!Ni'™k'%.E)17+1^ b7wn7lr74Þ9ò9:–:V™> 0Nï>ï> m=?— T?ëKëKÏïOïO·¾V¾V¾V¾V¾V¾Vbu_u_u_u_u_u_u_u_u_u_u_u_u_u_u_u_u_u_u_u_u_u_u_u_u_u_u_u_u_u_u_u_u_u_u_u_ 0ë}_}_}_}_ Bh`h` 0¤…` D5)a D-^a 0K‹a‹a ASÖaÆ)b 0¤ïb 0D“c A«×c˜\\ib01s01\clerk1nasÈÈ,,,,ÈÈ0»(ÖÃ9 Z‹6Times New Roman Regular(`£ª$¡¡Ñ€.ÑÑ8€½­»»d»»d8ÑÑ ý ÑÓ  Ó(í€"  Z6Times New Roman Regular Ý ƒRÏg$ÝÓ  Óà  àòòÚ  Ú3Ú  ÚóóÔ€ôõ1ò»»ÔÝ  ÝÔ_Ô€The€Water€Quality€Act€provides:Ð ° ÐÓ °ÓÓ °ÓThe€board€has€and€shall€exercise€the€power,€duty,€and€responsibility€to€adopt,Ð tÄ Ðmodify,€repeal,€promulgate€after€due€notice€and€enforce€rules€and€regulations€thatÐ 8ˆ Ðthe€board€deems€necessary€for€the€proper€administration€of€this€part,€the€prevention,Ð üL Ðcontrol,€and€abatement€of€pollution,€or€the€modification€of€classifications€and€theÐ À Ðupgrading€of€the€standards€of€quality€in€accordance€with€subsection€(a).Ð „Ô ÐÓ °ÁÓÓ °³ÓTenn.€Code€Ann.€ðð€69„3„105(b)€(2003).€€ ÚÝ ƒRÏg$ÝÓ  Óà  àòòÚ  Ú4Ú  ÚóóÔ€ôõ1ò»»ÔÝ  ÝÔ_Ô€The€Water€Quality€Act€provides:Ð ° ÐÓ °ÓÓ °ÓThe€board€has€and€shall€exercise€the€power,€duty,€and€responsibility€to€adopt,Ð tÄ Ðmodify,€repeal,€and€promulgate€all€necessary€rules€and€regulations€for€the€purposeÐ 8ˆ Ðof€establishing€and€administering€a€comprehensive€permit€program€that€will€enableÐ üL Ðthe€department€of€environment€and€conservation€to€be€designated€by€the€UnitedÐ À ÐStates€environmental€protection€agency€as€authorized€to€issue€permits€under€theÐ „Ô Ðnational€pollutant€discharge€elimination€system€established€by€ðð€402€of€the€FederalÐ H ˜ ÐWater€Pollution€Control€Act,€Ô_ÔP.L.Ô_Ô€92„500.Ð  \ ÐÓ °ÁÓÓ °³ÓTenn.€Code€Ann.€69„3„105(h)(1)€(2003).€€ ˜C:\PROGRA~1\COREL\WORDPE~1\TEMPLATE\CUSTOM~1\REVISE~1.WPTC:\Program Files\Corel\WordPerfect Office 2000\Template\Custom WP Templates\revised standard opinion.wpt íÝ ƒRÏg$ÝÓ  Óà  àòòÚ  Ú7Ú  ÚóóÔ€ôõ1ò»»ÔÝ  ÝÔ_Ô€At€the€time€the€State€filed€the€instant€appeal€to€this€Court,€the€appeal€before€the€Board€was€still€pending.€€ Ý ƒRÏg$ÝÓ  Óà  àòòÚ  Ú2Ú  ÚóóÔ€ôõ1ò»»ÔÝ  ÝÔ_Ô€ð ðððCommissionerðð€means€the€commissioner€of€environment€and€conservation€or€the€commissionerððs€dulyÐ ° Ðauthorized€representative€and,€in€the€event€of€the€commissionerððs€absence€or€a€vacancy€in€the€office€of€commissioner,Ð tÄ Ðthe€deputy€commissioner.ðð€€Tenn.€Code€Ann.€ðð€69„3„103(11)€(2003).€€In€addition€to€serving€as€chairman€of€the€Board,Ð 8ˆ Ðthe€Commissioner€also€has€certain€statutorily€defined€duties€in€carrying€out€the€mandates€of€the€Water€Quality€Act.€€Tenn.Ð üL ÐCode€Ann.€ðð€69„3„107€(2003).€€At€the€time€this€litigation€commenced€in€December€of€2002,€Mr.€Milton€H.€Hamilton,Ð À ÐJr.€served€as€Commissioner€of€Tennessee€Department€of€Environment€and€Conservation.€€€In€January€2003,€the€GovernorÐ „Ô Ðappointed€Betsy€L.€Child€to€take€over€as€Commissioner€of€the€Tennessee€Department€of€Environment€and€Conservation.€Ð H ˜  ÐOfficial€Website€of€the€Tennessee€Department€of€Environment€and€Conservation,€òòavailable€atóóÐ ° Ðhttp://www.state.tn.us/environment/bio.php€Ô4‚Ý ÔÝ‚ ÍOÝÔÿÔòòÝ  ÝÔ5  ÔÔ6çÔÝ‚ ÍOûƒ ÝóóÔÿÔÝ  ÝÔ7Ý )Ô(last€visited€October€8,€2004).€€Commissioner€Child€replaced€Mr.€HamiltonÐ tÄ Ðin€this€litigation€following€the€change.€ Ý ƒRÏg$ÝÓ  Óà  àòòÚ  Ú13Ú  ÚóóÔ€ôõ1ò»»ÔÝ  ÝÔ_Ô€Tennessee€Rule€of€Appellate€Procedure€13(b)€provides€that€ðð[Ô_Ôr]eviewÔ_Ô€generally€will€extend€to€only€thoseÐ ° Ðissues€presented€for€review.ðð€€Tenn.€R.€App.€P.€13(b)€(2003).€€The€Advisory€Commission€Comment€to€Rule€13(b)Ð tÄ Ðprovides€that€ð ðthis€subdivision€provides€that€review€will€typically€extend€only€to€those€issues€set€forth€in€the€briefs.ðð€Ð 8ˆ ÐTenn.€R.€App.€P.€13(b)€Ô_ÔcmtÔ_Ô.€(2003).€€Accordingly,€we€consider€only€€that€portion€of€the€chancellorððs€ruling€presentedÐ üL Ðfor€review€by€the€State.€€€(#Ã$òòÚ  Ú0Ú  ÚóóLevel 1Level 2Level 3Level 4Level 5‚Level 1Level 2Level 3Level 4Level 5„Level 1Level 2Level 3Level 4Level 5…Level 1Level 2Level 3Level 4Level 5 FÝ ƒRÏg$ÝÓ  Óà  àòòÚ  Ú6Ú  ÚóóÔ€ôõ1ò»»ÔÝ  ÝÔ_Ô€Under€the€Water€Quality€Act,€the€Commissioner€has€the€power€to€modify€a€permit€for€cause.€€Tenn.€Code€Ann.Ð ° Ððð€69„3„108(f)€(2003).€€The€letter€notifying€the€City€of€the€Modified€Permit€provided€as€follows:Ð tÄ ÐÓ °ÓÓ °ÓIn€accordance€with€the€provisions€of€the€Tennessee€Water€Quality€Control€Act€.€.Ð 8ˆ Ð.€the€enclosed€Ô_ÔNPDESÔ_Ô€Permit€is€hereby€modified€by€the€Division€of€Water€PollutionÐ üL ÐControl.€€The€continuance€and/or€Ô_ÔreissuanceÔ_Ô€of€this€Ô_ÔNPDESÔ_Ô€Permit€is€contingentÐ À Ðupon€your€meeting€the€conditions€and€requirements€as€stated€therein.€€TheÐ „Ô Ðmodification€was€necessary€to€correct€an€error€in€the€permit€that€was€issued€on€JuneÐ H ˜ Ð30,€2000.€€Ð  \ ÐSince€this€modification€occurred€within€thirty€days€of€the€previous€Ô_ÔreissuanceÔ_Ô€of€thisÐ Ð  Ðpermit,€you€have€the€right€to€appeal€any€of€the€provisions€established€in€the€Ô_ÔNPDESÔ_ÔÐ ” ä  ÐPermit,€in€accordance€with€Tennessee€Code€Annotated,€Section€69„3„110€and€theÐ X ¨  ÐGeneral€Regulations€of€the€Tennessee€Water€Quality€Control€Board.Ð  l  ÐÓ °„ÓÓ °vÓThe€Modified€Permit€was€set€to€expire€on€June€30,€2002.€à  àà p à Ý ƒRÏg$ÝÓ  Óà  àòòÚ  Ú9Ú  ÚóóÔ€ôõ1ò»»ÔÝ  ÝÔ_Ô€Section€4„5„225€provides:Ð ° ÐÓ °ÓÓ °Ó(a)€The€legal€validity€or€applicability€of€a€statute,€rule€or€order€of€an€agency€toÐ tÄ Ðspecified€circumstances€may€be€determined€in€a€suit€for€a€declaratory€judgment€inÐ 8ˆ Ðthe€chancery€court€of€Davidson€County,€unless€otherwise€specifically€provided€byÐ üL Ðstatute,€if€the€court€finds€that€the€statute,€rule€or€order,€or€its€threatened€application,Ð À Ðinterferes€with€or€impairs,€or€threatens€to€interfere€with€or€impair,€the€legal€rightsÐ „Ô Ðof€the€complainant.€€The€agency€shall€be€made€a€party€to€the€suit.Ð H ˜ Ð(b)€A€declaratory€judgment€shall€not€be€rendered€concerning€the€validity€orÐ  \ Ðapplicability€of€a€statute,€rule€or€order€unless€the€complainant€has€petitioned€theÐ Ð  Ðagency€for€a€declaratory€order€and€the€agency€has€refused€to€issue€a€declaratoryÐ ” ä  Ðorder.€Ð X ¨  Ð(c)€In€passing€on€the€legal€validity€of€a€rule€or€order,€the€court€shall€declare€the€ruleÐ  l  Ðor€order€invalid€only€if€it€finds€that€it€violates€constitutional€provisions,€exceeds€theÐ à 0  Ðstatutory€authority€of€the€agency,€was€adopted€without€compliance€with€theÐ ¤ô  Ðrulemaking€procedures€provided€for€in€this€chapter€or€otherwise€violates€state€orÐ h¸  Ðfederal€law.€€Ð ,|  ÐÓ °»ÓÓ °­ÓTenn.€Code€Ann.€ðð€4„5„225(a)ð!ð(c)€(2003).€€ Ý ƒRÏg$ÝÓ  Óà  àòòÚ  Ú8Ú  ÚóóÔ€ôõ1ò»»ÔÝ  ÝÔ_Ô€ð ðAny€affected€person€may€petition€an€agency€for€a€declaratory€order€as€to€the€validity€or€applicability€of€aÐ ° Ðstatute,€rule€or€order€within€the€primary€jurisdiction€of€the€agency.ðð€€Tenn.€Code€Ann.€ðð€4„5„223(a)€(2003).€€The€agencyÐ tÄ Ðmay€either€convene€a€contested€case€hearing€and€issue€a€declaratory€order,€or€it€may€refuse€to€issue€a€declaratory€order.€Ð 8ˆ ÐTenn.€Code€Ann.€ðð€4„5„223(a)(1)ð!ð(2)€(2003).€€If€the€agency€declines€to€issue€a€declaratory€order,€the€person€may€applyÐ üL Ðfor€a€declaratory€judgment€pursuant€to€section€4„5„225.€€Tenn.€Code€Ann.€ðð€4„5„223(a)(2)€(2003).€€ -Ý ƒRÏg$ÝÓ  Óà  àòòÚ  Ú14Ú  ÚóóÔ€ôõ1ò»»ÔÝ  ÝÔ_Ô€In€arguing€that€the€section€303(d)€list€is€not€a€ð ðruleðð€under€the€Ô_ÔUAPAÔ_Ô,€the€Stateððs€brief€contained€theÐ ° Ðfollowing€argument:€Ð tÄ ÐÓ °ÓÓ °ÓBut€a€discharger€such€as€Ô_ÔCookevilleÔ_Ô€is€not€required€to€comply€with€the€303(d)€listÐ 8ˆ Ðand,€by€corollary,€it€cannot€be€in€violation€of€the€list.€€Instead,€a€discharger€mustÐ üL Ðcomply€with€the€water€quality€standards€promulgated€by€the€Board,€and€thoseÐ À Ðstandards€are€the€predicate€for€establishing€conditions€in€Ô_ÔNPDESÔ_Ô€permits€such€asÐ „Ô Ðthe€one€issued€to€Ô_ÔCookevilleÔ_Ô.Ð H ˜ Ðà ¸ à.€.€.€.Ð  \ Ðà ¸ àIn€sum,€the€303(d)€list€of€impaired€streams€is€an€interpretive€tool€used€byÐ Ð  ÐÔ_ÔTDECÔ_Ô€to€implement€the€Boardððs€promulgated€water€quality€standards.Ð ” ä  ÐÓ °\ÓÓ °NÓDuring€oral€argument,€the€State€asserted€that€the€list€itself€is€not€the€cause€of€the€limits€placed€in€the€Cityððs€ModifiedÐ X ¨  ÐPermit,€but€is€in€fact€the€Water€Quality€Standards€themselves€„€Water€Quality€Standards,€which€we€note,€did€not€existÐ  l  Ðat€the€time€the€limitations€were€placed€in€the€Cityððs€Modified€Permit.€€€€/…p1  bÝ ƒRÏg$ÝÓ  Óà  àòòÚ  Ú15Ú  ÚóóÔ€ôõ1ò»»ÔÝ  ÝÔ_Ô€We€are€not€asked€to,€nor€could€we,€address€whether€the€City€may€impose€limitations€on€a€future€permit€issuedÐ ° Ðto€the€City€using€Water€Quality€Standards€that€were€promulgated€by€the€Board€after€this€case€was€tried.€€On€appeal,€weÐ tÄ Ðare€only€asked€to€consider€whether€the€1998€section€303(d)€list,€which€contained€organic€enrichment€criteria,€was€anÐ 8ˆ Ðimproperly€promulgated€rule€under€the€Ô_ÔUAPAÔ_Ô.€€„‚–0ê:i¢×+003|x  ŒÝ ƒRÏg$ÝÓ  Óà  àòòÚ  Ú5Ú  ÚóóÔ€ôõ1ò»»ÔÝ  ÝÔ_Ô€The€Water€Quality€Act€directs€the€Commissioner€of€Ô_ÔTDECÔ_Ô€to€issue€permits€according€to€the€following:Ð ° ÐÓ °ÓÓ °ÓThe€commissioner€may€grant€permits€authorizing€the€discharges€or€activitiesÐ tÄ Ðdescribed€in€subsection€(b)€including,€but€not€limited€to,€land€application€ofÐ 8ˆ Ðwastewater,€but€in€granting€such€permits€shall€impose€such€conditions,€includingÐ üL Ðeffluent€standards€and€conditions€and€terms€of€periodic€review,€as€are€necessary€toÐ À Ðaccomplish€the€purposes€of€this€part,€and€as€are€not€inconsistent€with€the€regulationsÐ „Ô Ðpromulgated€by€the€board€thereunder.€€Under€no€circumstances€shall€theÐ H ˜ ‘ Ðcommissioner€issue€a€permit€for€an€activity€which€would€cause€a€condition€ofÐ ° Ðpollution€either€by€itself€or€in€combination€with€others.€Ð tÄ ÐÓ °%ÓÓ °ÓTenn.€Code€Ann.€ðð€69„3„108(e)€(2003).€€€http://www.state.tn.us/environment/bio.php(ÍO$——ÔÿÔòòóóÔÿÔÿU‹ÿÀÀÀ Ý ƒRÏg$ÝÓ  Óà  àòòÚ  Ú1Ú  ÚóóÔ€ôõ1ò»»ÔÝ  ÝÔ_Ô€€One€commentator€has€explained€the€interaction€between€the€individual€states€and€federal€government€asÐ ° Ðfollows:Ð tÄ ÐÓ °ÓÓ °Óà ¸ àThe€water€quality€standards€provisions€of€section€303€of€the€Clean€WaterÐ 8ˆ ÐAct€establish€one€of€the€basic€mechanisms€by€which€the€federal€government€canÐ üL Ðrequire€that€restrictions€be€placed€on€the€discharge€of€pollutants€into€the€nationððsÐ À Ðwaters.€€Under€this€scheme,€states€establish€water€quality€standards€that€specify€bothÐ „Ô Ðthe€specific€uses€to€be€made€of€each€body€of€water€within€their€borders€and€theÐ H ˜ Ðmaximum€concentrations€of€pollutants€that€are€allowable€in€view€of€such€uses.€Ð  \ ÐStates€may€tailor€limitations€on€polluters€to€ensure€that€water€quality€standards€areÐ Ð  Ðnot€violated.€€Ð ” ä  Ðà ¸ àThe€statesðð€water€quality€standards,€however,€are€subject€to€review€by€theÐ X ¨  Ðfederal€Environmental€Protection€Agency€(EPA)€to€determine€whether€the€standardsÐ  l  Ðmeet€the€minimum€requirements€of€the€Clean€Water€Act.€€EPA€in€1975€firstÐ à 0  Ðpromulgated€regulations€defining€the€minimum€requirements€with€which€states€mustÐ ¤ô  Ðcomply.€€In€1982€EPA€proposed€major€revisions€to€these€requirements.€.€.€.Ð h¸  Ðà ¸ à.€.€.€.€Ð ,|  ÐA€state€must€submit€any€revised€or€new€standard€to€the€Administrator€of€EPA,€whoÐ ð@  Ðdetermines€whether€the€standard€ð ðmeets€the€requirements€of€this€chapter.ðð€€If€theÐ ´  ÐAdministrator€under€this€criterion€approves€the€standard,€section€303(c)(3)€providesÐ xÈ  Ðthat€the€new€or€revised€standard€ð ðshall€thereafter€be€the€water€quality€standard€forÐ <Œ Ðthe€applicable€waters€of€that€State.ðð€€If,€however,€the€Administrator€determines€thatÐ P Ðthe€standard€does€not€meet€the€requirements€of€the€chapter,€he€must€notify€theÐ Ä ÐGovernor€of€the€state€submitting€the€standard€and€advise€the€Governor€of€theÐ ˆØ Ðnecessary€changes.€€The€Administrator€may€promulgate€the€necessary€changes€asÐ Lœ Ðfederal€standards€applicable€to€the€water€body€within€the€state€if€the€state€does€notÐ ` Ðmake€the€required€changes.€€Section€303(c)(4)(B)€also€authorizes€the€AdministratorÐ Ô$ Ðto€promulgate€a€federal€water€quality€standard€independently€of€any€stateÐ ˜è Ðsubmission€if€the€Administrator€ð ðdetermines€that€a€revised€or€new€standard€isÐ \¬ Ðnecessary€to€meet€the€requirements€of€this€chapter.ðð€€Ð  p ÐÓ °%ÓÓ °ÓJeffrey€M.€Ô_ÔGabaÔ_Ô,€òòFederal€Supervision€of€State€Water€Quality€Standards€Under€the€Clean€Water€Actóó,€36€Ô_ÔVandÔ_Ô.€L.€Rev.Ð ä4 Ð1167,€1168ð!ð72€(1983).€€Ð ¨ø Ðà  à úÝ ƒRÏg$ÝÓ  Óà  àòòÚ  Ú10Ú  ÚóóÔ€ôõ1ò»»ÔÝ  ÝÔ_Ô€The€Board€enacted€the€emergency€rule€on€July€22,€2003,€to€address€the€chancery€courtððs€ruling€that€organicÐ ° Ðenrichment€resulting€from€excessive€nutrients€cannot€be€addressed€in€Ô_ÔNPDESÔ_Ô€permits€issued€by€Ô_ÔTDECÔ_Ô€absent€a€waterÐ tÄ Ðquality€standard€rule€adopted€by€the€Board€under€the€Ô_ÔUAPAÔ_Ô.€€(Appellantððs€Br.€at€3;€Exhibit€1).€€The€Stateððs€brief€statedÐ 8ˆ Ðthat€ð ð[Ô_Ôa]lthoughÔ_Ô€the€State€appellants€disagree€with€the€Chancery€Courtððs€ruling€with€respect€to€organic€enrichment,€theÐ üL Ðissue€has€not€been€appealed€in€anticipation€of€a€Ô_ÔmootnessÔ_Ô€defense€being€raised€by€virtue€of€the€Boardððs€formal€adoptionÐ À Ðof€the€nutrient€criterion.ðð€ ÅÝ ƒRÏg$ÝÓ  Óà  àòòÚ  Ú12Ú  ÚóóÔ€ôõ1ò»»ÔÝ  ÝÔ_Ô€Rule€14€provides€as€follows:Ð ° ÐÓ °ÓÓ °Ó(a)€Power€to€Consider€Post„Judgment€Facts.€€The€Supreme€Court,€Court€of€Appeals,Ð tÄ ‘ Ðand€Court€of€Criminal€Appeals€òòon€its€motion€óóor€on€motion€of€a€party€may€considerÐ ° Ðfacts€concerning€the€action€that€occurred€after€judgment.€€Consideration€of€suchÐ tÄ Ðfacts€lies€in€the€discretion€of€the€appellate€court.€€òòWhile€neither€controlling€nor€fullyÐ 8ˆ Ðmeasuring€the€courtððs€discretion,€consideration€generally€will€extend€only€to€thoseÐ üL Ðfacts,€capable€of€ready€demonstration,€affecting€the€positions€of€the€parties€or€theÐ À Ðsubject€matter€of€the€action€such€as€mootnessóó,€bankruptcy,€divorce,€death,€otherÐ „Ô Ðjudgments€or€proceedings,€relief€from€the€judgment€requested€or€granted€in€the€trialÐ H ˜ Ðcourt,€and€other€similar€matters.€€Nothing€in€this€rule€shall€be€construed€as€aÐ  \ Ðsubstitute€for€or€limitation€on€relief€from€the€judgment€available€under€theÐ Ð  ÐTennessee€Rules€of€Civil€Procedure€or€the€Post„Conviction€Procedure€Act.€€Ð ” ä  ÐÓ °¿ÓÓ °±ÓTenn.€R.€App.€P.€14(a)€(2003)(emphasis€added).€€We€denied€the€Cityððs€motion€to€supplement€the€record€with€the€Ô_ÔALJÔ_ÔððsÐ X ¨  Ðopinion€because€the€ruling€of€the€Ô_ÔALJÔ_Ô€is€merely€a€legal€conclusion,€and€it€does€not€constitute€a€post„judgment€ð ðfact.ðð€€Ð  l  Ð ­Ý ƒRÏg$ÝÓ  Óà  àòòÚ  Ú11Ú  ÚóóÔ€ôõ1ò»»ÔÝ  ÝÔ_Ô€The€City€took€issue€with€the€inclusion€of€this€new€information€on€appeal€and€filed€a€Motion€to€Consider€Post„Ð ° ÐJudgment€Facts€Under€Tenn.€R.€App.€P.€14€with€this€Court€on€July€21,€2004.€€The€City€asked€this€Court€to€consider€theÐ tÄ Ðruling€by€the€Administrative€Law€Judge€(ð ðÔ_ÔALJÔ_Ôðð)€issued€on€March€9,€2004,€after€the€present€appeal€was€filed€in€this€Court.€Ð 8ˆ ÐThe€Ô_ÔALJÔ_Ô€granted€the€Cityððs€motion€for€partial€summary€judgment€stating€that€ð ðthe€reason€for€the€nitrogen€limit€in€theÐ üL ÐCityððs€permit€was€Pigeon€Roost€Creekððs€inclusion€on€the€303(d)€list.ðð€€(Order€Granting€Petitionerððs€Motion€for€PartialÐ À ÐSummary€Judgment).€€€The€Ô_ÔALJÔ_Ô€went€on€to€find€the€following:Ð „Ô ÐÓ °ÓÓ °Óà ¸ àThat€argument,€as€to€whether€the€State€can€retroactively€apply€EmergencyÐ H ˜ Ðor€Permanent€Rules€to€pending€applications,€need€not€be€decided,€here.Ð  \ Ðà ¸ à.€.€.€.€Ð Ð  Ðà ¸ à[Ô_ÔT]heÔ_Ô€nitrogen€limits€set€forth€in€the€Ô_ÔNPDESÔ_Ô€permit/€ð ðapplicationðð€issuedÐ ” ä  Ðto€the€City€is€void€and€of€no€effect.Ð X ¨  ÐÓ °øÓÓ °ÓThe€State€filed€a€response€arguing€that€it€brought€the€new€rule€to€this€Courtððs€attention€to€explain€why€the€State€did€notÐ  l  Ðappeal€the€chancery€courtððs€ruling€on€the€organic€enrichment€issue.€€Accordingly,€the€City€argues€that€the€chancellorððsÐ à 0  Ðruling€on€that€issue€stands,€and,€therefore,€the€previous€organic€enrichment€criteria€applied€to€the€City€in€the€Permit€isÐ ¤ô  Ðno€longer€in€effect€and€cannot€be€applied€retroactively.€€The€Ô_ÔALJÔ_Ôððs€opinion€also€references€the€fact€that€the€City€has€aÐ h¸  Ðrenewal€permit€application€still€pending€before€the€Board.€- ù-(|G2Ïg$¤¤Ý ƒ£ª!ÝÑ€.ÑÑ8€Fý»»dd8ÑÑ ý ÑÓ  ÓÝ  Ýà  àòòÚ  Ú0Ú  ÚóóÔ€ôõ1ò»»Ô d(|3G‘$££Ý ƒ£ª!ÝÑ€.ÑÑ8€Fý»»dd8ÑÑ ý ÑÓ  ÓÝ  ÝVVVV)ÿÿ!dxdx)!ÈÈÈÈdxdx( ±þ$’’ò òFigure€Ú  Ú1Ú  Úó ó^_X`YEþÿ<<CÿÿƒLevel 1Level 2Level 3Level 4Level 5(|3G‘$¢¢Ý ƒ£ª!ÝÑ€.ÑÑ8€Fý»»dd8ÑÑ ý ÑÓ  ÓÝ  Ý($$””ò òÚ  Ú1Ú  Úó óX[Z&OLE 2.0 Box <=8ÿÿÿÿÿÿÿÿÿÿCÿÿ HKKKKÝ ƒ£ª!ÝÑ€.ÑÑ8€Fý»»ddÈ8ÑÑ ý ÑÓ  ÓÝ  ÝÔ_ÔÑ  ÑÔ€¼Fý»»»ÔÑ8€ÍXXdì»»d8ÑÑ  Ñà@ü ü ìàÔ‡îG î»¼FýÔIN€THE€COURT€OF€APPEALS€OF€TENNESSEEˆÐ ° Ðà@kk$ìàAT€NASHVILLEÔ#†¼Fý»îîG  #ԈРÖ& ÐÓ  ÓAUGUST€3,€2004€SessionÐ üL ÐÔ‡XÍX»¼FýÔÌò òÔ#†¼Fý»XXÍó#ÔCITY€OF€Ô_ÔCOOKEVILLEÔ_Ô,€TENNESSEEòòóó€v.€TENNESSEE€WATERÐ úJ ÐQUALITY€CONTROL€BOARD,€òòet€alóó.Ô‡XÍX»¼FýÔó óÐ  ^ ÐÌà@@½½ìàò òDirect€Appeal€from€the€Chancery€Court€for€Davidson€CountyÐ  ^ Ðà@@øøìàNo.€02„3694„III€€€€€€Ellen€Ô_ÔHobbsÔ_Ô€Lyle,€ChancellorÐ ú J ÐÌÌà@@ìì*ìàßA€V) °°` d€÷E<½` AßÐ ¾  ÐÌà@@TTìàNo.€M2003„02476„Ô_ÔCOAÔ_Ô„R3„CV€„€Filed€November€16,€Ô_Ô2004Ô_ÔÐ ¹  ÐÌßA€V) °°` dE<` AßÐ ‘á  Ðó óÌÓ  ÓÔ‡XÍXXXÍÔThis€appeal€concerns€the€rule„making€authority€of€the€Tennessee€Department€of€Environment€andÐ ŒÜ ÐConservation€under€the€Tennessee€Uniform€Administrative€Procedures€Act.€€The€City€of€Ô_ÔCookevilleÔ_Ô,Ð xÈ Ðseeking€to€expand€its€treatment€works€facility,€obtained€a€permit€from€the€Tennessee€Department€ofÐ d´ ÐEnvironment€and€Conservation€which€placed€nitrogen€limits€on€the€Cityððs€effluent€emissions€intoÐ P  ÐPigeon€Roost€Creek€in€Putnam€County,€Tennessee.€€The€city€filed€a€declaratory€judgment€action€withÐ <Œ Ðthe€Chancery€Court€of€Davidson€County€asking€the€court€to€find€as€follows:€(1)€the€section€303(d)Ð (x Ðlist€created€by€the€Tennessee€Department€of€Environment€and€Conservation,€which€listed€PigeonÐ d ÐRoost€Creek€as€organically€enriched,€amounted€to€an€improperly€promulgated€rule€in€violation€ofÐ P Ðthe€Tennessee€Uniform€Administrative€Procedures€Act,€and€(2)€the€organic€enrichment€criteriaÐ ì< Ðcontained€in€the€section€303(d)€list€amounted€to€an€improperly€promulgated€Water€Quality€Standard,Ð Ø( Ðwhich€in€turn€constitutes€an€improperly€promulgated€rule,€that€the€Tennessee€Department€ofÐ Ä ÐEnvironment€and€Conservation€used€to€impose€restrictions€on€the€cityððs€permit.€€The€parties€eachÐ ° Ðfiled€motions€for€summary€judgment€with€the€chancery€court.€€The€chancellor€granted€the€cityððsÐ œì Ðmotion,€finding€that€the€section€303(d)€list€containing€the€organic€enrichment€criteria€amounted€toÐ ˆØ Ðimproperly€promulgated€rules€as€a€matter€of€law.€€The€state€appealed€the€chancellorððs€ruling€to€thisÐ t Ä ÐCourt€and,€for€the€reasons€contained€herein,€we€dismiss€this€case€as€non„justiciable.€€Ð `!°  ÐÔ#†XÍXXXÍF#ÔÔ#†¼Fý»XXÍÇ#ÔÔ‡XÍX»¼FýÔÌÓ:ÓÌò òTenn.€R.€App.€P.€3;€Appeal€as€of€Right;€Judgment€of€the€Chancery€Court€Dismissedó óÐ $$t# ÐÌòòÓ  ÓÔ#†¼Fý»àXÍ #ÔÔ‡XÍX.¼FýÔAlan€E.€Ô_ÔHighersÔ_Ô,€J.óó,€delivered€the€opinion€of€the€court,€in€which€òòDavid€R.€Farmer,€J.,€óóand€òòHollyÐ ü%L!% ÐM.€Kirby,€J.óó,€joined.Ð è&8"& ÐÌPaul€G.€Summers,€Attorney€General€and€Reporter,€Michael€E.€Moore,€Solicitor€General,€ElizabethÐ À($( ÐP.€Ô_ÔMcCarterÔ_Ô,€Senior€Counsel,€Nashville,€TN,€for€AppellantsÐ ¬)ü$) ÐÌWilliam€L.€Penny,€John€Knox€Ô_ÔWalkupÔ_Ô,€Andrew€J.€Ô_ÔPulliamÔ_Ô,€Nashville,€TN,€for€AppelleeÐ „+Ô&+ ÐÓ¸ ÓÌò òÐ \-¬(-ý ÐÔ_ÔOPINIONó óÔ#†¼Fý»XXÍç #ÔÔ‡XÍX»¼FýÔÐ ° ÐÌòòóóÔ#†¼Fý»XXÍÉ#ÔÔ‡XÍX»¼FýÔÓ  Óò òÔ‡XÍXXXÍÔà@v v ìàFactual€History€and€Procedural€BackgroundˆÐ ˆØ ÐòòóóÌó ó€€€€€€€€€€€€€€The€City€of€Cookeville,€Tennessee,€(the€ð ðCityðð)€operates€a€publicly€owned€treatment€worksÐ `° Ðfacility€(the€ð ðFacilityðð)€which€encompasses€a€sewage€treatment€plant.€€The€City€treats€the€wastewaterÐ L œ Ðcoming€into€the€Facility€through€biological€and€chemical€treatment€processes.€€The€City€dischargesÐ 8 ˆ Ðthe€treated€wastewater€effluent€into€the€Pigeon€Roost€Creek€located€in€Putnam€County,€Tennessee.€Ð $ t ÐÌà  àThe€federal€Clean€Water€Act€(the€ð ðCWAðð),€codified€at€33€U.S.C.€ðð€1251€òòet€seqóó.,€requiresÐ ü L  Ðeach€state€to€develop€Water€Quality€Standards€for€the€water€bodies€within€their€respective€borders.€Ð è 8  ÐòòSee€óó33€U.S.C.€ðð€1313€(2003).€€The€CWA€also€requires€each€state€to€compile€a€list€identifying€thoseÐ Ô$  Ðwater€bodies€within€the€state€ð ðfor€which€effluent€limitations€required€[under€the€applicable€WaterÐ À  Ðâ âQuality€Standards]€are€not€stringent€enough€to€implement€any€water€quality€standard€applicable€toÐ ¬ü  Ðsuch€waters.ðð׃#×Ý ƒ #ÃÝòòÚ  Ú1Ú  ÚóóÝ  Ý×  ×€€33€U.S.C.€ðð€1313(d)€(2003).€€The€list€compiled€by€each€state€is€referred€to€as€a€sectionÐ ° Ð303(d)€list.€Ð œì Ðâ âÔ#†XÍXXXÍU#ÔÔ‡XÍXXXÍÔÔ#†¼Fý»XXÍ'#ÔÔ‡XÍX»¼FýÔÌà  àIn€1977,€the€Tennessee€General€Assembly€promulgated€the€Tennessee€Water€Quality€ControlÐ tÄ ÐAct€(ð ðWater€Quality€Actðð),€codified€at€section€69„3„101€òòet€seqóó.€of€the€Tennessee€Code.€€Tenn.€CodeÐ `° ÐAnn.€ðð€69„3„101€(2003).€€The€Water€Quality€Act€provides€for€the€establishment€of€the€TennesseeÐ L œ ÐWater€Quality€Control€Board€(the€ð ðBoardðð).€€Tenn.€Code€Ann.€ðð€69„3„104(a)(1)€(2003).€€The€BoardÐ 8 ˆ Ðis€composed€of€ten€(10)€members,€and€the€Commissioner׃ ×Ý ƒ #ÃÝòòÚ  Ú2Ú  ÚóóÝ  Ý×  ×€of€the€Tennessee€Department€ofÐ $ t ÐEnvironment€and€Conservation€(ð ðTDECðð)€is€to€serve€as€chairman€of€the€Board.€€Tenn.€Code€Ann.Ð ° Ððð€69„3„104(a)(1)(A)€(2003).€€The€Water€Quality€Act€provides€that€ð ð[t]he€board€has€and€shall€exerciseÐ œì Ðthe€power,€duty,€and€responsibility€to€establish€and€adopt€standards€of€quality€for€all€waters€of€theÐ ˆØ Ðstate.ðð€€Tenn.€Code€Ann.€ðð€69„3„105(a)(1)€(2003).€€In€carrying€out€this€mandate,€the€Board€classifiesÐ tÄ Ðall€the€water€bodies€within€the€state€and€sets€water€quality€standards€based€on€those€classifications.׃ ×Ý ƒ #ÃÝòòÚ  Ú3Ú  ÚóóÝ  Ý×  ׀Р`° ÐTenn.€Code€Ann.€ðð€69„3„105(a)(2)ð!ð(4)€(2003).€à  àÐ L œ ÐÓ  Óò òòòóóÌó óÓ  Óà  àIn€September€of€1998,€TDEC€published€its€final€draft€of€the€1998€303(d)€list.€€Pigeon€RoostÐ $ t ÐCreek€was€included€on€the€list€as€an€impaired€water€body€due€to€ð ðOrganic€€enrichment/DO.ðð€€AlsoÐ  ` Ðin€1998,€the€City€sought€to€expand€the€Facility.€€The€Water€Quality€Actòòóó€requires€that€anyone€planningÐ ü L  Ðto€expand€a€treatment€works€facility€which€discharges€into€a€water€body€within€the€State€ofÐ è 8  ÐTennessee€must€apply€for€a€permit.×ƒÄ ×Ý ƒ #ÃÝòòÚ  Ú4Ú  ÚóóÝ  Ý×  ×€€Tenn.€Code€Ann.€ðð€69„3„108(b)(2),€(c)€(2003).€€€The€City,€inÐ Ô$  Ðan€effort€to€comply€with€the€Water€Quality€Act,€filed€a€request€for€a€new€National€PollutantÐ À  ÐDischarge€Elimination€System€(ð ðNPDESðð)€Permit€(ð ðDraft€Permitðð)€with€TDEC.€€€TDEC€issued€theÐ ¬ü  ÐCity€a€Draft€Permit,€but€the€Draft€Permit€required€the€City€to€monitor€the€nitrogen€levels€of€itsÐ ˜è  Ðemissions€due€to€the€organically€enriched€waters€in€Pigeon€Roost€Creek.׃p×Ý ƒ #ÃÝòòÚ  Ú5Ú  ÚóóÝ  Ý×  ×€€At€the€time€that€the€CityÐ „Ô  Ðwas€issued€the€1998€Draft€Permit,€the€Board€had€not€promulgated€any€Water€Quality€StandardsÐ ° Ðregarding€organic€enrichment.€€The€Draft€Permit€was€reviewed€by€the€federal€EnvironmentalÐ œì ÐProtection€Agency€(ð ðEPAðð)€pursuant€to€the€EPA/Tennessee€Memorandum€Agreement.€€The€EPAÐ ˆØ Ðissued€a€letter€on€December€16,€1999,€stating€that€it€had€reviewed€the€Draft€Permit€issued€to€the€CityÐ tÄ Ðand€concluded€that€ð ð[b]ased€on€40€C.F.R.€Section€122.44(d),€since€nitrogen€may€cause€or€contributeÐ `° Ðto€a€water€quality€excursion€at€the€increased€loading,€this€parameter€should€be€limited€in€the€permit.ðð€Ð L œ Ð(Exhibit€7€to€Plaintiffððs€Motion€for€Summary€Judgment).€€On€July€12,€2000,€TDEC€issued€anotherÐ 8 ˆ ÐNPDES€Permit€(ð ðModified€Permitðð)€to€the€City€which€contained€a€numeric€discharge€limit€forÐ $ t Ðnitrogen.׃ ×Ý ƒ #ÃÝòòÚ  Ú6Ú  ÚóóÝ  Ý×  ×€€Ð  ` ÐÌà  àOn€August€7,€2000,€the€City€filed€an€administrative€appeal€with€the€Board€contesting€theÐ è 8  Ðterms€and€conditions€in€the€Permit,€specifically€the€nitrogen€limits€and€placement€of€Pigeon€RoostÐ Ô$  ÐCreek€on€the€section€303(d)€list.׃ \×Ý ƒ #ÃÝòòÚ  Ú7Ú  ÚóóÝ  Ý×  ×€€€The€City€also€filed€a€Petition€for€Declaratory€Order€with€theÐ À  ÐBoard,€pursuant€to€section€4„5„223€of€the€Tennessee€Code,׃è×Ý ƒ #ÃÝòòÚ  Ú8Ú  ÚóóÝ  Ý×  ×€seeking€a€ruling€that€the€section€303(d)Ð ¬ü  Ðlist€must€be€promulgated€as€a€ð ðruleðð€pursuant€to€the€Tennessee€Uniform€Administrative€ProceduresÐ ˜è  ÐAct€(ð ðUAPAðð),€codified€at€section€4„5„101€òòet€seqóó.€of€the€Tennessee€Code.€€The€City€alleged€thatÐ „Ô  ÐTDEC,€by€promulgating€and€implementing€the€section€303(d)€list€containing€organic€enrichmentÐ pÀ Ðcriteria€for€Pigeon€Roost€Creek,€usurped€the€authority€expressly€delegated€to€the€Board€by€theÐ \¬ Ðlegislature.€€On€November€4,€2002,€the€Board€declined€to€issue€a€declaratory€order.€Ð H˜ ÐÐ 4„ Ðà  àOn€December€10,€2002,€the€City€filed€a€complaint€against€the€Board€and€the€CommissionerÐ ° Ðof€TDEC€(collectively€the€ð ðStateðð)€in€the€Chancery€Court€of€Davidson€County,€asking€the€court€forÐ œì Ðdeclaratory€relief€pursuant€to€section€4„5„225€of€the€Tennessee€Code.׃×Ý ƒ #ÃÝòòÚ  Ú9Ú  ÚóóÝ  Ý×  ×€€The€City€sought€a€declaratoryÐ ˆØ Ðjudgment€as€to€the€following:€(1)€the€1998€section€303(d)€list€used€by€TDEC€in€making€permitÐ tÄ Ðdecisions€falls€within€the€definition€of€a€ð ðruleðð€under€section€4„5„102(10)€of€the€Tennessee€Code,Ð `° Ðtherefore,€the€Board€must€promulgate€the€list€under€the€UAPA,€and€(2)€that€the€criteria€for€organicÐ L œ Ðenrichment€developed€by€TDEC€and€utilized€in€its€permitting€decisions€amounts€to€a€water€qualityÐ 8 ˆ Ðcriteria,€which€also€qualifies€as€a€ð ðruleðð€under€section€4„5„102(10)€of€the€Tennessee€Code€and€mustÐ $ t Ðbe€promulgated€by€the€Board€under€the€UAPA.€à  àà p àÐ  ` ÐÌà  àThe€City€filed€a€Motion€for€Summary€Judgment€with€the€chancery€court€on€April€15,€2003,Ð è 8  Ðasking€the€court€to€find€that€the€1998€section€303(d)€list€and€organic€enrichment€requirements€wereÐ Ô$  Ðvoid€as€a€matter€of€law.€€On€May€16,€2003,€the€State€filed€a€Motion€to€Dismiss€the€Cityððs€complaint,Ð À  Ðalleging€that€the€court€lacked€subject€matter€jurisdiction€because€the€issues€were€pending€resolutionÐ ¬ü  Ðin€an€administrative€proceeding€below.€€On€June€2,€2003,€the€State€filed€a€response€to€the€CityððsÐ ˜è  ÐMotion€for€Summary€Judgment€which€also€contained€the€Stateððs€Cross„Motion€for€SummaryÐ „Ô  ÐJudgment.€€On€June€6,€2003,€the€chancellor€issued€an€Order€denying€the€Stateððs€Motion€to€Dismiss,Ð pÀ Ðfinding€that€the€City€satisfied€the€requirements€of€section€4„5„225€of€the€Tennessee€Code.€€TheÐ \¬ Ðchancellor€conducted€a€hearing€on€the€summary€judgment€motions€on€July€11,€2003,€and€she€issuedÐ H˜ Ðher€ruling€on€July€16,€2003,€granting€summary€judgment€to€the€City.€€The€chancellor€ruled€thatÐ 4„ ÐTDEC€used€the€1998€section€303(d)€list€of€impaired€water€streams€and€the€organic€enrichmentÐ  p Ðcriteria€as€a€ð ðruleðð€under€section€4„5„102(10)€of€the€Tennessee€Code€in€violation€of€the€UAPA.€€€Ð  \ ÐÌà  àThe€State€filed€a€Notice€of€Appeal€to€this€Court€appealing€only€that€portion€of€theÐ ä4 ÐChancellorððs€order€pertaining€to€the€validity€of€the€section€303(d)€list€of€impaired€streams.€€The€StateÐ Ð  Ðasks€us€to€entertain€the€following€issues:Ð ¼  Ðâ âÐ ¨ø ÐI.à0  àWhether€the€trial€court€erred€in€finding€that€TDEC€was€using€the€section€303(d)€list€ofÐ ° Ðâ âimpaired€streams€as€a€ð ðruleðð€in€violation€of€the€UAPA;€and€Ðœì(#(# ÐII.à0  àWhether€the€trial€court€erred€in€finding€that€TDEC€used€the€section€303(d)€list€as€a€waterÐ ˆØ Ðquality€standard€to€impose€NPDES€permit€requirements€on€dischargers€such€as€the€City€ofÐ tÄ ÐCookeville?Ð`°(#(# ÐÓ  Óò òó óÌà0@¸ ` (#` (#àà0@¸ (#¸ (#àà0@h(#(#àÓ  ÓFor€the€reasons€set€forth€below,€we€decline€to€entertain€the€issues€presented€by€the€State€becauseÐ 8 ˆ Ðthis€case€has€become€moot.€€In€addition,€to€address€the€issues€raised€by€the€State€would€amount€toÐ $ t Ðthis€Court€issuing€an€advisory€opinion,€which€we€decline€to€do.€€Ð  ` ÐÌÓ  Óò òDismissal€of€Appeal€on€Non„Justiciability€GroundsÐ è 8  ÐÌó óÓ  Ó€€€€€€€€On€appeal,€the€Stateððs€brief€directs€our€attention€to€the€fact€that€the€Board€subsequentlyÐ À  Ðpromulgated€an€emergency€rule€regarding€nutrient€criterion€for€Tennesseeððs€water€bodies€as€a€resultÐ ¬ü  Ðof€the€chancellorððs€ruling.׃$×Ý ƒ #ÃÝòòÚ  Ú10Ú  ÚóóÝ  Ý×  ×€€The€new€regulation€was€adopted€into€the€Boardððs€Water€QualityÐ ˜è  ÐStandards€in€September€of€2003€and€codified€at€Tenn.€Comp.€R.€&€Reg.€1200„4„3„.03(3)(i).€×ƒ((×Ý ƒ #ÃÝòòÚ  Ú11Ú  ÚóóÝ  Ý×  ×€€WeÐ „Ô  Ðhave€determined€that€the€promulgation€of€this€new€Water€Quality€Standard€governing€the€organicÐ pÀ Ðenrichment€of€Tennesseeððs€waters€has€a€direct€bearing€on€whether€this€case€is€justiciable,€thereforeÐ \¬ Ðwe€will€consider€this€additional€fact€on€appeal.׃&0×Ý ƒ #ÃÝòòÚ  Ú12Ú  ÚóóÝ  Ý×  ×Ð H˜ Їà  àIn€granting€the€Cityððs€motion€for€summary€judgment,€the€chancellorððs€order€contained€theÐ ° Ðfollowing€statement:€€Ð œì ÐÌÓ °ÓÓ °Ó[T]he€Court€finds€and€concludes€that€the€undisputed€facts€presentedÐ tÄ Ðto€the€Court€show€that€the€Defendants€are€using€both€the€Stateððs€1998Ð `° Ð303(d)€list€of€impaired€water€streams€(ð ð303(d)€listðð)€òòand€organicÐ L œ Ðenrichment€criteria€set€forth€in€the€303(d)€list€óóas€a€Rule€as€that€termÐ 8 ˆ Ðis€defined€in€Tennessee€Code€Annotated€4„5„102(10).€€Ð $ t ÐÌÓ °‰?ÓÓ °—?ÓThe€State€filed€a€Notice€of€Appeal€to€this€Court€stating€that€it€was€appealing€ð ðonly€that€portion€of€theÐ ü L  ÐOrder€addressing€the€Stateððs€303(d)€list€of€impaired€streams.ðð׃ H ×Ý ƒ #ÃÝòòÚ  Ú13Ú  ÚóóÝ  Ý×  ×€à È àÐ è 8  ÐÌà  àThis€Court€must€be€utilized€in€a€manner€that€ensures€our€decisions€will€have€a€direct€bearingÐ À  Ðon€the€parties€before€the€Court,€and€we€have€stated€as€much:Ð ¬ü  ÐÌÓ °ÓÓ °Óà ¸ àIn€general€terms,€the€justiciability€doctrine€requires€that€casesÐ „Ô  Ðmust€involve€presently€existing€rights,€live€issues€that€are€within€aÐ pÀ Ðcourtððs€power€to€resolve,€and€parties€who€have€a€legally€cognizableÐ \¬ Ðinterest€in€the€judicial€resolution€of€the€issues.€€Thus,€courts€willÐ H˜ Ðdecline€to€provide€judicial€relief€in€cases€that€do€not€involve€genuineÐ 4„ Ðexisting€controversies€requiring€the€adjudication€of€present€rights.€Ð  p ÐòòState€ex€rel.€Lewis€v.€Stateóó,€208€Tenn.€534,€347€S.W.2d€47,€48€(1961);Ð  \ ÐòòFord€Consumer€Fin.€Co.€v.€Clayóó,€984€S.W.2d€615,€616€(Tenn.€Ct.Ð øH ÐApp.€1998),€and€will€likewise€decline€to€render€declaratory€judgmentsÐ ä4 Ðto€decide€theoretical€questions€or€render€advisory€opinions.€€òòState€v.Ð Ð  ÐBrown€&€Williamson€Tobacco€Corp.óó,€18€S.W.3d€186,€193€(Tenn.Ð ° Ð2000).€€Ð œì ÐÌÓ °’CÓÓ ° CÓòòCharter€Lakeside€Behavioral€Health€Sys.€v.€Tenn.€Health€Facilities€Commððnóó,€No.€M1998„00985„Ð tÄ ÐCOA„R3„CV,€2001€Tenn.€App.€LEXIS€58,€at€*14€(Tenn.€Ct.€App.€Jan.€30,€2001).€€ð ðIt€is,€of€course,Ð `° Ðwell€settled€that€when€the€issues€sought€to€be€presented€by€an€appeal€have€been€rendered€mootÐ L œ Ðpending€the€appeal€the€appeal€will€be€dismissed.ðð€€òòState€v.€Thomasóó,€585€S.W.2d€606,€607€(Tenn.Ð 8 ˆ Ð1979)€(citations€omitted);€òòsee€also€Dockery€v.€Dockeryóó,€559€S.W.2d€952,€954€(Tenn.€Ct.€App.€1977).€Ð $ t ЀÌà  àð ðA€moot€case€is€one€that€has€lost€its€character€as€a€present,€live€controversy.ðð€€òòMcIntyre€v.Ð ü L  ÐTraughberóó,€884€S.W.2d€134,€137€(Tenn.€Ct.€App.€1994)€(citing€òòMcCanless€v.€Kleinóó,€188€S.W.2dÐ è 8  Ð745,€747€(Tenn.€1945)).€€ð ðCases€must€be€justiciable€not€only€when€they€are€first€filed€but€must€alsoÐ Ô$  Ðremain€justiciable€throughout€the€entire€course€of€the€litigation,€including€the€appeal.ðð€€òòIdóó.€€ð ðA€caseÐ À  Ðwill€generally€be€considered€moot€if€it€no€longer€serves€as€a€means€to€provide€relief€to€the€prevailingÐ ¬ü  Ðparty.ðð€€òòIdóó.€(citations€omitted).€€Ð ˜è  ÐÌà  àBased€on€our€review€of€the€record,€the€chancery€courtððs€holding€that€the€1998€section€303(d)Ð pÀ Ðlist€amounted€to€an€improperly€promulgated€rule€is€inextricably€intertwined€with€the€fact€that€the€listÐ \¬ Ðcited€the€Pigeon€Roost€Creek€as€ð ðorganically€enriched.ðð€€The€Cityððs€complaint€for€declaratory€reliefÐ H˜ Ðhinged€on€the€fact€that€the€1998€section€303(d)€list€stated€that€Pigeon€Roost€Creek€was€ð ðorganicallyÐ 4„ Ðenriched.ðð€€The€State€concedes€that€at€the€time€the€limits€were€placed€in€the€Cityððs€Modified€PermitÐ  p Ðthe€Board€had€not€promulgated€any€regulations€addressing€organic€enrichment€of€water€bodies€withinÐ  \ Ðthis€state.€€The€State€argues,€however,€that€the€section€303(d)€list€is€not€a€rule€but€only€anÐ øH Ðinterpretation€of€already€promulgated€Water€Quality€Standards.׃×Ý ƒ #ÃÝòòÚ  Ú14Ú  ÚóóÝ  Ý×  ×€€€€Ð ä4 ÐÌà  àThe€City€argues€that€this€case€is€not€moot€because€there€is€the€potential€that€a€new€sectionÐ ¼  Ð303(d)€list€may€be€used€to€impose€another€limit€on€future€permits€the€City€may€seek.€€We€note€thatÐ ¨ø Ðwe€can€only€address€the€facts€as€they€existed€at€the€time€this€case€was€tried€below.€€We€agree€withÐ ”ä Ðthe€City€in€that€the€Stateððs€failure€to€appeal€the€chancery€courtððs€ruling€regarding€the€organicÐ €Ð Ðâ âenrichment€limitations€placed€in€the€Modified€Permit€effectively€prevents€the€State€fromÐ l¼ Ðretroactively€applying€the€criteria€from€the€1998€section€303(d)€list.׃×Ý ƒ #ÃÝòòÚ  Ú15Ú  ÚóóÝ  Ý×  ×€€The€City€itself€stated€duringÐ ° Ðâ âoral€argument€that€the€nitrogen€limits€placed€in€the€Modified€Permit€have€been€removed.€€In€addition,Ð œì Ðthe€Modified€Permit€issued€by€the€State€that€is€at€issue€in€this€case€expired€on€June€30,€2002.€€TheÐ ˆØ Ðstateððs€decision€not€to€appeal€the€organic€enrichment€criteria€as€they€existed€at€the€time€the€City€filedÐ tÄ Ðits€complaint€demonstrates€that€the€State€intends€to€apply€the€newly€promulgated€organic€enrichmentÐ `° ÐWater€Quality€Standard€to€all€permit€applications€submitted€after€the€standard€was€adopted.€Ð L œ ÐTherefore,€in€light€of€events€occurring€after€this€appeal€was€filed,€the€question€of€whether€the€1998Ð 8 ˆ Ðsection€303(d)€list€was€an€improperly€promulgated€ð ðruleðð€has€become€moot.€€A€decision€by€thisÐ $ t ÐCourt€holding€that€the€1998€section€303(d)€list€used€in€issuing€the€prior€permit€to€the€City€did€or€didÐ  ` Ðnot€constitute€a€ð ðruleðð€under€the€UAPA€would€have€no€effect€on€the€permit€at€issue,€which€no€longerÐ ü L  Ðcontains€nitrogen€limitations€and€has€already€expired.€€In€essence,€we€are€left€with€the€issue€ofÐ è 8  Ðwhether€a€òòfutureóó€section€303(d)€list€would€constitute€a€ð ðruleðð€which€must€be€promulgated€by€theÐ Ô$  ÐBoard,€and€not€TDEC,€in€order€to€be€in€compliance€with€the€UAPA.€€Addressing€that€issue€wouldÐ À  Ðamount€to€this€Court€issuing€an€advisory€opinion,€which€we€decline€to€do.Ð ¬ü  ÐÌÓ  Óò òConclusionÐ „Ô  ÐÌó óÓ  Ó€€€€€€€€€€€€€For€the€foregoing€reasons,€this€case€stands€dismissed.€€Costs€of€this€appeal€are€taxed€againstÐ \¬ Ðthe€Appellants,€the€Tennessee€Water€Quality€Control€Board€and€Betsy€L.€Child,€in€her€capacity€asÐ H˜ ÐCommissioner€of€the€Tennessee€Department€of€Environment€and€Conservation,€for€which€executionÐ 4„ Ðmay€issue€if€necessary.€€Ô#†XÍXXXÍ]#ÔÔ#†¼Fý»XXÍŸ#ÔÔ€XÍX»¼FýÔÐ  p ÐÌÌÌà  àà ` àà ¸ àà  àà h àà À àà  à___________________________________€Ð Ð  Ðà  àà ` àà ¸ àà  àà h àà À àà  àALAN€E.€HIGHERS,€JUDGE