ÿWPCÞ< dÓöèhF`q.Fº%U`tP–»Y»TO,Õ<õcR!x ÙI¨5¸,˜fÉÅF}^ûµþ‡Ð6댞‹§ò×pÑ«}IQ©*+QÏæýR›1YTû?‡—Z—²AOßXáìsD(ÝÀF\h=’ õ$­zÓe¸J^„„3 DÐLD $8~Xl"¹¸­¶Ñg.r‡Í„÷Bd«Ý#òpÍ]ÿjk×*†,Ð9²Åz'’"Q²p³pÛƒ4~¸oÛîj{E­÷·}L`èNaÝ„8Jjíag™_tì \™˜L=²[¡v-Åÿþ‹aPEÛ^`¶èÊC­±ù ?ÛHÎÃ~™3!úycÓÒˉ_m/¤dÿJJJák”vÝ:–·˜‚³P1Ÿ]`{ÂcÿFÀßòÀÏ#[™CHëŠ"dТÆÑŠÎÉ:v…O­ìÅÞÝQFI¼½+ŽSà±Fb#É\ %% UN+ 0ˆy U%N 1‡O _Ö z5Ò¯ŸÀ Ðà 0 D°ÆôƺÆ€ÆFa Nm 1uoøäEÜ 72Þ^ w 0c Ùƒ\$Û^(>9* w/4—7«7º7 m¼7¼7¼7¼7¼7¼7¼7¼7¼7¼7¼7bÓ7Ó7Ó7Ó7Ó7Ó7Ó7Ó7Ó7Ó7Ó7Ó7Ó7Ó7Ó7Ó7Ó7Ó7Ó7Ó7Ó7Ó7Ó7Ó7Ó7Ó7Ó7Ó7Ó7Ó7Ó7Ó7Ó7Ó7Ó7Ó7 0 ëÛ7Û7Û7Û7 BÆ8Æ8 0¤ã8 D3‡9 D-º9 0Kç9ç9 AS2:Æ…: 0¤K; 0Dï; A«3<˜\\IB01S02\CLERKJACÈÈ,,,,ÈÈ0»(ÖÃ9 Z‹6Times New Roman Regular(`£ª$¡¡Ñ€.ÑÑ8€½­»»d»»d8ÑÑ ý ÑÓ  Ó(í€"  Z6Times New Roman Regular(5hCEKQW]cioAutoList1I.I.I.I.I.I.I.I. UÝ ƒRhT$ÝÓ  Óà  àòòÚ  Ú2Ú  ÚóóÔ€ô© ò»»ÔÝ  ÝÔ_Ô€The€Federal€Aviation€Administration€(ð ðFAAðð)€investigated€this€incident€and€determined€that€it€did€not€amountÐ ° Ðto€a€runway€incursion.€€(Exhibit€6).€€The€FAA€issued€a€letter€to€the€Airport€Authority€setting€forth€this€finding,€but€theÐ qÁ ÐFAA€also€addressed€in€the€letter€its€concerns€about€prior€runway€incursions€by€the€Memphis€Fire€Department€at€theÐ 2‚ ÐMemphis€Airport,€including€the€February€5,€2001,€incident. ˜C:\PROGRA~1\COREL\WORDPE~1\TEMPLATE\CUSTOM~1\REVISE~1.WPTC:\Program Files\Corel\WordPerfect Office 2000\Template\Custom WP Templates\revised standard opinion.wpt •Ý ƒRhT$ÝÓ  Óà  àòòÚ  Ú3Ú  ÚóóÔ€ô© ò»»ÔÝ  ÝÔ_Ô€Walter€White,€Director€of€Operations€and€Public€Safety€with€the€Airport€Authority,€sent€a€letter€dated€JulyÐ ° Ð19,€2002,€to€Chester€Anderson,€Director€of€the€Memphis€Fire€Department,€thanking€him€for€reassigning€Chief€MooreÐ qÁ Ðfrom€the€airport. ¶Ý ƒRhT$ÝÓ  Óà  àòòÚ  Ú1Ú  ÚóóÔ€ô© ò»»ÔÝ  ÝÔ_Ô€The€Airport€Authority€requires€all€personnel€working€at€the€airport€to€obtain€the€proper€security€clearance.€Ð ° ÐAny€personnel€required€to€traverse€the€Air€Operations€Area€must€also€obtain€an€airfield€driverððs€license€by€passing€aÐ qÁ Ðwritten€test€and€a€practical€road€test.€ ÆÝ ƒRhT$ÝÓ  Óà  àòòÚ  Ú6Ú  ÚóóÔ€ô© ò»»ÔÝ  ÝÔ_Ô€These€violations,€in€summary,€included€the€following:€incompetency;€inefficiency;€not€being€professional€inÐ ° Ðwork€performance;€violation€of€safety€rules;€operation€of€a€city€owned€vehicle€in€wanton€disregard€for€the€safety€ofÐ qÁ Ðothers;€and€willfully€or€repeatedly€violating€a€safety€rule.€€(#Ã$òòÚ  Ú0Ú  ÚóóLevel 1Level 2Level 3Level 4Level 5‚Level 1Level 2Level 3Level 4Level 5„Level 1Level 2Level 3Level 4Level 5…Level 1Level 2Level 3Level 4Level 5 WÝ ƒRhT$ÝÓ  Óà  àòòÚ  Ú5Ú  ÚóóÔ€ô© ò»»ÔÝ  ÝÔ_Ô€These€violations,€in€summary,€included€the€following:€€neglect€of€duty€or€negligence;€failure€to€maintainÐ ° Ðrequired€certifications;€failure€to€properly€control€subordinates€and€equipment;€failure€to€follow€safety€procedures€andÐ qÁ Ðcontrol€the€driver;€an€act€or€omission€contrary€to€good€order,€discipline,€or€accepted€social€practice;€and€failure€to€workÐ 2‚ Ðcooperatively€toward€serving€the€best€interest€of€the€public.3#37=CIQYag­­1.a.i.(1)(a)(i)1)a) îÝ ƒRhT$ÝÓ  Óà  àòòÚ  Ú9Ú  ÚóóÔ€ô© ò»»ÔÝ  ÝÔ_Ô€The€record€contains€a€copy€of€the€Airport€Authorityððs€Ô_ÔAOAÔ_Ô€Driverððs€License€Study€Guide€which€outlines€theÐ ° Ðprocedures€used€by€the€Airport€Authority€in€enforcing€the€provisions€contained€therein.€The€document€states€thatÐ qÁ Ðfollowing€a€violation€of€the€rules€set€forth€by€the€Airport€Authority,€the€violator€will€be€provided€a€Notice€of€ViolationÐ 2‚ Ð(ð ðNOVðð)€from€the€Director€of€Operations€and€Public€Safety€or€his€designee.€€The€violator€is€also€entitled€to€a€hearingÐ óC Ðbefore€the€Director€of€Operations€within€fifteen€days€of€receiving€a€NOV.€€Director€White€conceded€during€his€testimonyÐ ´ Ðbefore€the€Commission€that€the€Airport€Authority€did€not€comply€with€its€own€policies€prior€to€revoking€Chief€MooreððsÐ uÅ Ðcredentials.€i)î1Ï (;3£$´´Ô2#ÔÚ  Ú0Ú  Ú.Ô3  Ôà0  à ÏÝ ƒRhT$ÝÓ  Óà  àòòÚ  Ú10Ú  ÚóóÔ€ô© ò»»ÔÝ  ÝÔ_Ô€At€the€hearing€before€the€Commission,€Director€Anderson€testified€that€the€Memphis€Fire€Department€hasÐ ° Ðonly€three€Air€Crash€Chief€positions,€all€of€which€are€located€at€the€Memphis€Airport.€€Director€Anderson€and€ChiefÐ qÁ ÐLooney€both€testified€that€the€credentials€provided€by€the€Airport€Authority€are€a€prerequisite€for€the€job€of€Air€CrashÐ 2‚ ÐChief,€without€which€Chief€Moore€would€be€unable€to€perform€the€duties€associated€with€that€position.€€Counsel€forÐ óC ÐChief€Moore,€upon€cross„examining€Chief€Looney,€brought€out€the€fact€that€a€person€without€the€proper€credentials€couldÐ ´ Ðconceivably€be€on€airport€property€if€he€were€escorted€at€all€times€and€did€not€have€to€operate€a€vehicle.€€This€sameÐ uÅ Ðargument€was€put€before€the€chancery€court€on€appeal€of€the€Commissionððs€decision.€€€Given€the€demands€of€the€jobÐ 6 † Ðfaced€by€a€fireman€responding€to€emergencies,€we€agree€with€the€chancellorððs€conclusion€that€this€is€not€a€feasibleÐ ÷ G Ðalternative.€€ øÝ ƒRhT$ÝÓ  Óà  àòòÚ  Ú7Ú  ÚóóÔ€ô© ò»»ÔÝ  ÝÔ_Ô€The€pre„1989€version€of€section€27„9„114€provided:Ð ° ÐÓ °ÓÓ °ÓNo€court€of€record€of€this€state€shall€entertain€any€proceeding€involving€the€civilÐ qÁ Ðservice€status€of€a€county€or€a€municipal€employee€when€such€proceeding€in€theÐ 2‚ Ðnature€of€an€appeal€from€from€a€ruling€of€city€or€county€official€or€board€whichÐ óC Ðaffects€the€employment€status€of€a€county€or€city€employee,€except€such€proceedingÐ ´ Ðbe€one€of€òòcommon€law€certiorarióó.€€Any€such€proceeding€shall€be€heard€by€a€judgeÐ uÅ Ðor€chancellor€without€the€intervention€of€a€jury.€€This€section€shall€supersede€anyÐ 6 † Ðdisplaced€provisions€of€city€charters€to€the€contrary.€€Ð ÷ G ÐÓ °ÔÓÓ °ÆÓòòTenn.€Code€Annóó.€ðð€27„914€(1984)€(emphasis€added).€€ ÑÝ ƒRhT$ÝÓ  Óà  àòòÚ  Ú4Ú  ÚóóÔ€ô© ò»»ÔÝ  ÝÔ_Ô€The€letter€also€cited€Chief€Mooreððs€involvement€in€a€second€runway€incursion€occurring€on€July€12,€2001.€Ð ° ÐChief€Moore€denies€any€knowledge€of€the€second€incursion€contained€in€the€letter,€and€the€record€reflects€that€the€onlyÐ qÁ Ðother€incursion€involving€Chief€Moore€occurred€on€February€5,€2001.€€ 4Ý ƒRhT$ÝÓ  Óà  àòòÚ  Ú11Ú  ÚóóÔ€ô© ò»»ÔÝ  ÝÔ_Ô€We€have€serious€reservations€concerning€whether€this€statute€would€even€apply€to€Chief€Moore,€given€theÐ ° Ðfact€that€the€òòCity€of€Memphis€óówas€the€party€taking€action€against€Chief€Moore€in€this€case.€€Section€27„9„114(b),Ð qÁ Ðgoverning€review€of€a€decision€by€a€civil€service€commission,€only€references€the€judicial€review€standards€found€inÐ 2‚ Ðsection€4„5„322€of€the€Ô_ÔUAPAÔ_Ô.€€òòTenn.€Code€Annóó.€ðð€27„9„114(b)(1)€(2003).€€In€order€for€the€provision€of€the€Ô_ÔUAPAÔ_Ô€reliedÐ óC Ðon€by€Chief€Moore€to€apply,€the€City€would€need€to€qualify€as€a€ð ðstate€agency.ðð€€ð ðAgency,ðð€as€defined€by€the€Ô_ÔUAPAÔ_Ô,Ð ´ Ðð ðmeans€each€òòstate€óóboard,€commission,€committee,€department,€officer,€or€any€other€unit€of€òòstate€government€óóauthorizedÐ uÅ Ðor€required€by€any€statute€or€constitutional€provision€to€make€rules€or€to€determine€contested€cases[.]ðð€òòTenn.€Code€Annóó.Ð 6 † Ððð€4„5„102(2)€(2003)€(emphasis€added).€€However,€we€do€not€need€to€reach€this€issue€in€the€present€case.€€€€ Ý ƒRhT$ÝÓ  Óà  àòòÚ  Ú8Ú  ÚóóÔ€ô© ò»»ÔÝ  ÝÔ_Ô€It€was€incorrect€for€the€City€to€suggest€in€its€brief€to€this€Court€that€the€proper€method€of€reviewing€theÐ ° Ðdecision€of€the€Civil€Service€Commission€was€by€common€law€certiorari€pursuant€to€section€27„9„114€òòet€seqóó.€of€theÐ qÁ ÐTennessee€Code.€€Instead,€the€petition€should€be€couched€in€terms€of€a€review€of€the€decision€of€the€Civil€ServiceÐ 2‚ ÐCommission€pursuant€to€section€4„5„322€of€the€Tennessee€Code.€€òòSee€Ô_ÔMaasikasÔ_Ô€v.€Metro.€Ô_ÔGovððtÔ_Ô€of€Nashville€&€DavidsonÐ óC ÐCountyóó,€No.€M2002„02652„Ô_ÔCOAÔ_Ô„R3„CV,€2003€Tenn.€App.€LEXIS€889,€at€*3€(Tenn.€Ct.€App.€Dec.€22,€2003);€òòWoodsÐ ´ Ðv.€Metro.€Ô_ÔGovððtÔ_Ô€of€Nashville€&€Davidson€Countyóó,€No.€M2001„03143„Ô_ÔCOAÔ_Ô„R3„CV,€2003€Tenn.€App.€LEXIS€858,€at€*4ð!ð5Ð uÅ Ð(Tenn.€Ct.€App.€Dec.€10,€2003);€òòStephenson€v.€Town€of€White€Pineóó,€No.€03A01„9705„CH„00185,€1997€Tenn.€App.Ð 6 † ÐLEXIS€787,€at€*3ð!ð4€(Tenn.€Ct.€App.€Nov.€13,€1997);€òòKnoxville€Ô_ÔUtilÔ_Ô.€Bd.€v.€Knoxville€Civil€Serv.€Merit€Bd.óó,€No.€03A01„Ð ÷ G Ð9301„CH„00008,€1993€Tenn.€App.€LEXIS€438,€at€*24€(Tenn.€Ct.€App.€June€28,€1993);€òòCity€of€Memphis€v.€Owensóó,€No.Ð ¸  Ð02A01„9109„CH„00202,€1992€Tenn.€App.€LEXIS€784,€at€*1€n.1€(Tenn.€Ct.€App.€Sept.€18,€1992).€€ð ðThe€powers€ofÐ y É  ÐJudicial€Review€possessed€by€the€Chancery€Court€under€Ô_ÔT.C.A.Ô_Ô€ðð€4„5„322€are€much€more€broad€in€scope€than€the€powersÐ : Š  Ðof€review€under€traditional€common€law€certiorari.ðð€€òòParis€v.€City€of€Lebanon€Pers.€Review€Bd.óó,€No.€01A01„9702„CH„Ð û K  Ð00054,€1997€Tenn.€App.€LEXIS€677,€at€*15€(Tenn.€Ct.€App.€Oct.€3,€1997).€€6hö0ê:i¢Ø+003|x ÿU‹ÿÀÀÀ- ù-(|G2hT$¤¤Ý ƒ£ª!ÝÑ€.ÑÑ8€˜é»»dd8ÑÑ ý ÑÓ  ÓÝ  Ýà  àòòÚ  Ú0Ú  ÚóóÔ€ô·4ò»»Ô d(|3?#$££Ý ƒ£ª!ÝÑ€.ÑÑ8€˜é»»dd8ÑÑ ý ÑÓ  ÓÝ  ÝVVVV'ÿÿdxd)!ÈÈÈÈdxdx( ±þ$’’ò òFigure€Ú  Ú1Ú  Úó ó^_X`YEþÿ<<CÿÿƒLevel 1Level 2Level 3Level 4Level 5(|3?#$¢¢Ý ƒ£ª!ÝÑ€.ÑÑ8€˜é»»dd8ÑÑ ý ÑÓ  ÓÝ  Ý($$””ò òÚ  Ú1Ú  Úó óX[Z&OLE 2.0 Box <=8ÿÿÿÿÿÿÿÿÿÿCÿÿ HKKKKÝ ƒ£ª!ÝÑ€.ÑÑ8€šÁ»»ddÈ8ÑÑ ý ÑÓ  ÓÝ  ÝÔ_ÔÑ  ÑÔ€¼šÁ»»»ÔÑ8€Ï/XXdé»»d8ÑÑ  Ñà@ò ò ìàÔ‡îv~šÁÔIN€THE€COURT€OF€APPEALS€OF€TENNESSEEˆÐ ° Ðà@òò%ìàAT€JACKSONÔ#†¼šÁ»îîv~ #ԈРÓ# ÐÓ  ÓSEPTEMBER€23,€2004€SessionÐ öF ÐÔ‡XÏ/X»¼šÁÔÌò òÔ#†¼šÁ»XXÏ/õ#ÔCITY€OF€MEMPHIS,€A€Municipal€Corporationòòóó€v.€THE€CIVIL€SERVICEÐ ï? ÐCOMMISSION€OF€THE€CITY€OF€MEMPHIS€and€TOMMY€MOOREòòóóÔ‡XÏ/X»¼šÁÔó óÐ  P ÐÌà@@½½ìàò òDirect€Appeal€from€the€Chancery€Court€for€Shelby€CountyÐ ú J Ðà@@øøìàNo.€CH„03„0120„3€€€€€€D.€J.€Alissandratos,€ChancellorÐ ä 4 ÐÌÌà@@ìì*ìàßA€V) °°` d€÷E<¡` AßÐ ¢ò  ÐÌà@@TTìàNo.€W2003„02799„COA„R3„CV€„€Filed€December€29,€2004Ð ›ë  ÐÌßA€V) °°` dE<n` AßÐ o¿  Ðó óÌÓ  ÓÔ‡X#žXXXÏ/ÔThis€case€involves€the€demotion€of€an€Air€Crash€Chief€employed€by€the€City€of€Memphis€FireÐ g· ÐDepartment€following€the€revocation€of€his€security€clearance€and€driving€privileges€by€theÐ P  ÐMemphis„Shelby€County€Airport€Authority.€€Following€his€demotion,€the€Chief€appealed€the€cityððsÐ 9‰ Ðdecision€to€the€City€of€Memphis€Civil€Service€Commission.€€The€civil€service€commission€reversedÐ "r Ðthe€cityððs€ruling€and€held€that€the€Chief€must€be€reinstated.€€The€city€filed€a€common€law€writ€ofÐ  [ Ðcertiorari€in€the€Chancery€Court€of€Shelby€County€to€appeal€the€finding€of€the€civil€serviceÐ ôD Ðcommission.€€The€chancery€court€reversed,€finding€that€the€civil€service€commission€exceeded€itsÐ Ý- Ðauthority€in€reversing€the€cityððs€decision€and€reinstating€the€Chief.€€We€affirm.Ð Æ ÐÌ€€€Ð ˜è ÐÔ#†XÏ/XXX#žë#ÔÔ#†¼šÁ»XXÏ/Ê#ÔÔ‡XÏ/X»¼šÁÔÌÓßÓÌò òTenn.€R.€App.€P.€3;€Appeal€as€of€Right;€Judgment€of€the€Chancery€Court€Affirmedó óÐ S£ ÐÌòòÓ  ÓÔ#†¼šÁ»àXÏ/ý#ÔÔ‡XÏ/X.¼šÁÔAlan€E.€Highers,€J.óó,€delivered€the€opinion€of€the€court,€in€which€òòW.€Frank€Crawford,€P.J.,€W.S.,óóÐ & v Ðand€òòHolly€M.€Kirby,€J.óó,€joined.Ð !_  ÐÌJoseph€Michael€Cook,€Memphis,€TN,€for€Appellant,€Tommy€MooreÐ á"1" ÐÌSara€L.€Hall,€Gerald€L.€Thornton,€and€Barbaralette€G.€Davis,€City€Attorneys,€Memphis,€TN,€forÐ ³$ $ ÐAppellee,€City€of€MemphisÐ œ%ì % ÐÓœ ÓÌÌò òÌÌÌÌÌÌÐ Ó-#).ý ÐOPINIONó óÔ#†¼šÁ»XXÏ/Ë #ÔÔ‡XÏ/X»¼šÁÔÐ ° ÐÌòòóóÔ#†¼šÁ»XXÏ/ö #ÔÔ‡XÏ/X»¼šÁÔÓ  Óò òÔ‡X#žXXXÏ/Ôà@t t ìàFactual€Background€and€Procedural€HistoryˆÐ ƒÓ ÐÌó ó€€€€€€€€€€Chief€Tommy€Lee€Moore€(ð ðChief€Mooreðð)€began€his€career€with€the€Memphis€FireÐ W§ ÐDepartment€approximately€twenty€years€ago€as€a€private€and€gradually€worked€his€way€to€theÐ @  Ðposition€of€Battalion€Chief.€€In€1999,€Chief€Moore€passed€a€test€required€for€promotion€to€theÐ ) y Ðposition€of€Air€Crash€Chief.€€In€2001,€an€Air€Crash€Chief€position€became€available€at€Memphis€FireÐ  b ÐDepartment€Station€33€located€at€Memphis€International€Airport€(ð ðMemphis€Airportðð),€and€ChiefÐ û K ÐMoore€was€promoted€to€fill€the€vacancy.€€€Prior€to€assuming€the€new€position,€Chief€Moore€appliedÐ ä 4  Ðfor€and€received€a€security€identification€badge€and€airport€driverððs€license€from€the€Memphis„Ð Í   ÐShelby€County€Airport€Authority€(ð ðAirport€Authorityðð).׃ ×Ý ƒ #ÃÝòòÚ  Ú1Ú  ÚóóÝ  Ý×  ×€€On€February€5,€2001,€Chief€MooreÐ ¶  Ðreported€for€his€first€day€of€duty€at€the€Memphis€Airport€as€the€new€Air€Crash€Chief€for€Station€33.€Ð Ÿï  ÐÌà  àMarsalis€A.€Freeman€(ð ðMr.€Freemanðð)€worked€for€the€Memphis€Fire€Department€at€StationÐ qÁ  Ð33€as€a€pumper€driver€tasked€with€the€responsibility€of€driving€Chief€Moore€in€the€command€vehicle.€Ð Zª  ÐOn€Chief€Mooreððs€first€day€at€the€Memphis€Airport,€Mr.€Freeman€took€Chief€Moore€for€a€ride€in€theÐ C“ Ðcommand€vehicle€to€familiarize€him€with€the€airport.€€During€their€trip,€Mr.€Freeman€drove€theÐ ,| Ðcommand€vehicle€onto€a€runway€without€authorization€from€the€Air€Traffic€Control€Tower.€€TheÐ e ÐAirport€Authority€labeled€the€event€a€runway€incursion.€€Mr.€Freeman€was€subsequently€disciplinedÐ þN Ðfor€the€incident,€but€no€disciplinary€action€was€taken€against€Chief€Moore€at€that€time.€Ð ç7 ÐÌà  àOn€July€3,€2002,€Mr.€Freeman€was€driving€Chief€Moore€in€the€command€vehicle€whileÐ ¹  Ðresponding€to€an€incident€at€the€Memphis€Airport.€€The€Air€Traffic€Control€Tower€cleared€them€toÐ ¢ò Ðcross€a€runway,€but€Mr.€Freeman€drove€the€vehicle€down€the€runway€instead.׃Ó×Ý ƒ #ÃÝòòÚ  Ú2Ú  ÚóóÝ  Ý×  ×€€Following€this€latestÐ ‹Û Ðincident,€Chief€John€Looney€(ð ðChief€Looneyðð),€a€Division€Chief€with€the€Memphis€Fire€DepartmentÐ tÄ Ðand€the€Memphis€Fire€Departmentððs€liaison€to€the€Airport€Authority,€met€with€members€of€theÐ ]­ ÐAirport€Authority.€€Chief€Looney€also€launched€an€investigation€into€the€incident€on€behalf€of€theÐ F– ÐMemphis€Fire€Department.€€At€the€request€of€the€Airport€Authority,€the€Memphis€Fire€DepartmentÐ / Ðreturned€Chief€Moore€to€his€previous€position€as€Battalion€Chief€away€from€the€Memphis€Airport.׃ Ÿ×Ý ƒ #ÃÝòòÚ  Ú3Ú  ÚóóÝ  Ý×  ×Ð h Ðâ âÐ  Q Ðà  àOn€July€29,€2002,€Walter€White€(ð ðDirector€Whiteðð),€Director€of€Operations€and€Public€SafetyÐ ° Ðâ âwith€the€Airport€Authority,€sent€a€letter€to€Chief€Moore€informing€him€of€the€Airport€AuthorityððsÐ ™é Ðdecision€to€revoke€his€security€clearance€and€driving€privileges€at€the€Memphis€Airport.€€€AsÐ ‚Ò Ðgrounds€for€this€decision,€the€letter€cited€Chief€Mooreððs€involvement€in€the€July€3,€2002,€runwayÐ k» Ðincursion.׃×Ý ƒ #ÃÝòòÚ  Ú4Ú  ÚóóÝ  Ý×  ×€€In€the€interim,€Chief€Looney€concluded€his€investigation€and€determined€that,€sinceÐ T¤ ÐChief€Moore€had€his€credentials€revoked€by€the€Airport€Authority,€the€Memphis€Fire€DepartmentÐ =  Ðcould€no€longer€keep€him€in€the€position€of€Air€Crash€Chief€at€the€Memphis€Airport.Ð & v ÐÌà  àOn€August€13,€2002,€the€City€of€Memphis€(ð ðCityðð)€sent€Chief€Moore€a€Notification€ofÐ ø H ÐAdministrative€Investigation€and€Hearing€alerting€him€that€disciplinary€proceedings€had€beenÐ á 1  Ðinstituted€against€him.€€The€notice€cited€the€two€alleged€incursions€at€the€Memphis€Airport€involvingÐ Ê   ÐChief€Moore,€as€well€as€violations€of€the€Division€of€Fire€Services€Operations€Manual׃Ó×Ý ƒ #ÃÝòòÚ  Ú5Ú  ÚóóÝ  Ý×  ×€and€the€CityÐ ³  Ðof€Memphis€Personnel€Manual.׃ Ÿ×Ý ƒ #ÃÝòòÚ  Ú6Ú  ÚóóÝ  Ý×  ×€€On€August€20,€2002,€the€Memphis€Fire€Department€conducted€anÐ œì  Ðadministrative€hearing€regarding€the€allegations€lodged€against€Chief€Moore.€€Chief€Looney,€inÐ …Õ  Ðaddition€to€being€the€investigating€officer,€also€conducted€the€disciplinary€hearing.€€On€August€22,Ð n¾  Ð2002,€Chief€Looney,€on€behalf€of€the€City,€entered€a€decision€finding,€in€relevant€part,€as€follows:Ð W§  ÐÓ °ÓÓ °ÓÌAs€a€result€of€these€incidents,€the€Memphis€Shelby€County€AirportÐ )y ÐAuthority€has€asked€that€you€be€removed€from€any€position€at€theÐ b Ðairport.€€Furthermore,€they€have€permanently€revoked€your€SecurityÐ ûK ÐIdentification€Display€Area€badge€which€is€a€requirement€for€you€toÐ ä4 Ðwork€actively€on€the€airfield.€€Both€you€and€Driver€Freemanððs€badgesÐ Í Ðhave€been€permanently€revoked.€€Ð ¶ ÐÌ.€.€.€.Ð ˆØ ÐÌAs€an€active€Air€Rescue€Chief€you€are€responsible€for€two€seriousÐ Zª Ðrunway€incidents.€€Your€actions€have€been€negligent€in€your€dutiesÐ C“ Ðas€an€Air€Rescue€Chief€and€violated€the€highest€safety€standards€setÐ ,| Ðby€this€Department€and€the€Airport€Authority.€€Ð e Ðâ âÐ þN ÐTherefore,€because€of€your€actions,€and€because€of€your€violation€ofÐ ° Ðâ âthe€above€stated€rules€and€regulations,€you€are€hereby€removed€fromÐ ™é Ðthe€Airport€Air€Rescue€responsibility€and€demoted€to€the€rank€ofÐ ‚Ò ÐBattalion€Chief.€€Ð k» ÐÓ °!ÓÓ °ó ÓÌà  àChief€Moore€appealed€the€decision€to€the€City€of€Memphis€Civil€Service€CommissionÐ =  Ð(ð ðCommissionðð).€€The€Commission€held€a€hearing€on€December€6,€2002,€and€heard€testimony€fromÐ & v Ðseveral€witnesses€concerning€the€allegations.€€The€Commission€issued€a€ruling€on€January€13,€2003,Ð  _ Ðstating:Ð ø H ÐÌÓ °ÓÓ °ÓThe€Commission€finds€against€the€City€in€that€there€was€noÐ Ê   Ðreasonable€basis€for€the€demotion.€€The€Commission€understands€thatÐ ³  Ðthe€City€has€a€limited€number€of€positions€at€the€A/R€Chief€level,€andÐ œì  Ðall€of€those€positions€involve€working€at€the€Airport.€€TheÐ …Õ  ÐCommission€also€understands€that€it€was€the€Airport€Authority€whichÐ n¾  Ðtook€action€to€confiscate€the€badge€and€prohibit€Chief€Moore€fromÐ W§  Ðworking€at€the€Airport,€not€the€City.€€However,€the€evidenceÐ @ Ðpresented€in€this€case€indicated€that€the€Cityððs€liaison€did€nothing€toÐ )y Ðensure€that€Chief€Moore€received€due€process€in€accordance€with€theÐ b Ðguidelines€and€procedures€of€the€Airport€Authority.€€Ð ûK ÐÌ.€.€.€.€Ð Í ÐÌIn€summary,€the€Commission€unanimously€finds€by€a€preponderanceÐ Ÿï Ðof€the€evidence€that€Chief€Mooreððs€reassignment€amounted€to€aÐ ˆØ Ðdemotion€and€the€City€lacks€a€reasonable€basis€for€their€actions.€Ð qÁ ÐTherefore,€Chief€Moore€is€to€be€reinstated€to€his€previous€rank€of€AirÐ Zª ÐRescue€Chief€with€all€back€pay€and€benefits€as€of€the€date€of€hisÐ C“ Ðdemotion.€€Ð ,| ÐÌÓ °j'ÓÓ °\'Óà  àThe€City€appealed€the€Commissionððs€ruling€by€filing€a€Petition€for€Writ€of€Certiorari€andÐ þN ÐSupersedeas€in€the€Chancery€Court€of€Shelby€County.€€The€chancellor€issued€the€writ€and,€afterÐ ç 7 Ðhearing€arguments€from€both€parties€and€reviewing€the€record€from€the€Commission,€issued€an€orderÐ Ð!   Ðon€October€30,€2003,€finding€that€the€Commission€exceeded€its€authority€as€a€matter€of€law€whenÐ ¹" ! Ðit€reinstated€Chief€Moore.€€In€reaching€this€conclusion,€the€chancellor€made€the€following€findings:Ð ¢#ò" Ð(1)€the€Airport€Authority€did€not€follow€its€own€rules€and€regulations€when€it€stripped€Chief€MooreÐ ‹$Û# Ðof€his€security€clearance€and€driving€privileges;€(2)€the€City€has€no€control€over€the€decision€by€theÐ t%Ä $ ÐAirport€Authority€to€revoke€such€credentials;€(3)€as€a€result€of€losing€these€credentials,€Chief€MooreÐ ]&­!% Ðcould€no€longer€be€employed€by€the€Memphis€Fire€Department€at€the€Memphis€Airport;€and€(4)€theÐ F'–"& ÐCommission€exceeded€its€authority€by€requiring€the€City€to€maintain€an€employee€in€a€non„existentÐ /(#' Ðposition,€thereby€forcing€the€City€to€create€a€new€position.€Ð )h$( ÐÌà  àChief€Moore€timely€filed€an€appeal€to€this€Court€presenting€the€following€issues€for€ourÐ ê*:&* Ðreview:Ð Ó+#'+ ÐÓ€ (5h83ÓÌÝ"‚3£"ÝÝ  ÝÝ‚3£ó2ÝÔ25hÔÚ  ÚIÚ  Ú.Ô3  Ôà0  àÝ  ÝWhether€the€chancery€court€erred€in€reversing€the€ruling€of€the€City€of€Memphis€CivilÐ ™é ÐService€Commission;€and€Ýƒ3£ó2 3݌ЂÒ(#(# ÐŒÝ  ÝÝ"‚3£"ÝÝ  ÝÝ‚3£>4ÝÔ25hÔÚ  ÚIIÚ  Ú.Ô3  Ôà0  àÝ  ÝWhether€Appellant€is€entitled€to€attorneyððs€fees€and€costs€on€appeal€pursuant€to€section€4„5„Ð k» Ð325€of€the€Tennessee€Code.€€Ýƒ3£>4k4ÝŒÐT¤(#(# ÐŒÝ  ÝÌFor€the€reasons€set€forth€herein,€we€affirm€the€decision€of€the€chancery€court.€€Ð & v ÐÌÓ  Óò òStandard€of€ReviewÐ ø H ÐÌó óÓ  Ó€€€€€€€€€€€€The€City€couched€its€appeal€to€the€chancery€court€in€terms€of€a€common€law€writ€ofÐ Ì   Ðcertiorari.€€Review€of€the€decision€by€a€board€or€commission,€ð ðwhere€not€otherwise€specificallyÐ µ  Ðprovided,ðð€may€be€instituted€under€the€procedures€set€forth€in€section€27„9„101€òòet€seqóó.€of€theÐ žî  ÐTennessee€Code.€€òòTenn.€Code€Annóó.€ðð€27„9„101€(2003).€€Prior€to€1989,€section€27„9„114€of€theÐ ‡×  ÐTennessee€Code€provided€that€the€common€law€writ€of€certiorari€was€the€proper€vehicle€forÐ pÀ  Ðappealing€the€decisions€of€a€civil€service€board.׃×Ý ƒ #ÃÝòòÚ  Ú7Ú  ÚóóÝ  Ý×  ×€€òòHuddleston€v.€City€of€Murfreesboroóó,€635€S.W.2dÐ Y©  Ð694,€695€(Tenn.€1982);€òòsee€also€Paris€v.€City€of€Lebanon€Pers.€Review€Bd.óó,€No.€01A01„9702„CH„Ð B’ Ð00054,€1997€Tenn.€App.€LEXIS€677,€at€*13€(Tenn.€Ct.€App.€Oct.€3,€1997).€€In€1988,€the€legislatureÐ +{ Ðamended€section€27„9„114€of€the€Tennessee€Code€to€provide€that€judicial€review€of€the€decisionsÐ d Ðof€a€civil€service€commission€must€be€conducted€as€follows:Ð ýM ÐÌÓ °ÓÓ ûÓò òProceedings€involving€certain€public€employeesó ó.Ð Ï ÐÌ.€.€.€.€Ð ¤ô ÐÌ(b)(1)€Judicial€review€of€decisions€by€civil€service€boards€of€aÐ vÆ Ðcounty€or€municipality€which€affects€the€employment€status€of€aÐ _¯ Ðcounty€or€city€civil€service€employee€shall€be€in€conformity€with€theÐ H˜ Ðjudicial€review€standards€under€the€Uniform€AdministrativeÐ 1 ÐProcedures€Act€[(ð ðUAPAðð)],€ðð€4„5„322.Ð j Ð(2)€Petitions€for€judicial€review€of€decisions€by€a€city€or€county€civilÐ  S Ðservice€board€affecting€the€employment€status€of€a€civil€serviceÐ ì < Ðemployee€shall€be€filed€in€the€chancery€court€of€the€county€whereinÐ Õ!%  Ðthe€local€civil€service€board€is€located.€€Ð ¾"! ÐÐ §#÷" ÐÓ û$;ÓÓ °;ÓòòTenn.€Code€Annóó.€ðð€27„9„114(b)€(2003);€òòsee€also€óó1988€òòTenn.€Pub.€Acts€óóCh.€1001.€€While€theÐ ° ÐCityððs€petition€was€incorrectly€labeled,€the€City€correctly€noted€in€its€petition€that€the€chancery€courtÐ ™é Ðmust€apply€the€standard€of€review€found€in€the€present€version€of€section€27„9„114€of€the€TennesseeÐ ‚Ò ÐCode.׃×Ý ƒ #ÃÝòòÚ  Ú8Ú  ÚóóÝ  Ý×  ×€€Ð k» ÐÌà  àThe€appropriate€standard€of€review€to€be€used€by€the€chancery€court€when€reviewing€theÐ =  Ðdecision€of€a€civil€service€board€is€that€found€in€section€4„5„322,€which€provides:Ð & v ÐÌÓ °ÓÓ °Ó(h)€€The€court€may€affirm€the€decision€of€the€agency€or€remand€theÐ ø H Ðcase€for€further€proceedings.€€The€court€may€reverse€or€modify€theÐ á 1  Ðdecision€if€the€rights€of€the€petitioner€have€been€prejudiced€becauseÐ Ê   Ðthe€administrative€findings,€inferences,€conclusions€or€decisions€are:Ð ³  ÐÓ °~AÓÓ ÓÓ °ŒAÓÓ Ó(1)€In€violation€of€constitutional€or€statutoryÐ œì  Ðprovisions;Ð …Õ  Ð(2)€In€excess€of€the€statutory€authority€of€the€agency;Ð n¾  Ð(3)€Made€upon€unlawful€procedure;Ð W§  Ð(4)€Arbitrary€or€capricious€or€characterized€by€abuseÐ @ Ðof€discretion€or€clearly€unwarranted€exercise€ofÐ )y Ðdiscretion;€orÐ b Ð(5)€Unsupported€by€evidence€which€is€bothÐ ûK Ðsubstantial€and€material€in€the€light€of€the€entireÐ ä4 Ðrecord.€€In€determining€the€substantiality€of€evidence,Ð Í Ðthe€court€shall€take€into€account€whatever€in€theÐ ¶ Ðrecord€fairly€detracts€from€its€weight,€but€the€courtÐ Ÿï Ðshall€not€substitute€its€judgment€for€that€of€the€agencyÐ ˆØ Ðas€to€the€weight€of€the€evidence€on€questions€of€fact.€Ð qÁ ÐÌÓ /CÓÓ CÓÓ °€9ÓÓ °h9ÓÌÓ °õFÓÓ °GÓòòTenn.€Code€Annóó.€ðð€4„5„322(h)€(2003);€òòsee€also€Holder€v.€City€of€Chattanoogaóó,€878€S.W.2d€952Ð ,| Ð(Tenn.€Ct.€App.€1993).€€In€reviewing€the€decision€of€a€civil€service€commission,€the€chancery€courtÐ e Ðis€generally€confined€to€reviewing€the€record€of€the€proceedings€before€the€administrative€body.€Ð þN ÐòòTenn.€Code€Annóó.€ðð€4„5„322(g)€(2003);€òòsee€also€Howell€v.€City€of€Columbiaóó,€No.€M2001„00620„Ð ç 7 ÐCOA„R3„CV,€2002€Tenn.€App.€LEXIS€743,€at€*8€(Tenn.€Ct.€App.€Oct.€16,€2002).€€Our€supremeÐ ° Ðcourt€has€summarized€the€standard€of€review€found€in€section€4„5„322€of€the€Tennessee€Code€asÐ ™é Ðfollows:Ð ‚Ò ÐÌÓ °ÓÓ °ÓThus€the€UAPA€requires€that€the€trial€court€review€factual€issuesÐ T¤ Ðupon€a€standard€of€substantial€and€material€evidence.€€But€this€is€notÐ =  Ða€broad,€òòde€novo€óóreview.€€It€is€restricted€to€the€record€and€the€agencyÐ & v Ðfinding€may€not€be€reversed€or€modified€unless€arbitrary€orÐ  _ Ðcapricious€or€characterized€by€an€abuse,€or€clearly€unwarrantedÐ ø H Ðexercise,€of€discretion€and€must€stand€if€supported€by€substantial€andÐ á 1  Ðmaterial€evidence.€€Ð Ê   ÐÌÓ °4JÓÓ °&JÓòòCF€Indus.€v.€Tenn.€Pub.€Serv.€Commððnóó,€599€S.W.2d€536,€540€(Tenn.€1980);€òòsee€also€óó€òòHumana€ofÐ œì  ÐTenn.€v.€Tenn.€Health€Facilities€Commððnóó,€551€S.W.2d€664,€667€(Tenn.€1977).Ð …Õ  ÐÌà  àð ðAny€party€dissatisfied€with€the€decree€of€the€court€may€appeal€to€the€court€of€appeals€in€theÐ W§  Ðmanner€provided€by€the€Tennessee€Rules€of€Appellate€Procedure.ðð€€òòTenn.€Code€Annóó.€ðð€27„9„112(a)Ð @ Ð(2003).€€ð ðThe€scope€of€review€by€the€appellate€courts€is€no€broader€or€more€comprehensive€than€thatÐ )y Ðof€the€trial€court€with€respect€to€evidence€presented€before€the€[Commission].ðð€€òòWatts€v.€Civil€Serv.Ð b ÐBd.€for€Columbiaóó,€606€S.W.2d€274,€277€(Tenn.€1980).€€In€reviewing€a€matter€instituted€under€sectionÐ ûK Ð27„9„114€of€the€Tennessee€Code,€we€will€not€re„weigh€the€evidence€or€attempt€to€settle€disputedÐ ä4 Ðissues€of€fact.€€€òòSee€Goodwin€v.€Metro.€Bd.€of€Healthóó,€656€S.W.2d€383,€387€(Tenn.€Ct.€App.€1983).€Ð Í ÐInstead,€this€Court€is€bound€by€the€same€standard€of€review€as€the€chancery€court€and€must€likewiseÐ ¶ Ðreview€the€record€before€the€Commission€under€the€statutory€criteria€found€in€section€4„5„322(h)€ofÐ Ÿï Ðthe€Tennessee€Code.€€òòCF€Indus.óó,€599€S.W.2d€at€540;òò€see€also€Humana€of€Tennóó.,€551€S.W.2d€atÐ ˆØ Ð667ð!ð68;€òòBishop€v.€Tenn.€State€Bd.€of€Accountancyóó,€905€S.W.2d€939,€942€(Tenn.€Ct.€App.€1995).€€Ð qÁ ÐÌÓ  Óò òDecision€of€the€Civil€Service€CommissionÐ C“ ÐÌó óÓ  Ó€€€€€€€€€€€€On€appeal,€Chief€Moore€asserts€that€the€Commission€had€ample€authority€to€reverse€theÐ g Ðdecision€of€the€Memphis€Fire€Department€and€reinstate€Chief€Moore.€€The€City€asserts€that€theÐ  P ÐCommission€exceeded€its€authority€and€the€chancellor€was€correct€to€reverse€the€CommissionððsÐ é 9 Ðdecision.Ð Ò!"  ÐÌà  àð ðThe€charter€of€the€city€is€the€organic€law€of€the€corporation,€being€to€it€what€the€constitutionÐ ¤#ô" Ðis€to€the€state.€.€.€.ðð€€òòState€v.€Bowmanóó,€814€S.W.2d€369,€373€(Tenn.€Ct.€App.€1991).€€A€civil€serviceÐ $Ý# Ðcommission€must€act€within€the€parameters€of€the€charter€which€created€it.€€òòState€ex€rel.€Atkin€v.€CityÐ v%Æ $ Ðof€Knoxvilleóó,€315€S.W.2d€115,€117€(Tenn.€1958);€òòsee€also€Fox€v.€Milesóó,€No.€W2002„01860„COA„Ð _&¯!% ÐR3„CV,€2004€WL€239762,€at€*6€(Tenn.€Ct.€App.€Feb.€9,€2004).€€If€a€civil€service€commissionÐ H'˜"& Ðexceeds€its€jurisdiction€or€authority€in€reviewing€an€employeeððs€case,€it€has€acted€illegally€and€inÐ 1(#' Ðexcess€of€its€statutory€authority.€€òòCity€of€Memphis€v.€Civil€Serv.€Commððnóó,€1985€WL€3717,€at€*1Ð )j$( Ð(Tenn.€Ct.€App.€1985).€€Ð *S%) Ðâ âÐ ì*<&* Ðà  àSection€245€of€the€City€of€Memphis€Charter€(ð ðCharterðð)€provides€that€ð ð[t]he€Civil€ServiceÐ ° Ðâ âCommission€shall€have€the€power€and€it€shall€be€its€duty€to€conduct€hearings€to€review€disciplinaryÐ ™é Ðactions,€limited€to€suspensions,€dismissals,€or€demotions€of€any€employees€not€exempted€from€theÐ ‚Ò Ðprovisions€of€this€article.€.€.€.ðð€€Under€Section€246,€òòthe€City€óómay€terminate,€suspend,€or€demote€anÐ k» Ðemployee€for€ð ðjust€cause,ðð€which€the€Charter€defines€as€ð ða€reasonable€basis€for€the€action€takenðð€òòbyÐ T¤ Ðthe€Cityóó.€€Regarding€hearings,€section€248€mandates€that€the€hearing€board€of€the€Commission€may,Ð =  Ðby€majority€vote,€reverse€or€sustain€òòthe€disciplinary€action€of€the€City€óóif€the€commission€finds€byÐ & v Ðpreponderance€of€the€evidence€that€a€reasonable€basis€existed€òòfor€the€Cityððs€disciplinary€actionóó.€€TheÐ  _ ÐCity€argues€that€the€Commission€cannot€modify,€either€directly€or€indirectly,€the€Cityððs€disciplinaryÐ ø H Ðdecision,€but€can€only€affirm€it€if€a€reasonable€basis€existed€for€the€decision,€or€reverse€if€theÐ á 1  Ðevidence€indicates€otherwise.€€Ð Ê   ÐÌà  àThe€Commission€conceded€in€its€ruling€that€the€City€had€a€limited€number€of€Air€RescueÐ œì  ÐChief€positions,€all€of€which€were€located€at€the€Memphis€Airport.€€The€Commission€also€found€thatÐ …Õ  Ðthe€Airport€Authority,€not€the€City,€revoked€Chief€Mooreððs€credentials€making€it€impossible€for€himÐ n¾  Ðto€work€at€the€Memphis€Airport.׃×Ý ƒ #ÃÝòòÚ  Ú9Ú  ÚóóÝ  Ý×  ×€€The€only€justification€set€forth€by€the€Commission€for€reversingÐ W§  Ðthe€Memphis€Fire€Departmentððs€decision€to€demote€Chief€Moore,€however,€appears€to€be€that€ChiefÐ @ ÐLooney€did€not€intervene€and€insist€that€the€Airport€Authority€afford€Chief€Moore€due€process.€€Ð )y ÐÌà  àOn€appeal,€Chief€Moore€attempted€to€persuade€this€Court€that€the€Airport€Authority€is,€inÐ ûK Ðactuality,€an€agent€of€the€City.€€The€Airport€Authority€was€created€by€the€City€of€Memphis€andÐ ä4 ÐShelby€County€pursuant€to€the€Metropolitan€Airport€Authority€Act€(the€ð ðActðð),€section€42„4„101€òòetÐ Í Ðseqóó.€of€the€Tennessee€Code.€€òòTenn.€Code€Annóó.€ðð€42„4„101€(2003).€€In€support€of€his€position,€ChiefÐ ¶ ÐMoore€directs€our€attention€to€the€following€language€found€in€the€Act:Ð Ÿï ÐÌÓ °ÓÓ °ÓIt€is€hereby€declared€that€airport€authorities€created€pursuant€to€thisÐ qÁ Ðchapter€shall€be€public€and€governmental€bodies€òòacting€as€agenciesÐ Zª Ðand€instrumentalities€of€the€creating€and€participating€municipalitiesóó,Ð C“ Ðand€that€the€acquiring,€operating€and€financing€of€airports€and€relatedÐ ,| Ðfacilities€by€such€airport€authorities€are€hereby€declared€to€be€for€aÐ e Ðpublic€and€governmental€purpose€and€matters€of€public€necessity.€€Ð þN ÐÌÓ °cÓÓ °÷bÓòòTenn.€Code€Annóó.€ðð€42„4„102(a)€(2003)€(emphasis€added).€€As€additional€support€for€his€position,Ð Ð!   ÐChief€Moore€argues€that€the€City€appoints€the€board€of€commissioners€for€the€Airport€Authority,Ð ¹" ! ÐòòTenn.€Code€Annóó.€ðð€42„4„105(a)(1)(A)€(2003);€the€City€may€provide€fire€and€police€protection€toÐ ¢#ò" Ðthe€Memphis€Airport,€òòTenn.€Code€Annóó.€ðð€42„4„111(6)€(2003);€and€the€City,€as€the€creatingÐ ‹$Û# Ðmunicipality,€is€vested€with€all€powers€necessary€to€carry€out€the€Act,€including€lending€money€toÐ ° Ðthe€Airport€Authority,€providing€water€and€electricity,€and€opening€and€maintaining€streets€to€theÐ ™é ÐMemphis€Airport,€òòTenn.€Code€Annóó.€ðð€42„4„111€(2003).€€Accordingly,€Chief€Moore€asserts€that€theÐ ‚Ò ÐAirport€Authority€is€in€effect€an€agency€of€the€City,€and,€therefore,€the€Airport€Authorityððs€decisionÐ k» Ðto€revoke€Chief€Mooreððs€credentials€in€violation€of€its€own€policies€should€be€imputed€to€the€City.€Ð T¤ ÐÌÌà  àWe€cannot€agree€with€Chief€Mooreððs€interpretation€of€the€Act.€€€€It€is€apparent€from€readingÐ  _ Ðthe€Act€that€the€legislature€contemplated€that€an€airport€authority€created€under€the€Act€wouldÐ ø H Ðconstitute€a€separate€entity.€€While€the€City€is€the€creating€municipality,€òòTenn.€Code€Annóó.€ðð€42„4„Ð á 1  Ð102,€the€City,€upon€creation€of€the€airport€authority,€must€adopt€a€resolution€and€thereafter€ð ðenterÐ Ê   Ðinto€an€agreement€with€the€authority€for€the€orderly€transfer€to€the€authority€of€the€airport€properties,Ð ³  Ðfunctions,€and€outstanding€obligations€of€such€municipalities.ðð€€òòTenn.€Code€Annóó.€ðð€42„4„104(d)(1)Ð œì  Ð(2003).€€This€resolution€is€then€filed€with€the€secretary€of€stateððs€office,€where€ð ðupon€such€adoptionÐ …Õ  Ðand€filing,€the€authority€shall€constitute€a€body€politic€and€corporate,€with€all€the€powers€hereinafterÐ n¾  Ðprovided.ðð€€òòTenn.€Code€Annóó.€ðð€42„4„104(c)(2)€(2003).€€Once€created,€the€airport€authority€can€sueÐ W§  Ðand€be€sued,€òòTenn.€Code€Annóó.€ðð€42„4„107(2)€(2003);€acquire€real€or€personal€property€by€gift,Ð @ Ðlease,€or€purchase,€òòTenn.€Code€Annóó.€ðð€42„4„107(3)€(2003);€enter€into€contractual€agreements€withÐ )y Ðthe€creating€municipality,€òòTenn.€Code€Annóó.€ðð€42„4„107(4)€(2003);€€apply€directly€for€grants€or€otherÐ b Ðfinancial€assistance,€òòTenn.€Code€Annóó.€ðð€42„4„107(8)€(2003);€the€City€may€transfer€its€interest€inÐ ûK Ðland€to€the€airport€authority€by€sale,€lease,€or€gift,€òòTenn.€Code€Annóó.€ðð€42„4„108€(2003);€and€theÐ ä4 Ðairport€authority€may€ð ðborrow€money€for€any€of€its€corporate€purposes€and€issue€its€revenue€bonds,ðð€Ð Í ÐòòTenn.€Code€Annóó.€ðð€42„4„109(a)(1)€(2003).€€Accordingly,€the€Act€contemplates€that€the€AirportÐ ¶ ÐAuthority,€once€created,€constitutes€a€separate€and€distinct€entity.€€€Ð Ÿï ÐÌà  àAlthough€the€actions€by€the€Airport€Authority€in€revoking€Chief€Mooreððs€credentials€areÐ qÁ Ðadmittedly€suspect,€that€decision€cannot€cloud€the€fact€that,€without€these€credentials,€Chief€MooreÐ Zª Ðis€unable€to€carry€out€his€duties€as€an€Air€Crash€Chief€at€the€Memphis€Airport.€€In€analyzing€theÐ C“ ÐCommissionððs€ruling€regarding€Chief€Moore,€we€are€mindful€that:Ð ,| ÐÌÓ °ÓÓ °Óà ¸ àA€reviewing€court€should€not€apply€Tenn.€Code€Ann.€ðð€4„5„Ð þN Ð322(h)(4)ððs€ð ðarbitrary€and€capriciousðð€standard€of€reviewÐ ç 7 Ðmechanically.€€In€its€broadest€sense,€the€standard€requires€the€courtÐ Ð!   Ðto€determine€whether€the€administrative€agency€has€made€a€clearÐ ¹" ! Ðerror€in€judgment.€€An€arbitrary€decision€is€one€that€is€not€based€onÐ ¢#ò" Ðany€course€of€reasoning€or€exercise€of€judgment€.€.€.€or€one€thatÐ ‹$Û# Ðdisregards€the€facts€or€circumstances€of€the€case€without€some€basisÐ t%Ä $ Ðthat€would€lead€a€reasonable€person€to€reach€the€same€conclusion.Ð ]&­!% Ðà ¸ àLikewise,€a€reviewing€court€should€not€apply€Tenn.€CodeÐ F'–"& ÐAnn.€ðð€4„5„322(h)(5)ððs€ð ðsubstantial€and€material€evidenceðð€testÐ /(#' Ðmechanically.€€Instead,€the€court€should€review€the€record€carefullyÐ )h$( Ðto€determine€whether€the€administrative€agencyððs€decision€isÐ *Q%) Ðsupported€by€ð ðsuch€relevant€evidence€as€a€rational€mind€might€acceptÐ ê*:&* Ðto€support€a€rational€conclusion.ðð€€The€court€need€not€reweigh€theÐ Ó+#'+ Ðevidence€.€.€.€and€the€agencyððs€decision€need€not€be€supported€by€aÐ ° Ðpreponderance€of€the€evidence.€€The€evidence€will€be€sufficient€if€itÐ ™é Ðfurnishes€a€reasonably€sound€factual€basis€for€the€decision€beingÐ ‚Ò Ðreviewed.Ð k» ÐÌÓ °¦sÓÓ °´sÓòòJackson€Mobilphone€Co.,€Inc.€v.€Tenn.€Pub.€Serv.€Commððnóó,€876€S.W.2d€106,€110ð!ð11€(Tenn.€Ct.Ð =  ÐApp.€1993)€(citations€omitted).€€Ð & v ÐÌà  àThis€Court€faced€a€similar€factual€situation€to€the€one€in€the€present€case€in€òòWheeler€v.€CityÐ ø H Ðof€Memphisóó,€685€S.W.2d€4€(Tenn.€Ct.€App.€1984).€€In€òòWheeleróó,€the€Airport€Authority€employed€theÐ á 1  Ðappellant€as€a€security€officer,€but€he€was€required,€as€a€prerequisite€to€his€employment,€to€maintainÐ Ê   Ðhis€commission€from€the€Memphis€Police€Department€to€carry€a€weapon.€€òòIdóó.€at€5.€€After€theÐ ³  Ðemployee€was€involved€in€a€shooting€incident,€the€Memphis€Police€Department€held€a€hearing€toÐ œì  Ðdetermine€whether€to€revoke€the€employeeððs€commission€to€carry€a€firearm.€€òòIdóó.€€After€the€policeÐ …Õ  Ðdepartment€revoked€his€commission,€the€Airport€Authority€notified€the€employee€they€wereÐ n¾  Ðterminating€his€employment€because€he€could€no€longer€fulfill€his€duties€as€an€airport€securityÐ W§  Ðofficer.€€òòIdóó.€€On€appeal€to€the€Civil€Service€Commission,€that€body€held€that€the€Airport€AuthorityÐ @ Ðacted€with€just€cause€in€terminating€the€employee€because€he€no€longer€held€a€commission€to€carryÐ )y Ða€firearm.€€òòIdóó.€€In€affirming€the€Commissionððs€decision,€we€stated:Ð b ÐÌÓ °ÓÓ °ÓAlthough€the€Airport€Authority€acted€upon€the€police€boardððsÐ ä4 Ðsuspension€of€the€appellantððs€commission,€and€the€AirportÐ Í ÐAuthorityððs€action€was€reviewable€by€the€Civil€Service€CommissionÐ ¶ Ðbecause€it€involved€dismissal€of€an€employee,€òòit€does€not€follow€thatÐ Ÿï Ðthe€Civil€Service€Commission€could€therefore€review€the€decision€ofÐ ˆØ Ðthe€board€in€revoking€appellantððs€commission€to€carry€a€firearm.€Ð o¿ ÐThe€administrative€boardððs€decision€did€not€of€itself€relate€to€theÐ V¦ Ðappellantððs€employment€status;€consequently,€it€did€not€fall€within€theÐ = Ðpurview€of€the€Civil€Service€Commissionððs€jurisdictionóó.€Ð $t ÐÌÓ °ÂÓÓ °´ÓòòIdóó.€at€6€(emphasis€added).€€Ð öF ÐÌà  àThe€City€of€Memphis€Charter€permits€the€Commission€to€review€disciplinary€actions€takenÐ È!  Ðòòby€the€Cityóó,€not€another€agency.€€The€Commission€exceeded€its€statutory€authority€by€basing€itsÐ ±"! Ðdecision€to€reverse€the€ruling€of€the€City€in€demoting€Chief€Moore€on€a€review€of€the€actions€takenÐ š#ê" Ðby€the€Airport€Authority.€€òòTenn.€Code€Annóó.€ðð€4„5„322(h)(2)€(2003);€òòsee€also€Deaderick€PagingÐ ƒ$Ó# ÐCo.,€Inc.€v.€Tenn.€Pub.€Serv.€Commððnóó,€867€S.W.2d€729,€731€(Tenn.€Ct.€App.€1993)€(ð ðThe€court€mayÐ l%¼ $ Ð.€.€.€reverse€the€decision€if€it€violates€statutory€provisions€or€is€in€excess€of€the€agencyððs€statutoryÐ U&¥!% Ðauthority.ðð).€€By€removing€from€consideration€the€actions€of€the€Airport€Authority€in€revoking€ChiefÐ >'Ž"& Ðâ âMooreððs€credentials,€we€are€left€with€the€fact€that,€without€those€credentials,€Chief€Moore€cannotÐ '(w#' Ðproperly€perform€his€duties€as€an€Air€Rescue€Chief€at€the€Memphis€Airport.׃×Ý ƒ #ÃÝòòÚ  Ú10Ú  ÚóóÝ  Ý×  ×€€The€loss€of€theÐ ° Ðâ ârequired€credentials€alone€constituted€substantial€and€material€evidence€on€which€the€City€could€baseÐ ™é ÐChief€Mooreððs€demotion.€€òòSee€Wheeleróó,€685€S.W.2d€at€6;€òòsee€also€óóòòTenn.€Code€Annóó.€ðð€4„5„322(h)(5)Ð ‚Ò Ð(2003).€€Accordingly,€we€find€the€Commissionððs€decision€to€reinstate€Chief€Moore€to€the€positionÐ k» Ðof€Air€Crash€Chief,€which€he€could€not€perform€without€the€proper€credentials,€amounted€to€anÐ T¤ Ðarbitrary€and€capricious€finding,€and€we€affirm€the€chancery€courtððs€decision€in€reversing€that€ruling.€Ð =  ÐòòSee€CF€Indus.€v.€Tenn.€Pub.€Serv.€Commððnóó,€599€S.W.2d€536,€540€(Tenn.€1980);€òòJackson€MobilphoneÐ & v ÐCo.,€Inc.€v.€Tenn.€Pub.€Serv.€Commððnóó,€876€S.W.2d€106,€110„11€(Tenn.€Ct.€App.€1993).€€Ð  _ ÐÌÓ  Óò òAttorneyððs€FeesÐ á 1  ÐÌó óÓ  Ó€€€€€€€€€€€€€€€Chief€Moore€has€also€requested€that€this€Court€award€him€attorneyððs€fees€pursuant€toÐ µ  Ðsection€4„5„325€and€section€27„9„114(b)(3)€of€the€Tennessee€Code,€alleging€that€the€City€actedÐ žî  Ðunfairly€and€without€just€cause€in€respect€to€his€demotion.€€Ð ‡×  ÐÌà  àSection€4„5„325€provides,€in€relevant€part,€as€follows:Ð Y©  ÐÌò òÓ °ÓÓ °ÓPayment€of€costs€to€cited€partyó ó.Ð +{ Ð(a)€When€a€òòstate€agency€óóissues€a€citation€to€a€person,€localÐ g Ðgovernment€entity,€board€or€commission€for€the€violation€of€a€rule,Ð P Ðregulation€or€statute€and€such€citation€results€in€a€contested€caseÐ é9 Ðhearing,€at€the€conclusion€of€such€hearing,€the€hearing€officer€orÐ Ò" Ðadministrative€law€judge€may€order€such€agency€to€pay€to€the€partyÐ »  Ðissued€a€citation€the€amount€of€reasonable€expenses€incurred€becauseÐ ¤ô Ðof€such€citation,€including€a€reasonable€attorneyððs€fee,€if€such€officerÐ Ý Ðor€judge€finds€that€the€citation€was€issued:Ð vÆ Ð(1)€Even€though€to€the€best€of€such€agencyððs€knowledge,€informationÐ _¯ Ðand€belief€formed€after€reasonable€inquiry€the€violation€was€not€wellÐ H˜ Ðgrounded€in€fact€and€was€not€warranted€by€existing€law,€rule€orÐ 1 Ðregulation;€orÐ j Ð(2)€For€an€improper€purpose€as€to€harass,€to€cause€delay€or€causeÐ  S Ðneedless€expense€to€the€party€cited.Ð ì < Ðâ âÐ Õ!%  ÐÓ °IÓÓ °;ÓòòTenn.€Code€Annóó.€ðð€4„5„325(a)€(2003)€(emphasis€added).׃×Ý ƒ #ÃÝòòÚ  Ú11Ú  ÚóóÝ  Ý×  ×€€Because€we€find€neither€of€theÐ ° Ðâ âalternative€grounds€listed€in€the€statute€to€be€present€in€this€case,€we€deny€Chief€Mooreððs€request.€Ð ™é ÐÌÓ  Óò òConclusionÐ k» ÐÌó óÓ  Óà0  àFor€the€reasons€stated€above,€we€affirm€the€decision€of€the€chancery€court€in€reversing€the€Ð? (#(# Ðdecision€of€the€City€of€Memphis€Civil€Service€Commission.€€Costs€of€this€appeal€are€taxed€againstÐ ( x Ðthe€Appellant,€Tommy€Lee€Moore,€for€which€execution€may€issue€if€necessary.€Ô#†XÏ/XXX#ž‚ #ÔÔ#†¼šÁ»XXÏ/T #ÔÔ€XÏ/X»¼šÁÔÐ  a ÐÌÌÌà  àà ` àà ¸ àà  àà h àà À àà  à___________________________________€Ð µ  Ðà  àà ` àà ¸ àà  àà h àà À àà  àALAN€E.€HIGHERS,€JUDGE