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ÝVVVV'ÿÿdxd)!ÈÈÈÈdxdx( ±þ$’’ò òFigure€Ú  Ú1Ú  Úó ó(ǵ{$»»à0  àà0` (#(#àà0¸ ` (#` (#àà0¸ (#¸ (#àà0h(#(#àà0Àh(#h(#àà0À(#À(#àÔ2#ÔÚ  ÚaÚ  Ú)Ô3  Ôà0p(#(#à^_X`YEþÿ<<CÿÿƒLevel 1Level 2Level 3Level 4Level 5(|3$¢¢Ý ƒ£ª!ÝÑ€.ÑÑ8€¯¤»»dd8ÑÑ ý ÑÓ  ÓÝ  Ý($$””ò òÚ  Ú1Ú  Úó óX[Z&OLE 2.0 Box <=8ÿÿÿÿÿÿÿÿÿÿCÿÿ HKKKK(F$ïïà0  àà0` (#(#àà0¸ ` (#` (#àà0¸ (#¸ (#àà0h(#(#àà0Àh(#h(#àà0À(#À(#àà0p(#(#àÔ2#ÔÙ ÙÚ  ÚÚ  ÚÙ Ù)Ô3  Ôà0Èp(#p(#àÙ Ù<þ6X9`(‹Courier Newô\  `‹&Times New Roman%ä2¼A`‹Arial(ÖÃ9 Z‹6Times New Roman Regular &Ý ƒRåþ$ÝÓ  Óà  àòòÚ  Ú1Ú  ÚóóÔ€ôż ò»»ÔÝ  ÝÔ_Ô€Plaintiffsðð€complaint€in€this€case€consists€of€the€original€complaint€and€four€amendments€thereto.€€In€theseÐ ° Ðpleadings,€Plaintiffs€have€named€numerous€individuals€and€entities,€including€the€State€of€Tennessee,€as€partyÐ xÈ Ðdefendants,€all€of€whom€have€now€been€dismissed€by€order€of€court.€€Therefore,€only€the€defendants€set€out€above€areÐ @ Ðparties€to€this€appeal.Table_ATable_ATable_AŽ Ðcontested€standing€of€the€plaintiffs€to€maintain€the€action.€€The€trial€court€denied€the€motion€toÐ *z Ðdismiss€and€òòóódeclared€that€the€expenditures€financed€by€the€city€and€county€were€not€for€a€publicÐ f Ðpurpose€and€that€the€expenditures€were€in€violation€of€art.€II,€Ô#†X SXXXåˆÕ#ÔÔ‡XOXXX SÔððÔ#†X SXXXO #ÔÔ‡XåˆXXX SÔ€29€of€the€Tennessee€ConstitutionÐ R Ðrequiring€a€referendum€election.€€The€trial€court€enjoined€defendants€from€proceeding€further€withÐ î> Ðthe€plans€and€agreements€for€the€relocation€and€the€proposed€furnishing€of€expenditures€inÐ Ú* Ðconnection€therewith.€€Defendants€have€appealed.€€We€affirm€in€part,€reverse€and€remand.Ð Æ ÐÔ#†X SXXXåˆV #ÔÔ#†¼¤„»XX S}#ÔÔ‡X SX»¼¤„ÔÓºÓÌò òTenn.R.App.P.€3;€Appeal€as€of€Right;€Judgment€of€the€Chancery€Court€Affirmed€in€Part,Ð ¢ò ÐReversed€and€Remandedó óÐ ’ â ÐÌòòÓ  ÓÔ#†¼¤„»àX SD #ÔÔ‡X SX.¼¤„ÔW.€Frank€Crawford,€P.J.,€W.S.óó,€delivered€the€opinion€of€the€court,€in€which€òòDavid€R.€Farmer,Ð r"Â! ÐJ.óó€and€òòHolly€Kirby€Lillard,€J.óó,€joined.Ð b#²" ÐÌLeo€Bearman,€Jr.;€Elizabeth€E.€Chance;€Dedrick€Brittenum,€Jr.;€Thomas€C.€Quinlen,€Memphis,€For€Ð B%’ $ Ѐ€Appellant,€Shelby€County,€TennesseeÐ 2&‚!% ÐAllan€J.€Wade,€Memphis,€For€Appellant,€City€of€MemphisÐ "'r"& ÐJ.€N.€Raines;€Oscar€C.€Carr,€III;€Jonathan€C.€Hancock,€Memphis,€For€Appellant,€Hoops,€L.P.Ð (b#' ÐPaul€G.€Summers,€Attorney€General€and€Reporter;€Michael€E.€Moore,€Solicitor€General;€Janet€M.€Ð )R$( Ѐ€Kleinfelter,€Nashville,€for€Appellant,€State€of€TennesseeÐ ò)B%) ÐLyle€Reid;€John€Knox€Walkup;€Thomas€R.€Dyer;€Stephen€J.€Zralek,€Memphis,€for€Amicus€Curiae,€Ð â*2&* Ѐ€Memphis€Chamber€of€CommerceÐ Ò+"'+ ÐDuncan€E.€Ragsdale,€Memphis,€For€AppelleesÐ Â,(, ÐÐ ²-)-ý ÐÓ ÓÌò òÌOPINIONó óÔ#†¼¤„»XX SA #ÔÔ‡X SX»¼¤„ÔÐ à ÐÌòòóóÔ#†¼¤„»XX S…#ÔÔ‡X SX»¼¤„ÔÓ  ÓÑ8€fåˆfXdìXXdð8ÑÑ  Ñà  àThe€parties€to€this€appeal€are€plaintiffs,€Duncan€E.€Ragsdale€and€Diane€M.€RagsdaleÐ pÀ Ð(hereinafter€Ragsdale€or€Plaintiffs)€and€Defendants,€City€of€Memphis€(hereinafter€City),€County€ofÐ ` ° ÐShelby€(hereinafter€County),€and€Hoops,€L.P.€(hereinafter€Hoops).€€Also,€the€State€of€Tennessee€hasÐ P   Ðfiled€a€brief€in€defense€of€Ragsdaleððs€assertion€that€the€chancery€court€erred€in€failing€to€hold€thatÐ @  Ðthe€public€purpose€exception,€as€articulated€in€Tennessee€case€law,€is€a€violation€of€the€TennesseeÐ 0 € ÐConstitution€and€should€be€overturned.׃g×Ý ƒ#ÃÝòòÚ  Ú1Ú  ÚóóÝ  Ý×  ×Ð  p  ÐÌà  àThe€original€complaint,€filed€April€12,€2001,€alleges€that€ð ð[t]hese€defendants€are€negotiatingÐ P  Ðto€enter€a€contract€or€contracts€which€will€require€the€creation€of€municipal€ordinance,€countyÐ ð@  Ðordinance,€and/or€acts€of€the€legislature€of€the€State€of€Tennessee€for€the€purpose€of€funding€saidÐ à0  Ðcontract€with€public€tax€funds.ðð€€Plaintiffs€allege€that€they€are€owners€of€real€property€located€in€theÐ Ð  ÐCity€of€Memphis,€County€of€Shelby,€State€of€Tennessee,€and€that€they€are€taxpayers.€€PlaintiffsÐ À Ðallege€that€the€contemplated€or€existing€contracts€violate€the€provisions€of€art.€XI,€Ô‡XOXXX SÔððÔ#†X SXXXOó#ÔÔ‡XåˆXXX SÔ€8€of€theÐ ° ÐTennessee€Constitution.€€Plaintiffs€pray€that€the€court€declare€the€resolutions,€ordinances,€contracts,Ð ° Ðand€agreements€in€violation€of€the€Tennessee€Constitution€and€for€an€injunction€prohibitingÐ œì Ðappropriation€of€funds€and€other€relief.€€Ð ˆØ ÐÌà  àOn€April€17,€2001,€Plaintiffs€filed€an€amendment€to€the€complaint€which€in€essence€assertsÐ `° Ða€class€action€and€names€numerous€other€defendants,€including€individual€members€of€the€ShelbyÐ Lœ ÐCounty€Commissioners,€individual€members€of€the€Memphis€City€Council,€state€senators,€and€stateÐ 8ˆ Ðrepresentatives.Ð $t ÐÌà  àOn€May€11,€2001,€Plaintiffs€filed€a€second€amendment€to€the€complaint€which€alleges€thatÐ üL Ðthe€contemplated€or€existing€contracts€and€agreements€to€which€the€City,€County,€and€State€may€beÐ è8 Ðparties,€violate€the€provisions€of€art.€II,€Ô#†X SXXXåˆ9#ÔÔ‡XOXXX SÔððÔ#†X SXXXOh#ÔÔ‡XåˆXXX SÔ€29€of€the€Tennessee€Constitution,€because€it€will€constituteÐ Ô$ Ðboth€the€City€and€County€giving€or€lending€their€credit€to€persons,€companies,€or€associationsÐ À Ðwithout€election,€as€required€by€this€section€of€the€Tennessee€Constitution.€€The€amendment€furtherÐ ¬ ü Ðavers€that€any€such€ordinances€or€undertakings€on€the€part€of€the€City€of€Memphis€will€be€inÐ ˜!è Ðviolation€of€Ô#†X SXXX刮#ÔÔ‡XOXXX SÔ€ððÔ#†X SXXXO«#ÔÔ‡XåˆXXX SÔ€835€of€the€City€of€Memphis€Charter.€€Plaintiffs€further€aver€that€said€agreements€andÐ „"Ô  Ðcontracts€violate€art.€I,€Ô#†X SXXXåˆò#ÔÔ‡XOXXX SÔððÔ#†X SXXXO¹#ÔÔ‡XåˆXXX SÔ€22€of€the€Tennessee€Constitution€in€that€they€have€or€will€create€aÐ p#À! Ðmonopoly.€€Plaintiffs€further€aver€that€the€said€agreements€and€contracts€violate€the€provisions€of€art.Ð \$¬" ÐII,€Ô#†X SXXXåˆÿ#ÔÔ‡XOXXX SÔððÔ#†X SXXXO!#ÔÔ‡XåˆXXX SÔ€31€of€the€Tennessee€Constitution.€€It€is€further€averred€that€the€County€of€Shelby€will€be€inÐ H%˜ # Ðâ âviolation€of€Ô#†X SXXXåˆa!#ÔÔ‡XOXXX SÔððÔ#†X SXXXO-"#ÔÔ‡XåˆXXX SÔ€1.01€of€the€Charter€of€Shelby€County,€Tennessee.€€Plaintiffs€again€seek€injunctiveÐ 4&„!$ Ðrelief€and€a€declaration€that€the€various€resolutions,€ordinances,€contracts,€and€agreements€violateÐ ° Ðthe€Tennessee€Constitution.Ð œì Ðâ âà  àDefendants€filed€a€Tenn.R.Civ.P.€12.02€(6)€motion€to€dismiss€the€complaints€as€amended€byÐ ˆØ Ðthe€first€and€second€amendment€for€failure€to€state€a€claim€upon€which€relief€can€be€granted.€€OnÐ tÄ ÐJune€13,€2001,€the€court€denied€the€defendantsðð€motions€to€dismiss€with€leave€to€refile€the€motionsÐ `° Ðafter€Plaintiffs€amended€their€complaint€by€affixing€as€exhibits€thereto€the€actual€resolutions€adoptedÐ L œ Ðand€the€actual€contracts€executed.Ð 8 ˆ ÐÌà  àOn€June€22,€2001,€Plaintiffs€filed€a€third€amendment€to€the€complaint€which€seeks€reliefÐ  ` Ðessentially€upon€the€constitutional€grounds€previously€alleged€and€attached€as€exhibits€to€theÐ ü L  Ðamendment€the€resolutions€and€documents€setting€forth€the€obligations€and€agreements€of€the€parties.€Ð è 8  ÐDefendants€again€filed€a€motion€to€dismiss€for€failure€to€state€a€claim€upon€which€relief€can€beÐ Ô$  Ðgranted.€€The€State€also€filed€a€motion€to€dismiss,€asserting€that€Plaintiffs€lacked€standing€toÐ À  Ðchallenge€the€constitutionality€of€the€rental€car€tax€legislation.Ð ¬ü  ÐÌà  àOn€July€10,€2001,€Plaintiffs€filed€a€fourth€amendment€to€the€complaint,€attaching€as€exhibitsÐ „Ô  Ðthe€county€commission€resolution€for€the€Memphis€Arena€Project€agreement€and€the€nonrelocationÐ pÀ Ðagreement.€€The€amendment€avers€that€the€action€of€the€county€as€memorialized€in€the€exhibitÐ \¬ Ðviolates€the€provisions€of€art.€II,€Ô#†X SXXXåˆs"#ÔÔ‡XOXXX SÔððÔ#†X SXXXO!*#ÔÔ‡XåˆXXX SÔ€29€of€the€Tennessee€Constitution.€€The€amendment€further€aversÐ H˜ Ðthat€the€countyððs€lending€of€credit€to€Hoops,€L.P.,€and€becoming€a€stockholder€with€Hoops,€L.P.€hasÐ 4„ Ðno€public€purpose.€€The€complaint€further€attaches€as€exhibits€the€documents€executed€by€the€CityÐ  p Ðof€Memphis,€the€Memphis€Arena€Use€and€Operating€Agreement,€the€Pyramid€License€Agreement,Ð  \ Ðthe€Memphis€Arena€Project€Agreement,€and€the€Nonrelocation€Agreement.€€The€amendment€alsoÐ øH Ðavers€that€the€actions€of€the€City€of€Memphis€set€out€in€the€agreement€violate€provisions€of€art.€II,Ð ä4 ÐÔ#†X SXXXåˆg*#ÔÔ‡XOXXX SÔððÔ#†X SXXXOD-#ÔÔ‡XåˆXXX SÔ€29€of€the€Tennessee€Constitution€and€further€avers€that€this€action€to€lend€the€Cityððs€credit€toÐ Ð  ÐHoops,€L.P.€and€to€become€a€stockholder€with€Hoops,€L.P.€has€no€public€purpose.€€The€amendmentÐ ¼  Ðfurther€alleges€that€the€Memphis€Arena€Use€and€Operating€Agreement,€the€Pyramid€LicenseÐ ¨ø ÐAgreement,€the€Memphis€Arena€Project€Agreement€and€all€of€the€resolutions€of€the€City€of€MemphisÐ ”ä Ðtaken€together€violate€Ô#†X SXXX刊-#ÔÔ‡XOXXX SÔððÔ#†X SXXXO°/#ÔÔ‡XåˆXXX SÔ€835€of€the€City€of€Memphis€Charter,€because€they€amount€to€a€lease€whichÐ €Ð Ðis€not€a€profitable€lease.€€The€amendment€seeks€a€declaration€voiding€all€of€the€resolutions€andÐ l¼ Ðagreements€as€in€violation€of€constitutional,€statutory,€and€ordinance€provisions.Ð X ¨ ÐÌà  àA€hearing€for€argument€on€Defendantsðð€motions€was€held€July€9,€2001.€€On€July€11,€2001,Ð 0"€  Ðthe€trial€court€entered€a€declaratory€judgment,€denied€the€motions€to€dismiss,€and€issued€itsÐ #l! Ðinjunction.€€The€judgment€declared€that€the€financing€arrangement€for€the€construction€of€the€newÐ $X" ÐNBA€arena€was€unconstitutional€as€violating€art.€II,€Ô#†X SXXXåˆö/#ÔÔ‡XOXXX SÔððÔ#†X SXXXO 3#ÔÔ‡XåˆXXX SÔ€29€of€the€Tennessee€Constitution.€€The€courtÐ ô$D # Ðfound€that€the€proposed€arena€was€not€being€built€or€used€for€a€public€purpose€and€that€the€City€andÐ à%0!$ ÐCounty€were€enjoined€from€expending€City€and€County€funds€for€the€construction€of€the€arenaÐ Ì&"% Ðâ âwithout€an€election,€as€required€by€art.€II,€Ô#†X SXXXåˆQ3#ÔÔ‡XOXXX SÔððÔ#†X SXXXOõ4#ÔÔ‡XåˆXXX SÔ€29€of€the€Tennessee€Constitution.€€The€court€alsoÐ ¸'#& Ðdismissed€Plaintiffsðð€constitutional€challenge€to€the€car€rental€tax€legislation€passed€by€the€TennesseeÐ ° Ðlegislature.׃u×Ý ƒ#ÃÝòòÚ  Ú2Ú  ÚóóÝ  Ý×  ×Ð œì Ðâ âÌà  àDefendants€have€appealed€and€present€three€issues€for€review€which,€as€stated€in€their€brief,Ð tÄ Ðare:Ð `° ÐÌà8  àà8` Ð Ð àI.€€Whether€the€financing€agreement€between€Memphis€and€ShelbyÐ 8 ˆ ÐCounty€and€the€Sports€Authority€constitutes€a€lending€of€credit€by€theÐ $ t ÐCity€of€Memphis€or€Shelby€County€in€violation€of€Article€II,€SectionÐ  ` Ð29€of€the€Tennessee€Constitution?Ðü L ` x` x ÐÌà8  àà8` Ð Ð àII.€€Whether€the€Chancellor€improperly€substituted€his€judgment€forÐ Ô$  Ðthe€decisions€of€the€City€and€County,€where€the€City€and€CountyÐ À  Ðfound€the€construction€and€use€of€a€multipurpose€arena€„€a€necessaryÐ ¬ü  Ðprecondition€to€attract€an€NBA€team€to€Memphis€„€is€a€proper€publicÐ ˜è  Ðpurpose€with€Article€II,€Section€29€of€the€Tennessee€Constitution?Ð„Ô ` x` x ÐÌà8  àà8` Ð Ð àIII.€€Whether€Plaintiffs,€alleging€no€more€than€that€they€are€taxpayersÐ \¬ Ðand€owners€of€real€property€located€in€the€City€of€Memphis€andÐ H˜ ÐShelby€County,€Tennessee,€have€standing€to€challenge€the€financingÐ 4„ Ðagreement€to€build€an€area€in€Memphis€for€an€NBA€Franchise.Ð p` x` x ÐÌà  àAfter€entry€of€the€trial€courtððs€declaratory€judgment,€Plaintiffs€filed€a€motion€to€alter€orÐ øH Ðamend€the€declaratory€judgment€by€adding:€€(1)€that€the€public€purpose€doctrine€as€an€exception€toÐ ä4 Ðart.€II,€Ô#†X SXXXåˆ;5#ÔÔ‡XOXXX SÔððÔ#†X SXXXO#=#ÔÔ‡XåˆXXX SÔ€29€of€the€Tennessee€Constitution€was€overruled€implicitly€by€the€Supreme€Courtððs€decisionÐ Ð  Ðin€ò òòòCleveland€Surgery€Ctr.€L.P.€v.€Bradley€County€Memððl.€Hosp.ó óóó,€30€S.W.3d€278€(Tenn.€2000).€Ð ¼  ÐPlaintiffs€also€sought€a€ruling€that€the€Tennessee€Sports€Authority€Act€is€unconstitutional.€€This€partÐ ¨ø Ðof€the€motion€was€withdrawn€prior€to€a€hearing€on€the€motion.Ð ”ä ÐÌà  àThis€Court€remanded€the€case€to€the€trial€court€for€the€purpose€of€hearing€Plaintiffsðð€motionÐ l¼ Ðto€alter€or€amend,€and€after€that€hearing€the€trial€court€entered€its€order€on€July€20,€2001,€denyingÐ X ¨ ÐPlaintiffsðð€motion€to€alter€or€amend€stating,€òòinter€aliaóó,€ð ðthat€ò òòòCleveland€Surgery€Centeró óóó€does€notÐ D!” Ðexpressly€or€implicitly€overrule€any€prior€Tennessee€cases.ðð€€Ð 0"€  ÐÌà  àIn€addition€to€the€other€issues€presented,€Plaintiffs€present€as€an€issue€for€review€whether€theÐ $X" Ðtrial€court€erred€in€denying€the€motion€to€alter€or€amend.Ð ô$D # ÐÌà  àInitially,€we€should€put€the€posture€of€this€case€in€proper€perspective€for€our€consideration.€Ð Ì&"% ЀDefendants€filed€Tenn.R.Civ.P.€12.02(6)€motions€to€dismiss€the€complaint,€as€amended,€for€failureÐ ¸'#& Ðto€state€a€claim€upon€which€relief€can€be€granted.€€The€trial€court€denied€the€motions€initially€withÐ ¤(ô#' Ðleave€to€Defendants€to€file€renewed€motions€after€further€complaint€amendments.€€Defendants€againÐ )à$( Ðfiled€motions€to€dismiss.€€The€case€was€set€for€a€hearing€with€specific€instructions€by€the€court€thatÐ ° Ðno€testimony€would€be€introduced.€€Ð œì ÐÌà  àA€motion€to€dismiss€for€failure€to€state€a€claim€upon€which€relief€can€be€granted€tests€theÐ tÄ Ðsufficiency€of€the€complaint,€and€the€basis€for€the€motion€is€that€the€allegations€of€the€complaintÐ `° Ðtaken€as€true€are€insufficient€to€state€a€claim€as€a€matter€of€law.€€ò òòòCook,€By€and€Through€Ô_ÔUithovenÔ_ÔÐ L œ Ðv.€Spinnakerððs€of€Ô_ÔRivergateÔ_Ô,€Inc.ó óóó,€878€S.W.2d€934€(Tenn.€1994).€€Exhibits€attached€to€the€complaintÐ 8 ˆ Ðare€a€part€of€the€pleading€for€all€purposes.€€Ô_ÔTenn.R.Civ.P.Ô_Ô€10.03.€€In€ruling€on€a€motion€to€dismissÐ $ t Ðfor€failure€to€state€a€claim,€the€court€must€construe€the€complaint€in€favor€of€the€plaintiff€and€acceptÐ  ` Ðall€allegations€of€fact€as€true.€€ò òòòDoe€v.€Ô_ÔSundquistÔ_Ôó óóó,€2€S.W.3d€919€(Tenn.€1999).€€Inferences€drawn€fromÐ ü L  Ðthe€facts€or€legal€conclusions€set€out€in€the€complaint€are€not€required€to€be€taken€as€true.€€ò òòòRiggs€v.Ð è 8  ÐÔ_ÔBursonÔ_Ôó óóó,€941€S.W.2d€44€(Tenn.€1997);€€ò òòòDobbs€v.€Ô_ÔGuentherÔ_Ôó óóó,€846€S.W.2d€270,€273€(Tenn.€Ct.€App.Ð Ô$  Ð1992).€€Ð À  ÐÌà  àIn€ò òòòRiggsó óóó,€the€Supreme€Court€noted€that€plaintiffsðð€allegations€that€a€statute€violatedÐ ˜è  Ðconstitutional€provisions€regarding€due€process€and€equal€protection,€and€also€violated€the€TennesseeÐ „Ô  ÐConstitution€were€legal€conclusions€that€are€not€taken€as€true.€€ò òòòId.ó óóó€at€48.Ð pÀ ÐÌà  àIn€the€instant€case,€Plaintiffsðð€cause€of€action€is€premised€on€the€alleged€illegality€andÐ H˜ Ðunconstitutionality€of€the€resolution€of€the€governing€bodies€and€the€contracts€executed€pursuantÐ 4„ Ðthereto.€€The€construction€of€statutes€and€their€application€to€the€facts€of€the€case€is€an€issue€of€lawÐ  p Ðand€the€appellate€standard€of€review€is€de€novo€on€the€record€without€any€presumption€of€correctnessÐ  \ Ðas€to€the€trial€courtððs€conclusions€of€law.€€ò òòòÔ_ÔLavinÔ_Ô€v.€Jordanó óóó,€16€S.W.3d€362€(Tenn.€2000).€Ð øH ÐInterpretation€of€the€agreements€attached€to€the€complaint€is€governed€by€the€same€rule,€i.e.,Ð ä4 Ðinterpretation€of€written€agreements€is€a€matter€of€law,€not€of€fact,€and€therefore€the€scope€of€reviewÐ Ð  Ðis€de€novo€on€the€record€with€no€presumption€of€correctness€of€the€trial€courtððs€conclusions€of€law.€Ð ¼  Ðò òòòÔ_ÔRaineyÔ_Ô€v.€Ô_ÔStansellÔ_Ôó óóó,€836€S.W.2d€117€(Tenn.€Ct.€App.€1992).€€According€to€the€above€authorities,€thisÐ ¨ø Ðcase€comes€to€this€Court€to€be€considered€de€novo€on€the€record€with€no€presumption€of€correctnessÐ ”ä Ðof€the€trial€courtððs€conclusions€of€law.Ð €Ð ÐÌà  àWe€will€first€consider€Defendantsðð€third€issue€for€review,€€ð ðwhether€the€plaintiffs€haveÐ X ¨ Ðstanding€to€maintain€this€action.ðð€€A€citizenððs€standing€to€sue€a€governmental€entity€is€a€thresholdÐ D!” Ðissue€that€should€be€resolved€before€addressing€the€merits€of€the€case.€€ò òòòSee€Phillips€v.€County€ofÐ 0"€  ÐAndersonó óóó,€No.€E2000„01204„Ô_ÔCOAÔ_Ô„R3„CV,€2001€WL€456065€(Tenn.€Ct.€App.,€April€30,€2001).€€InÐ #l! Ðò òòòCobb€v.€Shelby€County€Bd.€of€Ô_ÔCommððrsÔ_Ô.ó óóó,€771€S.W.2d€124€(Tenn.€1989)€the€Court€said:Ð $X" ÐÌà8  àà8` Ð Ð àà ¸ àBecause€citizensðð€suits€do€burden€the€conduct€of€publicÐ à%0!$ Ðaffairs,€a€defendant€entity€or€officer€should€not€be€obliged€to€defendÐ Ì&"% Ðon€the€merits€if€he€is€entitled€to€a€dismissal€for€lack€of€standing.€NorÐ ¸'#& Ðshould€the€court€critique€the€conduct€of€public€officials€if€the€causeÐ ¤(ô#' Ðis€not€justiciable.Ð)à$(` x` x ÐÌò òòòId.€ó óóóat€125.Ð h+¸&* Їà  àIn€order€for€Plaintiffs€to€have€standing€to€challenge€the€legality€of€the€expenditure€of€publicÐ ° Ðfunds,€the€Plaintiffs€must€satisfy€three€requirements:€(1)€taxpayer€status;€(2)€an€allegation€of€aÐ œì Ðspecific€illegality€in€the€expenditure€of€public€funds;€and€(3)€prior€demand.€€ò òòòSee€Phillips,€ó óóó2001€WLÐ ˆØ Ð456065€at€*4€(citing€ò òòòCobbó óóó,€771€S.W.2d€at€126).Ð tÄ Ðà  àIn€ò òòòÔ_ÔBadgettÔ_Ô€v.€Rogersó óóó,€436€S.W.2d€292€(Tenn.1969),€our€Supreme€Court€stated€that€citizensÐ `° Ðare€generally€not€permitted€to€interfere€with€or€restrain€direct€official€acts€when€the€citizens€fail€toÐ L œ Ðallege€and€prove€damages€to€themselves€different€in€character€from€those€sustained€by€the€public€atÐ 8 ˆ Ðlarge,€but€the€Court€also€noted€an€exception€to€the€general€rule,€ð ðwhere€it€is€asserted€that€theÐ $ t Ðassessment€or€levy€of€a€tax€is€illegal,€or€that€public€funds€are€misused€or€unlawfully€diverted€fromÐ  ` Ðstated€purposes.ðð€€ò òòòId.€ó óóóat€294.€€In€the€case€at€bar,€Plaintiffs€have€alleged€the€misuse€or€diversion€ofÐ ü L  Ðpublic€funds.Ð è 8  ÐÌà  àAlthough€the€trial€court€in€the€instant€case€recognized€that€no€prior€demand€had€been€madeÐ À  Ðto€rectify€the€situation,€such€a€demand€is€excused€as€a€futile€gesture.€€The€ò òòòÔ_ÔBadgettÔ_Ôó óóó€Court€noted€thatÐ ¬ü  Ðthe€general€rule€requires€a€prior€demand,€but€stated:€ð ð[Ô_Ôh]ereÔ_Ô,€again,€exception€arises,€and€suchÐ ˜è  Ðdemand€is€excused€where€the€status€and€relation€of€the€involved€officials€to€the€transaction€inÐ „Ô  Ðquestion€is€such€that€any€demand€would€be€a€formality.ðð€€ò òòòId.ó óóó€at€295€(citations€omitted).€€€In€theÐ pÀ Ðinstant€case,€the€executives€of€both€City€and€County€have€actively€participated€in€the€negotiationsÐ \¬ Ðinvolving€the€NBA€franchise,€have€signed€required€legislation,€and€have€ultimately€signed€theÐ H˜ Ðrequired€contractual€documents.€€Under€these€circumstances,€a€prior€demand€would€be€a€mereÐ 4„ Ðformality€and€should€be€excused.Ð  p ÐÌà  àTherefore,€based€on€the€record€before€us,€we€do€not€find€that€the€chancellor€erred€in€findingÐ øH Ðthat€the€Plaintiffs€have€standing€to€file€this€action.Ð ä4 ÐÌà  àWe€will€now€consider€Defendantsðð€first€issue€for€review:Ð ¼  ÐÌà8  àà8` Ð Ð àI.€€Whether€the€financing€agreement€between€Memphis€and€ShelbyÐ ”ä ÐCounty€and€the€Sports€Authority€constitutes€a€lending€of€credit€by€theÐ €Ð ÐCity€of€Memphis€or€Shelby€County€in€violation€of€art.€II,€Ô#†X SXXXåˆi=#ÔÔ‡XOXXX SÔððÔ#†X SXXXOë`#ÔÔ‡XåˆXXX SÔ€29€of€theÐ l¼ ÐTennessee€Constitution?ÐX ¨` x` x ÐÌÓÓà  àThe€trial€courtððs€declaratory€judgment€states€as€pertains€to€this€issue:Ð 0"€  ÐÓÓà8  àà8` Ð Ð à4.€€The€executed€Memphis€Arena€Use€and€Operating€Agreement€andÐ $X" ÐMemphis€Arena€Project€Agreement,€as€presently€crafted,€violate€art.Ð ô$D # ÐII,€Ô#†X SXXXåˆ1a#ÔÔ‡XOXXX SÔððÔ#†X SXXXO(c#ÔÔ‡XåˆXXX SÔ€29€of€the€Tennessee€State€Constitution€to€the€extent€that€theyÐ à%0!$ Ðgive€aid€and€lends€the€credit€of€the€City€and€County€in€aid€of€Hoops,Ð Ì&"% ÐL.P.,€a€private€(for€profit)€business€partnership.и'#&` x` x ÐÌà8  àà8` Ð Ð à5.€€The€duly€passed€resolutions€of€the€Memphis€City€Council€andÐ )à$( ÐShelby€County€Commission€appropriating€any€sums€of€money€orÐ |*Ì%) Ðextension€of€credit,€other€than€that€which€is€regularly€expended€forÐ h+¸&* Ðany€normal€project€under€construction,€is€void€to€the€extent€that€saidÐ ° Ðmonies€or€credit€will€be€used€for€the€construction€of€the€ð ðnew€arenaððÐ œì Ðas€presently€proposed.ЈØ` x` x ÐÌà  àDefendants€assert€that€the€legislative€actions€of€the€City€and€County€are€not€in€violation€ofÐ `° Ðart.€II,€ðð€29,€of€the€Tennessee€Constitution€because€neither€the€City€nor€Shelby€County€is€lending€itsÐ L œ Ðcredit€for€the€construction€of€the€arena;€nor€does€the€Cityððs€and€Countyððs€agreement€to€replenish€theÐ 8 ˆ Ðdebt€service€reserve€constitute€a€lending€of€credit€in€violation€of€the€Tennessee€Constitution.Ð $ t ÐÌà  àArt.€II,€Ô#†X SXXXåˆnc#ÔÔ‡XOXXX SÔððÔ#†X SXXXOÄh#ÔÔ‡XåˆXXX SÔ€€29€of€the€Tennessee€Constitution€provides€in€pertinent€part:Ð ü L  ÐÌà8  àà8` Ð Ð àò òSec.€29.€€Counties€and€towns€„€Power€to€tax€„€Credit.€„ó ó€The€GeneralÐ Ô$  ÐAssembly€shall€have€power€to€authorize€the€several€counties€andÐ Ä  Ðincorporated€towns€in€this€State,€to€impose€taxes€for€County€andÐ °  ÐCorporation€purposes€respectively,€in€such€manner€as€shall€beÐ œì  Ðprescribed€by€law;€and€all€property€shall€be€taxed€according€to€itsÐ ˆØ  Ðvalue,€upon€the€principles€established€in€regard€to€State€taxation.€€ButÐ tÄ Ðthe€credit€of€no€County,€City,€or€Town€shall€be€given€or€loaned€to€orÐ `° Ðin€aid€of€any€person,€company,€association€or€corporation,€exceptÐ Lœ Ðupon€an€election€to€be€first€held€by€the€qualified€voters€of€suchÐ 8ˆ Ðcounty,€city€or€town,€and€the€assent€of€three„fourths€of€the€votes€castÐ $t Ðat€said€election.€€Nor€shall€any€county,€city€or€town€become€aÐ ` Ðstockholder€with€others€in€any€company,€association€or€corporationÐ üL Ðexcept€upon€a€like€election,€and€the€assent€of€a€like€majority.Ðè8` x` x ÐÌà  àIn€ò òòòMartin€v.€Beer€Bd.€for€City€of€Ô_ÔDicksonÔ_Ôó óóó,€908€S.W.2d€941€(Tenn.€Ct.€App.€1995),€thisÐ À ÐCourt,€in€an€opinion€written€by€Judge€Koch,€succinctly€describes€the€role€of€the€Court€in€interpretingÐ ¬ü Ðconstitutional€provisions:Ð ˜è ÐÌà8  àà8` Ð Ð àà ¸ àState€constitutions€embody€fundamental€values€and€articulateÐ pÀ Ðthe€citizensðð€common€aspirations€for€constitutional€governance€andÐ \ ¬ Ðthe€rule€of€law.€€Rather€than€stating€inflexible€specific€rules€ofÐ H!˜ Ðconduct,€they€contain€broad€principles€capable€of€accommodatingÐ 4"„  Ðsocietal€changes.€€ò òòòCumberland€Capital€Corp.€v.€Pattyó óóó,€556€S.W.2dÐ  #p! Ð516,€530€(Tenn.€1977).€€Constitutional€provisions€gather€meaningÐ  $\" Ðfrom€the€experience€of€the€people.€€ò òòòNationalóóó ó€òòò òMut.€Ins.€Co.€v.Ð ø$H # ÐTidewater€Transfer€Co.,€v.€Tidewater€Transfer€Co.ó óóó,€337€U.S.€582,Ð ä%4!$ Ð646,€69€S.Ct.€1173,€1195,€93€Ô_ÔL.EdÔ_Ô.€1556€(1949)€(Frankfurter,€J.,Ð Ð& "% Ðdissenting).€€The€courts€should€expect€that€modern€society€will€moldÐ ¼' #& Ðand€shape€constitutional€principles€into€new€and€useful€forms.Ш(ø#'` x` x ÐÌà8  àà8` Ð Ð àà ¸ àThe€courts€are€societyððs€chief€expositors€of€constitutionalÐ €*Ð%) Ðprinciples.€€ò òòòMetropolitan€Ô_ÔGovððtÔ_Ô€v.€Tennessee€State€Bd.€ofÐ l+¼&* ÐEqualizationó óóó,€817€S.W.2d€953,€955€(Tenn.€1991);€ò òòòÔ_ÔLaFeverÔ_Ô€v.€Wareó óóó,Ð ° Ð211€Tenn.€393,€400,€365€S.W.2d€44,€47€(1963).€€Since€constitutionsÐ œì Ðderive€their€power€and€authority€from€the€people,€ò òòòThe€Judgesðð€Casesó óóó,Ð ˆØ Ð102€Tenn.€509,€520,€53€Ô_ÔS.W.Ô_Ô€134,€136€(1899);€ò òòòÔ_ÔStrattonÔ_Ô€Claimants€v.Ð tÄ ÐMorris€Claimantsó óóó,€89€Tenn.€497,€512„13,€15€Ô_ÔS.W.Ô_Ô€87,€90€(1891),€ourÐ `° Ðarticulation€of€constitutional€principles€must€capture€the€intentions€ofÐ L œ Ðthe€persons€who€ratified€the€constitution.€€These€intentions€areÐ 8 ˆ Ðreflected€in€the€words€of€the€constitution€itself,€ò òòòÔ_ÔHatcherÔ_Ô€v.€Bell,ó óóó€521Ð $ t ÐS.W.2d€799,€803€(Tenn.€1974);€ò òòòShelby€County€v.€Hale,€ó óóó€200€Tenn.Ð  ` Ð503,€510,€292€S.W.2d€745,€748€(1956),€rather€than€our€ownÐ ü L  Ðsubjective€notions€of€unexpressed€constitutional€intent.€€ò òòòÔ_ÔLuehrmanÔ_ÔÐ è 8  Ðv.€Taxing€Dist.ó óóó,€70€Tenn.€425,€438€(1879).ÐÔ$ ` x` x ÐÌà8  àà8` Ð Ð àà ¸ àThe€courts€must€construe€constitutional€provisions€reasonably,Ð ¬ü  Ðò òòòÔ_ÔAsheÔ_Ô€v€Leech,ó óóó€653€S.W.2d€398,€401€(Tenn.€1983),€in€light€of€theÐ ˜è  Ðpractices€and€usages€that€were€well„known€when€the€provision€wasÐ „Ô  Ðratified.€€ò òòòÔ_ÔPeayÔ_Ô€v.€Nolanó óóó,€157€Tenn.€222,€230,€7€S.W.2d€815,€817Ð pÀ Ð(1928).€€We€must€give€the€words€used€in€a€constitution€their€usual€andÐ \¬ Ðordinary€meaning€unless€the€context€requires€otherwise.€€ò òòòGaskin€v.Ð H˜ ÐCollinsó óóó,€661€S.W.2d€865,€867€)(Tenn.€1983).€€We€must€also€considerÐ 4„ Ðthese€terms€with€reference€to€what€the€people€who€ratified€theÐ  p Ðprovision€thought€they€meant.€€ò òòòState€ex€rel.€Doyle€v.€Torrenceó óóó,€203Ð  \ ÐTenn.€175,€182,€310€S.W.2d€425,€427„28€(1958).ÐøH` x` x ÐÌò òòòMartin,€ó óóó908€S.W.2d€at€òòò òóóó ó946„47.Ð Ð  ÐÌà  àIn€ò òòòCleveland€Surgery€Ctr.€L.P.€v.€Bradley€County€Ô_ÔMemððlÔ_Ô.€Hosp.ó óóó,€30€S.W.3d€278€(Tenn.Ð ¨ø Ð2000),€plaintiffs,€healthcare€providers,€filed€a€declaratory€judgment€suit€against€a€county€hospital,Ð ”ä Ðprivate€developers,€and€a€physiciansðð€organization,€challenging€the€constitutionality€of€the€hospitalððsÐ €Ð Ðties€to€the€private€developerððs€adjoining€office€building€and€the€physiciansðð€organization.€€TheÐ l¼ Ðplaintiffs€alleged€that€the€defendants€were€violating€art.€II,€Ô#†X SXXXåˆ i#ÔÔ‡XOXXX SÔððÔ#†X SXXXOF€#ÔÔ‡XåˆXXX SÔ€29€of€the€Tennessee€Constitution€whichÐ X ¨ Ðprecludes€any€county,€city,€or€town€from€either€giving€or€loaning€its€credit€to€any€private€person€orÐ D!” Ðprivate€business€or€becoming€a€stockholder€with€others€in€a€private€company€unless€an€election€isÐ 0"€  Ðheld€as€provided€for€in€the€constitutional€provision.€€The€defendant,€Bradley€County€MemorialÐ #l! ÐHospital,€is€a€òòquasi„óógovernmental€entity€without€taxing€power€created€by€the€general€assembly€inÐ $X" Ð1947€to€provide€health€care€services€to€residents€of€Bradley€County€and€the€surrounding€area.€€TheÐ ô$D # Ðissue€before€the€court€was€whether€the€terms€ð ðcounty,€city,€or€townðð€set€out€in€the€constitutionalÐ à%0!$ Ðprovision€encompasses€a€òòquasióó„governmental€entity,€such€as€Bradley€Memorial.€€In€arriving€at€itsÐ Ì&"% Ðdecision,€the€Court€extensively€discussed€the€historical€background€of€similar€constitutionalÐ ¸'#& Ðprovisions€and,€in€particular€for€this€part€of€the€country,€stated:Ð ¤(ô#' ÐÌà8  àà8` Ð Ð àà ¸ àAdoption€of€constitutional€provisions€restricting€the€extensionÐ |*Ì%) Ðof€public€credit€did€not€become€prevalent€in€the€South€until€after€theÐ h+¸&* ÐCivil€War.€[Stewart€E.€Ô_ÔSterkÔ_Ô€&€Elizabeth€S.€Goldman,€òòControllingÐ ° ÐÔ_ÔLegilsativeÔ_Ô€Shortsightedness€Debt€Limitationsóó,€1991€Wis.€L.€Rev.Ð œì Ð1301,€1311].€€As€a€result€of€the€Civil€War,€most€infrastructure€in€theÐ ˆØ ÐSouth€had€been€destroyed€including€railroads,€roadways,€canals,€andÐ tÄ Ðbridges.€€ò òòòId.ó óóó€at€1310.€€To€rebuild€the€infrastructure,€southern€statesÐ `° Ðborrowed€money€and€authorized€large€bond€issues.€€ò òòòId.€ó óóóat€1311.€€InÐ L œ Ðaddition,€Reconstruction€governments€in€the€South€were€said€to€haveÐ 8 ˆ Ðincurred€debt€and€authorized€bond€issues€for€personal€gain.€€ò òòòId.ó óóó€Ð $ t ÐWhen€the€period€of€Reconstruction€ended,€many€southern€statesÐ  ` Ðadopted€constitutional€provisions€limiting€the€extension€of€publicÐ ü L  Ðcredit.€€ò òòòId.ó óóó€€Tennessee€is€a€clear€example€of€this€trend.€€Prior€to€1870,Ð è 8  ÐArt.€II,€Ô#†X SXXX刌€#ÔÔ‡XOXXX SÔððÔ#†X SXXXO?Š#ÔÔ‡XåˆXXX SÔ€29€consisted€of€only€one€sentence,€which€is€currently€theÐ Ô$  Ðfirst€sentence€of€the€section.€€ò òòòSee€Eye€Clinic,ó óóó€986€S.W.2d€at€570.€€TheÐ À  Ðsecond€and€third€sentences€of€the€provision,€which€are€at€issue€in€thisÐ ¬ü  Ðappeal,€were€adopted€as€part€of€the€Constitution€of€1870€at€the€end€ofÐ ˜è  Ðthe€Reconstruction€government€in€Tennessee€and€were€aimed€atÐ „Ô  Ðending€the€abuses€that€occurred€during€Reconstruction.€€As€oneÐ pÀ Ðauthor€explained:€€Ð\¬` x` x ÐÌà8  àà8` Ð Ð àà8¸ ` x` xàOn€the€subject€of€using€the€Stateððs€credit€to€aidÐ 4„ Ðrailroads,€turnpikes€and€other€ððinternalÐ  p Ðimprovements,ðð€the€[1870]€Constitution€madeÐ  \ Ðimportant€changes.€€Here€was€to€be€seen€a€strongÐ øH Ðreaction€against€the€abuses€of€the€Ô_ÔBrownlowÔ_ÔÐ ä4 ÐAdministration€which€was€in€power€from€1865€toÐ Ð  Ð1869.€€There€was€also€evidence€of€a€general€òòlaissez„Ð ¼  Ðfaire€óóspirit,€which€was€more€prevalent€at€this€timeÐ ¨ø Ðthan€during€the€framing€of€the€First€and€SecondÐ ”ä ÐConstitutions.Ѐи ¸  ÐÌà8  àà8` Ð Ð àà8¸ ` x` xàà  àThe€effects€of€the€provisions€were:€(1)€theÐ X ¨ ÐState€might€not€thereafter€own€banks€in€whole€or€inÐ D!” Ðpart,€nor€invest€in€the€capital€stock€of€private€banks€orÐ 0"€  Ðother€private€companies,€as€had€been€frequently€doneÐ #l! Ðbefore;€(2)€the€political€subdivisions€were€notÐ $X" Ðabsolutely€forbidden€to€use€their€credit€in€aid€ofÐ ô$D # Ðprivate€enterprises,€but€the€three„fourths€vote€requiredÐ à%0!$ Ðfor€this€action€was€a€powerful€limitation;€(3)€railroadsÐ Ì&"% Ðwhich€previously€had€been€loaned€State€bonds€andÐ ¸'#& Ðwere€in€default€on€the€payments€which€were€supposedÐ ¤(ô#' Ðto€provide€the€State€with€funds€to€pay€the€interest€andÐ )à$( Ðretire€the€principal€of€such€bonds,€could€no€longerÐ |*Ì%) Ðexpect€the€State€to€continue€to€refund€such€bonds€atÐ h+¸&* Ðmaturity,€but€might€instead€expect€seizure€and€sale€byÐ ° Ðthe€State.Ðœì¸ ¸  ÐÌà8  àà8` Ð Ð àJames€E.€Ô_ÔThorogoodÔ_Ô,€òòA€Financial€History€of€Tennessee€Since€1870óóÐ tÄ Ð19„20€(1940)€(citation€omitted).€Ð`°` x` x ÐÌò òòòCleveland€Surgery€Ctr.,€L.P.ó óóó,€305€S.W.3d€at€283„84.€€The€Court,€after€considering€the€historicalÐ 8 ˆ Ðbackground,€the€origin€of€the€constitutional€provision,€and€the€concerns€which€prompted€the€adoptionÐ $ t Ðof€the€constitutional€provision€stated€that€the€terms€ð ðcounty,€city,€or€townðð€should€be€given€theirÐ  ` Ðordinary€and€inherent€meaning.€€The€Court€said:Ð ü L  ÐÌà8  àà8` Ð Ð àIn€our€view,€the€Western€Section€Court€of€Appeals€correctlyÐ Ô$  Ðinterpreted€these€terms€in€òòEye€Clinicóó€as€follows:ÐÀ ` x` x ÐÌà8  àà8` Ð Ð àà8¸ ` x` xàThe€language€of€Section€29€suggests€that€the€draftersÐ ˜è  Ðintended€that€the€phrase,€ð ðcounty,€city€or€town,ðð€beÐ „Ô  Ðconfined€to€its€literal€meaning.€€The€first€sentence€ofÐ pÀ ÐSection€29€empowers€the€General€Assembly€toÐ \¬ Ðauthorize€counties€and€towns€to€impose€taxes.€€TheÐ H˜ Ðsecond€sentence€limits€the€ability€of€cities,€counties,Ð 4„ Ðand€towns€to€lend€credit.€€The€second€sentence€beginsÐ  p Ðwith€the€word,€ð ðbut.ðð€€The€third€sentence,€prohibitingÐ  \ Ðsuch€cities,€counties,€and€towns€from€co„owningÐ øH Ðstock,€begins€with€the€word,€ð ðnor.ðð€€òòConsidering€theseÐ ä4 Ðthree€sentences€together,€the€limitations€in€the€secondÐ Ð  Ðand€third€sentences€plainly€modify€the€entitiesÐ ¼  Ðdescribed€in€the€first€sentence.Шø¸ ¸  ÐÌà8  àà8` Ð Ð àóó986€S.W.2d€at€571.€€(emphasis€added).ЀÐ` x` x ÐÌò òòòId.ó óóó€at€284.Ð X ¨ ÐÌà  àThe€Court€concluded€that€the€terms,€county,€city€or€town,€ð ðencompass€only€those€entities€toÐ 0"€  Ðwhich€the€General€Assembly€may€delegate€taxing€authority€pursuant€to€the€first€sentence€of€theÐ #l! Ðconstitutional€provision.ðð€€ò òòòId.ó óóó€Ð $X" ÐÌà  àAs€noted€in€our€discussion€of€ò òòòCleveland€Surgery€Ô_ÔCntÔ_Ô.€L.P.ó óóó,€this€Court€in€ò òòòEye€Clinic,€P.C.Ð à%0!$ Ðv.€Jackson€Madison€County€Gen.€Hosp.ó óóó,€986€S.W.2d€565€(Tenn.€Ct.€App.€1998)€determined€thatÐ Ì&"% Ðð ðcounty,€city,€or€town,ðð€as€referred€to€Art.€II,€Sec.€29€of€the€Tennessee€Constitution€does€notÐ ¸'#& Ðencompass€agencies€and€instrumentalities€of€municipalities,€but€only€includes€those€entities€to€whichÐ ¤(ô#' Ðthe€General€Assembly€may€delegate€taxing€authority€pursuant€to€the€first€sentence€of€theÐ )à$( Ðconstitutional€provision.Ð |*Ì%) ÐÐ h+¸&* Ðà  àPursuant€to€the€provisions€of€Ô_ÔT.C.A.Ô_Ô€Ô#†X SXXX刅Š#ÔÔ‡XOXXX SÔððÔ#†X SXXXO #ÔÔ‡XåˆXXX SÔ€7„67„104€(1998),€municipalities,€including€counties,Ð ° Ðare€authorized€to€allow€the€formation,€by€appropriate€resolution,€of€the€incorporation€of€sportsÐ œì Ðauthorities.€€The€statute€is€part€of€the€Sport€Authorities€Act€of€1993,€Ô_ÔT.C.A.Ô_Ô€Ô#†X SXXXåˆÖ #ÔÔ‡XOXXX SÔððÔ#†X SXXXOF¢#ÔÔ‡XåˆXXX SÔ€7„67„101€„€122€(1998Ð ˆØ Ðand€Supp.€2000).€€The€Actððs€purposes€are€set€out€in€Ô_ÔT.C.A.Ô_Ô€Ô#†X SXXX刌¢#ÔÔ‡XOXXX SÔððÔ#†X SXXXOV£#ÔÔ‡XåˆXXX SÔ€7„67„102:Ð tÄ ÐÌÔ#†X SXXX刜£#ÔÔ‡dXåˆXXX SÔÔ*ƒƒhi °ddd Xdd Xdd X°(#°(#ƒÔÔ,NÔÔ,)ÔÔ+  ÔÐ 1'L œL œ €€‚‚ƒƒ„„1ÐÝ‚+ÿÝÝ  ÝÔSŸ ïL œÔÓ SÓÓ  ÓÝ‚+ÿ¥ÝÝ  Ýò òà8  àà8` ¦ ¦ àLegislative€findings€„€Purpose€of€chapter€„€Liberal€construction.ó ó݃+¥c¥݌Р1'Ÿ ï` N` N „„1ÐŒÝ  ÝÐ-#!L œ  -ÐÓ SÓÓ  ÓÔ#†X SXXdXåˆþ£#ÔÔ‡XåˆXXX SÔÔ*pƒjk °d°dNN))hi°(#°(#pÔÔ,àÔÔ,tÔÔ+  ÔÐ 1'Þ .Þ . €€‚‚ƒƒ„„1ÐÝ‚+ÿÝÝ  ÝÔS1 Þ .ÔÓ SÓÓ  ÓÝ‚+ÿ°§ÝÝ  Ýà8  àà8` 88àa)€It€is€hereby€found€and€determined€that:€Ýƒ+°§¨݌Р1'1 ` à` à „„1ÐŒÝ  ÝÐ-#!Þ .   -Ðà8  àà8` Ð Ð à(1)€There€is€an€immediate€need€to€promote€and€further€developÐ p À  Ðrecreational€opportunities€in€this€state€by€facilitating€and€equippingÐ \ ¬  Ðthe€acquisition,€construction,€and€rehabilitation€of€sportsÐ H˜  Ðcomplexes,€stadiums,€arenas€and€other€recreational€facilities€for€theÐ 4„  Ðholding€of€professional€and€amateur€athletic€events;€Ð p ` x` x Ðà8  àà8` Ð Ð à(2)€The€development€of€such€facilities€will€provide€a€means€toÐ _¯  Ðattract€and€locate€major€professional€team€franchises€in€the€state,Ð K›  Ðwill€enhance€the€state's€image€as€a€sports€center,€and€willÐ 7‡ Ðencourage€and€foster€economic€development€and€prosperity;€Ð#s` x` x Ðà8  àà8` Ð Ð à(3)€An€authority€is€needed€in€individual€communities€to€prepareÐ b² Ðcomprehensive,€long„range€master€plans€for€the€orderlyÐ Nž Ðdevelopment€of€sports€and€recreational€facilities€and€to€promoteÐ :Š Ðsports€and€sports„related€activities;€andÐ&v` x` x Ðà8  àà8` Ð Ð à(4)€In€many€instances,€effective€cooperation€between€various€unitsÐ eµ Ðof€government€has€been€hampered€because€of€inadequate€statutoryÐ Q¡ Ðauthority€therefor.€Ð=` x` x Ðà8  àà8` Ð Ð à(b)€It€is€the€purpose€of€this€chapter€to€address€these€findings€byÐ |Ì Ðproviding€for€the€establishment€of€sports€authorities€to€plan,Ð h¸ Ðpromote,€finance,€construct,€acquire,€renovate,€equip€and€enlargeÐ T¤ Ðbuildings,€sports€complexes,€stadiums,€arenas,€structures€andÐ @ Ðfacilities€for€public€participation€and€enjoyment€of€professional€andÐ , | Ðamateur€sports,€fitness,€health€and€recreational€activities.€TheÐ !h Ðprimary€purpose€of€any€and€all€such€facilities€shall€be€the€conductÐ "T Ðof€sports€events,€but€use€of€these€facilities€need€not€be€limited€toÐ ð"@  Ðthose€events.€ÐÜ#,!` x` x Ðà8  àà8` Ð Ð à(c)€This€chapter€shall€be€liberally€construed€in€conformity€with€itsÐ %k " Ðpurpose.Ð&W!#` x` x ÐÌà  àThe€City€and€County€duly€authorized€the€formation€of€the€sports€authority€which€has€nowÐ …(Õ#% Ðbeen€incorporated€pursuant€to€the€Act.€€The€corporation€so€formed€is€a€public€corporation.€Ð q)Á$& ÐÔ_ÔT.C.A.Ô_Ô€Ô#†X SXXX到¦#ÔÔ‡XOXXX SÔððÔ#†X SXXXOY³#ÔÔ‡XåˆXXX SÔ€7„67„106.€€Ô_ÔT.C.A.Ô_Ô€Ô#†X SXXX刟³#ÔÔ‡XOXXX SÔððÔ#†X SXXXO´#ÔÔ‡XåˆXXX SÔ€7„67„109€(Supp.€2000)€sets€out€the€extensive€powers€of€theÐ ]*­%' Ðauthority€and€states€specifically:Ð I+™&( Їà8  àà8` Ð Ð àEach€sports€authority€created€pursuant€to€this€chapter€shall€be€aÐ ° Ðpublic€nonprofit€corporation€and€a€public€instrumentality€of€theÐ œì Ðmunicipality€with€respect€to€which€the€authority€is€organized.€ÐˆØ` x` x ÐÌà  àThe€sports€authority€is€authorized€to€obtain€revenue,€òòinter€aliaóó,€by€issuing€bonds.€€Ô_ÔT.C.A.Ô_ÔÐ  V ÐÔ#†X SXXXåˆZ´#ÔÔ‡XOXXX SÔððÔ#†X SXXXOð¶#ÔÔ‡XåˆXXX SÔ€7„67„109€„€112€(Supp.€2000).€€The€financial€authority€and€responsibilities€of€the€City€andÐ ò B ÐCounty€are€provided€for€in€the€Act€by€Ô_ÔT.C.A.Ô_Ô€Ô#†X SXXXåˆ6·#ÔÔ‡XOXXX SÔððÔ#†X SXXXO5¸#ÔÔ‡XåˆXXX SÔ€7„67„115€and€Ô#†X SXXXåˆ{¸#ÔÔ‡XOXXX SÔððÔ#†X SXXXO˸#ÔÔ‡XåˆXXX SÔ€7„67„116:Ð Þ . ÐÌÔS¯ ÿ\ ¬ÔÔ#†X SXXX刹#ÔÔ‡dXåˆXXX SÔÓ  ÓÓÈÓà8  àà8` Ð Ð àò ò7„67„115.€€Ô_ÔNonliabilityÔ_Ô€of€municipality.€€„€ó óExcept€to€the€extent€ofÐ ¯ ÿ Ðany€revenues€which€may€be€specifically€allocated,€transferred,Ð wÇ  Ðcontributed€or€pledged€by€a€municipality€in€accordance€with€theÐ ?  Ðprovisions€of€this€chapter€and€laws,€rules€and€regulations€applicableÐ W  Ðthereto,€no€municipality€shall€in€any€event€be€liable€for€the€paymentÐ Ï  Ðof€the€principal€of€or€interest€on€any€bonds€of€the€authority€or€for€theÐ —ç  Ðperformance€of€any€pledge,€mortgage,€obligation€or€agreement€of€anyÐ _¯  Ðkind€whatsoever€which€may€be€undertaken€by€the€authority,€and€noneÐ 'w Ðof€the€bonds€of€the€authority€or€any€of€its€agreements€or€obligationsÐ ï? Ðshall€be€construed€to€constitute€an€indebtedness€of€the€municipalityÐ · Ðwithin€the€meaning€of€any€constitutional€or€statutory€provisionÐ Ï Ðwhatsoever.€ÐG—` x` x ÐÓ SÓÓÈÓÔ#†X SXXdX刈¹#ÔÔ‡XåˆXXX SÔÔ*pƒlm °d°dààttjk°(#°(#pÔÔ,#ÔÔ,TÔÔ+  ÔÐ 1'b²b² €€‚‚ƒƒ„„1ÐÝ‚+ÿÝÝ  ÝÔSµb²ÔÓ SÓÓ  ÓÝ‚+ÿC¿ÝÝ  Ýà8  àà8` { { àò ò7„67„116.€€Power€of€municipalities€to€aid€or€assist€authoritiesó ó.€„Ð µ Ð(a)€Except€as€may€be€expressly€prohibited€hereby,€any€municipalityÐ ¥õ Ðis€authorized€to€aid€or€otherwise€provide€assistance€to€an€authorityÐ ‘á Ðcreated€pursuant€to€the€provisions€of€this€chapter€by€suchÐ }Í Ðmunicipality,€including€entering€into€leases€of€projects€or€partsÐ i¹ Ðthereof€with€an€authority,€for€such€term€or€terms€and€upon€suchÐ U¥ Ðconditions€as€may€be€determined€by€the€governing€body€of€suchÐ A‘ Ðmunicipality,€notwithstanding€and€without€regard€to€the€restrictions,Ð -} Ðprohibitions,€or€requirements€of€any€other€law,€whether€public€orÐ i Ðprivate,€or€granting,€contributing€and/or€pledging€revenues€of€theÐ  U Ðmunicipality€to€or€for€the€benefit€of€the€authority€derived€from€anyÐ ñ A Ðsource€(except€revenues€derived€from€ad€valorem€property€taxesÐ Ý!-  Ðwhich€shall€not€be€granted,€contributed€or€pledged€by€theÐ É"! Ðmunicipality€in€payment€of€or€collateral€for€any€revenue€bonds€of€theÐ µ#" Ðauthority).€Ýƒ+C¿•¿݌Р1'¡$ñ#` #` # „„1ÐŒÝ  ÝÐ-#!b²$  -ÐÓ SÓà8  àà8` Ð Ð à(b)€In€addition€to€the€powers€granted€in€this€chapter,€any€metropolitanÐ à%0!$ Ðgovernment€or€legislative€bodies€of€municipalities,€acting€jointly,€inÐ Ì&"% Ðany€county€having€a€population€in€excess€of€eight€hundred€thousandÐ ¸'#& Ð(800,000),€according€to€the€1990€federal€census€or€any€subsequentÐ ¤(ô#' Ðfederal€census,€is€authorized€to€aid€or€otherwise€provide€assistance€toÐ )à$( Ðan€authority€created€pursuant€to€the€provisions€of€this€chapter€by€suchÐ |*Ì%) Ðmetropolitan€government€or€municipalities,€acting€jointly,€in€anyÐ h+¸&* Ðcounty€having€a€population€in€excess€of€eight€hundred€thousandÐ ° Ð(800,000),€according€to€the€1990€federal€census€or€any€subsequentÐ œì Ðfederal€census,€by€entering€into€contracts€with€any€other€party€inÐ ˆØ Ðfurtherance€of€the€purposes€of€this€chapter,€for€such€term€or€terms€andÐ tÄ Ðupon€such€conditions€as€may€be€determined€by€the€governing€body€ofÐ `° Ðsuch€metropolitan€government€or€legislative€bodies€of€municipalities,Ð L œ Ðacting€jointly,€in€any€county€having€a€population€in€excess€of€eightÐ 8 ˆ Ðhundred€thousand€(800,000),€according€to€the€1990€federal€census€orÐ $ t Ðany€subsequent€federal€censusÐ `` x` x ÐÌà  àThe€resolutions€of€both€the€City€and€the€County,€authorizing€the€execution€of€the€necessaryÐ è 8  Ðlegal€documents€to€accomplish€the€building,€use,€and€operation€of€the€arena€and€related€matters,Ð Ô$  Ðexplicitly€provide€that€no€òòad„valoremóó€tax€revenue€would€be€used€to€pay€any€debt€service€on€theÐ À  Ðbonds.€€Those€bonds€are€clearly€issued€by€the€sports€authority€and€not€by€either€of€the€governmentalÐ ¬ü  Ðentities.€€The€resolutions€appear€to€comply€with€the€statutory€requirements€of€the€Sports€AuthorityÐ ˜è  ÐAct€of€1993.€€Since€the€bonds€are€not€issued€by€governmental€entities€and€are€not€backed€or€securedÐ „Ô  Ðby€the€unlimited€taxing€authority€of€the€entities,€such€entities€are€not€giving€or€lending€their€creditÐ pÀ Ðto€a€private€person€or€private€business.Ð \¬ ÐÌà  àWe€should€also€note€that€it€is€undisputed€that€the€record€before€us€does€not€in€any€wayÐ 4„ Ðindicate€that€the€governmental€entities€are€involved€as€a€stockholder€with€others€in€a€private€companyÐ  p Ðand€thus€that€part€of€the€constitutional€provision€is€not€involved€in€this€controversy.€€Ð  \ ÐÌà  àThe€trial€court€also€found€that€the€contribution€by€the€City€and€County€of€twelve€millionÐ ä4 Ðdollars€each€to€the€proposed€project€and€the€agreement€by€the€governmental€entities€to€restore€anyÐ Ð  Ðdeficits€in€the€sports€authority€debt€service€reserve€fund€constitutes€a€lending€of€the€governmentalÐ ¼  Ðentitiesðð€credit€as€prohibited€by€the€constitutional€provisions€without€the€necessary€publicÐ ¨ø Ðreferendum.€€The€trial€court€also€found€that€the€contingency€payment€by€the€City€and€County€if€theÐ ”ä Ðproposed€arena€is€not€substantially€completed€by€the€beginning€by€the€2003„2004€NBA€seasonÐ €Ð Ðconstitutes€a€lending€of€credit€by€the€City€and€County€within€the€meaning€of€the€constitutionalÐ l¼ Ðprovision.€€The€record€reflects€that€the€Cityððs€twelve€million€dollar€pledge€is€met€through€theÐ X ¨ Ðallocation€of€excess€hotel/motel€tax€revenue,€and€that€the€Countyððs€twelve€million€dollar€pledgeÐ D!” Ðcomes€from€funds€that€the€County€has€accumulated.€€We€note€first€that€Ô_ÔT.C.A.Ô_Ô€Ô#†X SXXXåˆC¾#ÔÔ‡XOXXX SÔððÔ#†X SXXXO^Ô#ÔÔ‡XåˆXXX SÔ€7„67„115,€part€ofÐ 0"€  Ðthe€Sports€Authority€Act,€specifically€authorizes€the€governmental€entities€to€aid€the€sports€authorityÐ #l! Ðin€its€financial€endeavors.Ð $X" ÐÌà  àTennessee€courts€have€considered€what€is€meant€by€the€prohibitory€language€of€lending€creditÐ à%0!$ Ðset€out€in€art.€II,€Ô#†X SXXX判Ô#ÔÔ‡XOXXX SÔððÔ#†X SXXXOKÖ#ÔÔ‡XåˆXXX SÔ€29€of€the€Tennessee€Constitution.€€In€ò òòòÔ_ÔCopleyÔ_Ô€v.€County€of€Ô_ÔFentressÔ_Ôó óóó,€490€S.W.2dÐ Ì&"% Ð164€(Tenn.€Ct.€App.€1972),€a€suit€was€filed€to€enjoin€the€county€from€constructing€an€industrialÐ ¸'#& Ðbuilding€for€use€by€private€industry€pursuant€to€a€resolution€of€the€county€court.€€The€complainantsÐ ¤(ô#' Ðasserted,€among€other€things,€that€the€county€could€not€advance€the€funds€for€construction€of€theÐ )à$( Ðbuilding€as€Ô_ÔviolativeÔ_Ô€of€art.€II,€Ô#†X SXXX刑Ö#ÔÔ‡XOXXX SÔððÔ#†X SXXXO)Ù#ÔÔ‡XåˆXXX SÔ€29€of€the€Tennessee€Constitution,€because€it€results€in€credit€of€theÐ |*Ì%) Ðcounty€being€given€or€loaned€to€or€in€aid€of€a€private€corporation€without€approval€of€the€voters,€asÐ h+¸&* Ðrequired€by€the€constitutional€provision.€€The€Court€noted€that€the€county€had€accumulated€fundsÐ ° Ðwhich€were€to€be€used€for€the€construction€of€the€building€and€that€the€county€was€issuing€no€bondsÐ œì Ðor€other€obligations€for€borrowing€money€for€such€construction€purposes.€€The€Court€further€notedÐ ˆØ Ðthat€the€dictionary€definition€of€the€word€ð ðcreditðð€only€applies€to€obligations€due€and€to€become€due.€Ð tÄ ÐThe€Court€discussed€cases€from€Florida€and€Idaho,€two€states€that€have€constitutional€provisionsÐ `° Ðsimilar€to€Tennessee:Ð L œ ÐÌà8  àà8` Ð Ð àà ¸ àIn€ò òòòÔ_ÔNohrrÔ_Ô€v.€Ô_ÔBrevardÔ_Ô€County€Educational€Fac.€Authorityó óóóÐ $ t Ð(1971),€247€So.2d€304,€the€Supreme€Court€of€Florida€considered€thisÐ  ` Ðprecise€question€in€construing€Article€VII,€Section€10€of€the€FloridaÐ ü L  ÐConstitution,€which€contains€the€following€provision:Ðè 8 ` x` x ÐÌà8  àà8` Ð Ð àà8¸ ` x` xàððNeither€the€state€nor€any€county,€school€district,Ð À  Ðmunicipality,€special€district,€or€agency€of€any€ofÐ ¬ü  Ðthem,€shall€become€a€joint€owner€with,€or€stockholderÐ ˜è  Ðof,€or€give,€lend€or€use€its€taxing€power€or€credit€to€aidÐ „Ô  Ðany€corporation,€association,€partnership€or€person.€.Ð pÀ Ð.€.ðð€Supra,€p.€308.Ð\¬¸ ¸  ÐÌà8  àà8` Ð Ð àà8¸ ` x` xàIn€that€case,€the€Florida€Court€said:Ð4„¸ ¸  ÐÌà8  àà8` Ð Ð àà8¸ ` x` xàððThe€word€ð ðcreditðð,€as€used€in€Ô_ÔFla.ConstÔ_Ô.,€art.€VII,€Ô#†X SXXXåˆoÙ#ÔÔ‡XOXXX SÔððÔ#†X SXXXOÀá#ÔÔ‡XåˆXXX SÔÐ  \ Ð10€(1968)€implies€the€imposition€of€some€newÐ øH Ðfinancial€liability€upon€the€State€or€a€politicalÐ ä4 Ðsubdivision€which€in€effect€results€in€the€creation€of€aÐ Ð  ÐState€or€political€subdivision€debt€for€the€benefit€ofÐ ¼  Ðprivate€enterprises.ðð€€(Supra,€p.€309).Шø¸ ¸  ÐÌà8  àà8` Ð Ð àIn€ò òòòÔ_ÔEngelkingÔ_Ô€v.€Investment€Boardó óóó€(1968),€93€Idaho€217,€458€P.2dÐ €Ð Ð213,€the€Supreme€Court€of€Idaho€also€considered€the€same€questionÐ l¼ Ðin€construing€Article€VIII,€Section€2€of€the€Idaho€Constitution,€whichÐ X ¨ Ðcontains€the€following€provision:ÐD!”` x` x ÐÌà8  àà8` Ð Ð àà8¸ ` x` xàððThe€credit€of€the€state€shall€not,€in€any€manner,€beÐ #l! Ðgiven,€or€loaned€to,€or€in€aid€of€any€individual,Ð $X" Ðassociation,€municipality€or€corporation;€nor€shall€theÐ ô$D # Ðstate€directly€or€indirectly,€become€a€stockholder€inÐ à%0!$ Ðany€association€or€corporation.€...ðð€€(Supra.,€p.€216).ÐÌ&"%¸ ¸  ÐÌà8  àà8` Ð Ð àIn€that€case,€the€Idaho€Court€said:Ф(ô#'` x` x ÐÌà8  àà8` Ð Ð àà8¸ ` x` xàððThe€word€ð ðcreditðð€as€used€in€this€provision€impliesÐ |*Ì%) Ðthe€imposition€of€some€new€financial€liability€uponÐ h+¸&* Ðthe€State€which€in€effect€results€in€the€creation€ofÐ ° ÐState€debt€for€the€benefit€of€private€enterprises.€€ThisÐ œì Ðwas€the€evil€intended€to€be€remedied€by€Idaho€Const.Ð ˆØ Ðart.€8,€Ô#†X SXXXåˆâ#ÔÔ‡XOXXX SÔððÔ#†X SXXXO'é#ÔÔ‡XåˆXXX SÔ€2,€and€similar€provisions€in€other€stateÐ tÄ Ðconstitutions.ðð€€(Supra,€p.€218).Ð`°¸ ¸  ÐÌò òòòÔ_ÔCopleyÔ_Ô,€ó óóó490€S.W.2d€at€òòò òó óóó169.Ð 8 ˆ ÐÌÓÓà  àThe€Court€adopted€the€reasoning€of€both€courts,€stating:Ð  ` ÐÓÓà8  àà8` Ð Ð àà ¸ àTherefore,€we€adopt€the€reasoning€of€the€Florida€and€IdahoòòóóÐ è 8  ÐCourts€and€hold€that€the€word€ððcreditðð,€as€used€in€Article€II€Section€29Ð Ô$  Ðof€the€Tennessee€Constitution€implies€the€imposition€of€some€newÐ À  Ðfinancial€liability€upon€a€county,€city€or€town€which€in€effect€resultsÐ ¬ü  Ðin€creation€of€a€public€debt€for€the€benefit€of€private€enterprises€andÐ ˜è  Ðthis€was€the€evil€intended€to€be€prevented€by€said€constitutionalÐ „Ô  Ðprovision.ÐpÀ` x` x ÐÌà8  àà8` Ð Ð àà ¸ àIt€necessarily€follows,€therefore,€that€it€was€not€necessary€forÐ H˜ Ðany€election€to€be€held€for€the€purpose€of€obtaining€approval€of€theÐ 4„ Ðvoters€for€the€construction€of€the€building€in€question€here.Ð p` x` x ÐÌò òòòId.€ó óóóat€169.Ð øH ÐÌà  àIn€ò òòòState€ex€rel.ó ó€ò òBingham€v.€Powersó óóó,€137€Ô_ÔS.W.Ô_Ô€1110€(Tenn.€1911),€a€mandamus€suit€was€filedÐ Ð  Ðagainst€a€county€judge€to€require€the€payment€of€certain€preliminary€expenses€incurred€in€connectionÐ ¼  Ðwith€the€formation€of€a€drainage€district.€€The€county€judge€demurred€to€the€bill€and€challenged€theÐ ¨ø Ðconstitutionality€of€the€legislative€act€authorizing€the€process€on€the€ground€that€making€suchÐ ”ä Ðpayment€would€be€in€violation€of€art.€II,€Ô#†X SXXXåˆmé#ÔÔ‡XOXXX SÔððÔ#†X SXXXO'ñ#ÔÔ‡XåˆXXX SÔ€29€of€the€Tennessee€Constitution€prohibiting€the€givingÐ €Ð Ðor€lending€of€aid€to€private€persons€without€an€election€as€required€by€the€€constitutional€provision.€Ð l¼ ÐThe€Supreme€Court€of€Tennessee€held€that€the€act€conferring€authority€upon€the€counties€toÐ X ¨ Ðappropriate€a€portion€of€the€general€fund€did€not€make€a€case€for€lending€the€credit€of€the€county€asÐ D!” Ðprohibited€by€art.€II,€Ô#†X SXXXåˆmñ#ÔÔ‡XOXXX SÔððÔ#†X SXXXOxó#ÔÔ‡XåˆXXX SÔ€29€of€the€Tennessee€Constitution.€€ò òòòId.ó óóó€at€1114.Ð 0"€  ÐÌà  àIn€ò òòòFort€Sanders€Presbyterian€Hosp.€v.€Health€and€Educ.€Facilities€Bd.ó óóó,€453€S.W.2d€771Ð $X" Ð(Tenn.€1970),€plaintiff,€Fort€Sanders€Hospital,€a€nonprofit€corporation,€filed€a€declaratory€judgmentÐ ô$D # Ðaction€against€the€defendant,€Health€and€Educational€Facilities€Board€of€the€County€of€Knox€andÐ à%0!$ Ðothers.€€Plaintiff€sought€a€declaration€of€the€rights€of€plaintiff€to€specific€performance€of€certainÐ Ì&"% Ðcontracts€with€defendant€pursuant€to€Chapter€333,€Public€Acts€of€1969,€and€to€have€the€chapterÐ ¸'#& Ðdeclared€valid€and€constitutional.€€The€defendant€demurred€to€the€bill€contending€that€the€agreementsÐ ¤(ô#' Ðwere€invalid€because€Chapter€333€was€an€unconstitutional€enactment.€€Although€the€CourtÐ )à$( Ðconsidered€a€number€of€issues,€the€issue€pertinent€to€the€case€before€this€Court€is€the€assertion€thatÐ |*Ì%) Ðthe€Act€in€question€provides€for€the€lending€of€the€credit€of€a€municipality€to€a€corporation€withoutÐ h+¸&* Ða€public€referendum€as€required€by€art.€II,€Ô#†X SXXX刾ó#ÔÔ‡XOXXX SÔððÔ#†X SXXXO¶ø#ÔÔ‡XåˆXXX SÔ€29€of€the€Tennessee€Constitution.€€The€Act€in€questionÐ ° Ðprovides€for€the€formation€of€a€corporation€by€the€governing€body.€€The€corporation€€is€authorizedÐ œì Ðto€issue€bonds€for€necessary€funds€to€provide€the€facilities€set€out€in€the€Act.€€The€Act€specificallyÐ ˆØ Ðprovided,€similarly€to€the€Sports€Authority€Act€in€the€case€before€us,€that€the€bonds€of€theÐ tÄ Ðcorporation€could€not€be€construed€to€constitute€an€indebtedness€of€the€municipality€within€theÐ `° Ðmeaning€of€any€constitutional€or€statutory€provision.€€It€was€argued,€however,€that€the€act€of€theÐ L œ Ðmunicipality€in€procuring€the€bond€issue€is€equivalent€to€a€lending€of€its€credit.€€In€this€regard,€theÐ 8 ˆ ÐCourt€stated:Ð $ t ÐÌà8  àà8` Ð Ð àà ¸ àAs€stated€earlier€in€this€opinion,€the€Board€is€but€an€arm€orÐ ü L  Ðinstrumentality€of€Knox€County.€€The€property€in€question,€hospitalÐ è 8  Ðfacilities,€is€to€be€held€by€the€Board€for€a€public€purpose.€€ThisÐ Ô$  Ðproperty,€under€the€agreement€made€between€the€Board€and€theseÐ À  Ðcomplainants,€is€to€be€mortgaged€to€secure€the€bond€issue,€theÐ ¬ü  Ðproceeds€of€which€will€be€used€to€build€and€equip€facilities€which€theÐ ˜è  ÐBoard,€in€turn,€will€lease€to€the€private€corporations.Ð„Ô ` x` x ÐÌà8  àà8` Ð Ð àà ¸ àThus,€this€mortgaging€of€public€property€is€not€the€equivalentÐ \¬ Ðof€the€municipality€lending€its€credit€to€complainants.ÐH˜` x` x ÐÌò òòòId.ó óóó€at€775.€€Ð  p ÐÌà  àAny€aid€given€by€the€City€and€County€is€given€to€the€Sports€Authority,€which€is€a€publicÐ øH Ðcorporation.€€Ô_ÔT.C.A.Ô_Ô€Ô#†X SXXXåˆüø#ÔÔ‡XOXXX SÔððÔ#†X SXXXO¯#ÔÔ‡XåˆXXX SÔ€7„67„106€(1998).€€The€governmental€entities€are€authorized€by€the€SportsÐ ä4 ÐAuthority€Act€to€contribute€pledged€revenues€to€or€for€the€benefit€of€the€Sports€Authority,€exceptÐ Ð  Ðrevenues€from€òòad„valoremóó€property€taxes.€€Ô_ÔT.C.A.Ô_Ô€Ô#†X SXXXåˆõ#ÔÔ‡XOXXX SÔððÔ#†X SXXXOc#ÔÔ‡XåˆXXX SÔ€7„67„116€(a)€(1998).Ð ¼  ÐÌà  àIn€view€of€the€established€authorities€in€this€state€set€out€above,€the€advancement€of€fundsÐ ”ä Ðby€the€City€and€County€for€the€purposes€heretofore€set€out€does€not€constitute€the€giving€or€lendingÐ €Ð Ðof€credit€of€the€City€and€County€within€the€contemplation€of€art.€II,€Ô#†X SXXX利#ÔÔ‡XOXXX SÔððÔ#†X SXXXOR#ÔÔ‡XåˆXXX SÔ€29€of€the€TennesseeÐ l¼ ÐConstitution.€€Our€courts€have€made€it€clear€that€lending€of€credit€involves€more€than€theÐ X ¨ Ðadvancement€of€accumulated€funds,€since€it€does€not€result€in€the€creation€of€a€future€indebtedness.€Ð D!” ÐSuch€aid€by€the€governmental€entities€goes€directly€to€a€public€corporation.€We€must€bear€in€mindÐ 0"€  Ðthat€there€is€no€constitutional€attack€on€the€Sports€Authority€Act,€and€the€record€establishes€that€theÐ #l! Ðactions€of€the€City€and€County€are€in€compliance€with€the€Act.Ð $X" ÐÌà  àWe€will€now€consider€Defendantsðð€second€issue€for€review:Ð à%0!$ ÐÌà8  àà8` Ð Ð àII.€€Whether€the€Chancellor€improperly€substituted€his€judgment€forÐ ¸'#& Ðthe€decisions€of€the€City€and€County,€where€the€City€and€CountyÐ ¤(ô#' Ðfound€the€construction€and€use€of€a€multipurpose€arena€„€a€necessaryÐ )à$( Ðprecondition€to€attract€an€NBA€team€to€Memphis€„€is€a€proper€publicÐ |*Ì%) Ðpurpose€within€Article€II,€Section€29€of€the€Tennessee€Constitution?Ðh+¸&*` x` x Їà  àDefendants€assert€that€the€chancellor,€notwithstanding€the€legislation€adopted€by€the€City€andÐ ° ÐCounty,€focused€his€decision€on€what€he€considered€as€a€dis„advantageous€contractual€arrangement.€Ð œì ÐThe€chancellorððs€opinion€indicates€that€he€placed€much€emphasis€on€the€business€aspect,€concludingÐ ˆØ Ðthat€the€construction€of€the€arena€was€not€for€a€public€purpose.€€The€public€purpose€criterion,€orÐ tÄ Ðexception,€as€it€has€been€called,€has€been€recognized€in€this€state€since€1896,€when€the€TennesseeÐ `° ÐSupreme€Court€held€that€an€appropriation€of€$25,000.00€of€county€revenue€to€provide€privateÐ L œ Ðcitizens€an€exhibit€at€the€Tennessee€Centennial€International€Exposition€did€not€constitute€a€lendingÐ 8 ˆ Ðof€the€countyððs€credit€within€the€constitutional€prohibition.€€In€ò òòòWest€v.€Tennessee€Ô_ÔHousÔ_Ô.€Dev.Ð $ t ÐAgencyó óóó,€512€S.W.2d€275€(Tenn.€1974),€the€Supreme€Court,€in€considering€the€constitutional€attackÐ  ` Ðon€state€legislation€premised€on€art.€II,€Ô#†X SXXX刘#ÔÔ‡XOXXX SÔððÔ#†X SXXXOú #ÔÔ‡XåˆXXX SÔ€31€of€the€Tennessee€Constitution€stated:Ð ü L  ÐÌà8  àà8` Ð Ð àà ¸ àð ðAgain€it€appears€that€the€provisions€of€Article€2,€Ô#†X SXXXåˆ@#ÔÔ‡XOXXX SÔððÔ#†X SXXXO$#ÔÔ‡XåˆXXX SÔ€31,€haveÐ Ô$  Ðbeen€qualified€by€the€ððpublic€purposeðð€criterion.€€The€question€wasÐ À  Ðauthoritatively€dealt€with€by€our€Supreme€Court€in€Bedford€CountyÐ ¬ü  ÐHospital€v.€Browning,€189€Tenn.€227,€225€S.W.2d€41€(1949),€whereÐ ˜è  Ðthe€Court€concluded€that€the€giving€of€the€stateððs€credit€for€non„publicÐ „Ô  Ðpurposes€only€is€prohibited€by€Article€2,€Ô#†X SXXXåˆj#ÔÔ‡XOXXX SÔððÔ#†X SXXXO]#ÔÔ‡XåˆXXX SÔ€31.€€Discussing€this€sectionÐ pÀ Ðthe€Court€noted€as€follows:Ð\¬` x` x ÐÌà8  àà8` Ð Ð àà8¸ ` x` xàà  àð ðððThe€obvious€purpose€of€this€Section€of€ourÐ 4„ ÐConstitution€was€to€prevent€the€State€from€using€itsÐ  p Ðcredit€as€a€gratuity€or€donation€to€any€person,Ð  \ Ðcorporation€or€municipality.€€It€is€further€obvious€thatÐ øH Ðit€was€not€designed€to€prevent€the€State€from€using€itsÐ ä4 Ðcredit€to€aid€persons,€corporations,€or€municipalitiesÐ Ð  Ðif€required€to€accomplish€a€State€or€public€purpose,€orÐ ¼  Ðto€fulfill€a€State€duty€or€obligation€under€its€policeÐ ¨ø Ðpower.€€Under€the€authorization,€the€Legislature€and€Ð ”ä Ðnot€the€courts€is€the€exclusive€judge€of€the€manner,Ð €Ð Ðmeans,€agencies€and€methods€to€meet€and€fulfill€theseÐ l¼ Ðpurposes.ðð€189€Tenn.€at€32€[225€S.W.2d€41].ÐX ¨¸ ¸  ÐÌWest,€512€S.W.2d€at€òòò òó óóó283„84.Ð 0"€  ÐÌà  àIn€ò òòòÔ_ÔChatanoogaÔ_Ô„Hamilton€County€Hosp.€Auth.€v.€City€of€Chattanoogaó óóó,€580€S.W.2d€322Ð $X" Ð(Tenn.€1979),€our€Supreme€Court€noted€the€application€of€the€public€purpose€criterion€to€art.€II,€Ô#†X SXXX刣#ÔÔ‡XOXXX SÔððÔ#†X SXXXOH#ÔÔ‡XåˆXXX SÔÐ ô$D # Ð29€of€the€Tennessee€Constitution,€stating:Ð à%0!$ ÐÌà8  àà8` Ð Ð àLikewise,€the€prohibition€relative€to€the€extension€of€credit€by€a€cityÐ ¸'#& Ðor€county€to€or€in€aid€of€any€company,€association€or€corporationÐ ¤(ô#' Ðunder€article€II,€Ô#†X SXXX刎#ÔÔ‡XOXXX SÔððÔ#†X SXXXO #ÔÔ‡XåˆXXX SÔ€29€must€be€qualified€by€the€ð ðpublic€purposeððÐ )à$( Ðcriterion.€€òòò òCf.€West€v.€Tennessee€Ô_ÔHousÔ_Ô.€Dev.€Agency,€supraó ó,€óó512Ð |*Ì%) ÐS.W.2d€at€283.Ðh+¸&*` x` x Їò òòòId.ó óóó€at€329.Ð ° ÐÌà  àAlthough€it€is€clear€from€the€authorities€that€the€public€purpose€exception€or€criterion€hasÐ ˆØ Ðlong€been€recognized€in€this€state,€controversy€arises€in€making€a€determination€of€the€existence€ofÐ tÄ Ða€public€purpose.€€In€the€instant€case,€the€chancellor€determined€that€the€building€of€the€arena€wasÐ `° Ðnot€for€a€public€purpose.€€His€opinion€indicates€that€this€finding€is€based€on€the€contractual€termsÐ L œ Ðwhich€the€chancellor€observed€as€benefitting€the€NBA€franchise€more€than€the€citizens€of€the€CityÐ 8 ˆ Ðand€County.€Ð $ t ÐÌà  àWe€have€previously€noted€that€the€acts€of€the€City€and€County€are€in€conformity€with€theÐ ü L  ÐSports€Authority€Act.€€The€Act,€as€previously€noted,€sets€out€in€detail€the€purpose€of€the€chapter€andÐ è 8  Ðthe€liberal€construction€to€be€given€thereto.€€The€public€purpose€doctrine€or€criterion€as€an€exceptionÐ Ô$  Ðto€art.€II,€Ô#†X SXXXåˆO#ÔÔ‡XOXXX SÔððÔ#†X SXXXO°#ÔÔ‡XåˆXXX SÔ€29€of€the€Tennessee€Constitution€was€a€fully€established€doctrine€at€the€time€the€SportsÐ À  ÐAuthority€Act€was€passed€and,€of€course,€the€provisions€of€the€Constitution€are€well€known.€€TheÐ ¬ü  Ðlegislature€is€presumed€to€know€the€existing€state€of€the€law€when€it€enacts€new€legislation.€€ò òòòSeeÐ ˜è  ÐÔ_ÔLavinÔ_Ô€v.€Ô_ÔJordonÔ_Ôó óóó,€16€S.W.3d€362€(Tenn.€2000);€ò òòòÔ_ÔBlankenshipÔ_Ô€v.€Estate€of€Ô_ÔBainÔ_Ôó óóó,€5€S.W.3d€647€(Tenn.Ð „Ô  Ð1999).€€There€is€every€indication€that€the€legislature€intended€for€activities€encompassed€by€theÐ pÀ ÐSports€Authority€Act€to€be€identified€as€a€public€purpose.€€Courts€are€not€authorized€to€considerÐ \¬ Ðwhether€legislation€is€unwise€or€inequitable;€thus,€we€cannot€consider€the€wisdom€or€necessity€of€theÐ H˜ Ðlegislatureððs€policy€decisions.€€ò òòòSee€Baldwin€v.€Knightó óóó,€569€S.W.2d€450,€452€(Tenn.€1978).Ð 4„ ÐÌà  àIn€the€instant€case,€both€the€state€legislature,€in€its€enactment€of€the€Sports€Authority€Act,€andÐ  \ Ðthe€legislative€bodies€of€Shelby€County€and€the€City€of€Memphis€have€determined€that€the€erectionÐ øH Ðand€the€use€of€the€proposed€sports€arena€serves€a€valid€public€purpose.€€These€decisions€of€theÐ ä4 Ðlegislative€bodies€are€entitled€to€great€deference.€€The€court€should€not€substitute€its€judgment€forÐ Ð  Ðthat€of€the€legislative€body.€€€ò òòòÔ_ÔMcCallenÔ_Ô€v.€City€of€Memphisó óóó,€786€S.W.2d€633,€641€(Tenn.€1990).€Ð ¼  Ðð ðBoth€legislative€and€administrative€decisions€are€presumed€to€be€valid.ðð€€ò òòòId.ó óóó;€ò òòòsee€also€RobertsonÐ ¨ø ÐCounty€v.€Browning„Ferris€of€Tennessee,€Inc.,ó óóó€799€S.W.2d€662,€667€(Tenn.€Ct.€App.€1990).€€Ð ”ä ÐÌà  àThe€Eastern€Section€of€this€Court€has€considered€the€question€of€whether€the€operation€of€aÐ l¼ Ðsports€stadium€is€a€use€for€a€public€purpose.€€€In€ò òòòCity€of€Chattanooga€v.€Classic€Refinery,€Inc.ó óóó,€No.Ð X ¨ Ð03A01„9712„CV„00552,€1998€WL€881862€(Tenn.€Ct.€App.,€Dec.€17,€1998),€a€property€ownerÐ D!” Ðappealed€an€order€of€a€taking€of€its€property€adjacent€to€the€Finley€Stadium€project€in€downtownÐ 0"€  ÐChattanooga€in€a€condemnation€proceeding.€€The€court€noted€that€in€making€a€proper€judicialÐ #l! Ðdetermination€in€a€condemnation€case,€the€court€must€determine€first€whether€the€taking€was€for€aÐ $X" Ðpublic€or€private€use€and€then€make€a€determination€of€the€necessity€for€the€taking.€€Considering€theÐ ô$D # Ðquestion€of€public€versus€private€use,€the€court€said:Ð à%0!$ ÐÌà8  àà8` Ð Ð àà ¸ àThe€first€phase€of€a€judicial€analysis€in€a€condemnationÐ ¸'#& Ðproceeding€traditionally€focuses€on€the€issue€of€whether€the€proposedÐ ¤(ô#' Ðproperty€will€be€used€for€a€public€purpose.€€ò òòòHethó óóó,€186€Tenn.€at€326,Ð )à$( Ð210€S.W.2d€at€328;€ò òòòSouthern€Ry.€Co.,ó óóó€126€Tenn.€at€281,€148€Ô_ÔS.W.Ô_Ô€atÐ |*Ì%) Ð665;€ò òòòÔ_ÔEdmondsonÔ_Ôó óóó,€931€S.W.2d€at€934.€€In€doing€so,€this€Court€affordsÐ h+¸&* Ðgreat€weight€to€a€municipalityððs€determination€of€public€use.€€ò òòòHeth,ó óóóÐ ° Ð186€Tenn.€at€326,€210€S.W.2d€at€328.€€The€City€and€County€haveÐ œì Ðmade€it€abundantly€clear€through€their€respective€resolutions€and€theirÐ ˆØ Ðpetition€for€taking€that€Finley€Stadium€does€serve€a€public€purpose.€Ð tÄ ÐAdditionally,€we€note€that€the€Tennessee€General€Assembly€hasÐ `° Ðspoken€in€favor€of€the€need€for€stadium€construction€and€theÐ L œ Ðdesignation€of€such€construction€as€a€public€work.€€ò òòòSee€ó óóóÔ_ÔT.C.A.Ô_Ô€7„67„Ð 8 ˆ Ð102;€9„21„101;€9„21„105(20)(A).€€This€court€is€confident€in€its€viewÐ $ t Ðthat€the€purpose€of€Finley€Stadium€is€for€a€public€use.€€The€stadiumÐ  ` Ðwill€undoubtedly€enhance€the€community€and€its€residents€byÐ ü L  Ðproviding€a€venue€for€sporting€events,€concerts,€and€the€like.€€In€fact,Ð è 8  Ðthe€stadium€has€already€been€used€for€such€purposes.ÐÔ$ ` x` x ÐÌò òòòId.ó óóó€at€*4.Ð ¬ü  ÐÌà  àAlthough,€as€the€chancellor€found,€there€will€be€some€benefit€accruing€to€the€NBA€franchise,Ð „Ô  Ðif€a€public€purpose€is€established,€the€fact€that€a€private€entity€may€receive€some€benefit€from€theÐ pÀ Ðlegislation€does€not€invalidate€the€established€public€purpose.€€ò òòòCity€of€Chattanooga€v.€Harrisó óóó,€442Ð \¬ ÐS.W.2d€602€(Tenn.€1969),€is€a€case€in€which€a€declaratory€judgment€was€filed€to€determine€the€Ð H˜ Ðconstitutionality€of€a€statute€requiring€cities€to€furnish€counsel€for€any€policeman€or€fireman€againstÐ 4„ Ðwhom€suit€is€filed€and€to€indemnify€the€said€policeman€or€fireman€for€any€judgment€rendered€againstÐ  p Ðthem.€€The€city€contended€that€the€legislation€was€unconstitutional€because,€òòinter€aliaóó,€it€violates€theÐ  \ Ðprohibition€set€forth€in€art.€II,€Ô#†X SXXXåˆö#ÔÔ‡XOXXX SÔððÔ#†X SXXXOØ4#ÔÔ‡XåˆXXX SÔ€29€of€the€Tennessee€Constitution.€€The€Court€noted€that€undoubtedlyÐ øH Ðthe€individual€policemen€and€firemen€reaped€some€fringe€benefits€from€such€a€legislation.€€InÐ ä4 Ðupholding€the€constitutionality€of€the€act,€the€Court€said:€Ð Ð  ÐÌà8  àà8` Ð Ð àà ¸ àIn€applying€Article€II,€Section€29,€the€first€question€mustÐ ¨ø Ðnecessarily€be€whether€the€attempted€action€is€designed€to€accomplishÐ ”ä Ðsome€public€purpose,€for,€as€noted€in€ò òòòMcConnell€v.€City€of€Lebanonó óóó,Ð €Ð Ð203€Tenn.€498,€314€S.W.2d€12,€in€speaking€of€an€attempted€bondÐ l¼ Ðissue,€if€they€are€not€for€a€public€or€corporate€purpose€they€would€beÐ X ¨ Ðin€violation€of€this€section€even€if€approved€by€more€than€three„Ð D!” Ðfourths€of€the€qualified€voters.Ð0"€ ` x` x ÐÌÓ€ WLMOPQST\b(4Îx3NÓà  àà ` àà ¸ àà  àà h à*à0 À àà0À(#À(#à*à0p(#(#àà0Èp(#p(#à*Ð$X"È(#È(# ÐÌà8  àà8` Ð Ð àà ¸ àThe€fact€that€the€individual€policeman€and€fireman€do€gain€aÐ à%0!$ Ðbenefit€from€the€implementation€of€the€statute€does€not€deny€that€aÐ Ì&"% Ðpublic€purpose€is€being€served.€€This€Court,€in€ò òòòPack€v€Southern€BellÐ ¸'#& ÐTel.€&€Tel.€Co.,ó óóó€supra,€noted€that€the€test€for€whether€or€not€theÐ ¤(ô#' Ðexpenditure€of€funds€is€for€public€purpose€is€the€end€or€total€purpose,Ð )à$( Ðâ âand€the€mere€fact€that€some€private€interest€may€derive€someÐ |*Ì%) Ðincidental€benefit€from€the€activity€does€not€deprive€the€activity€of€itsÐ ° Ðpublic€nature€if€its€primary€function€is€public.Мì` x` x Ðâ âÌò òòòId.€ó óóóat€442€S.W.2d€at€606.Ð tÄ ÐÌà  àThe€ò òòòClassic€Refineryó óóó€Court€is€not€alone€in€its€determination€that€a€sports€arena€is€for€publicÐ L œ Ðuse.€€Numerous€other€states€have€reached€the€same€conclusion.€€ò òòòSee€Peacock€v.€Shinnó óóó,€533€S.E.2dÐ 8 ˆ Ð842€(N.C.€Ct.€App.2000)€rev.€denied,€546€S.E.2d€110€(N.C.€2000);€ò òòòLifteau€v.€Metro.€SportsÐ $ t ÐFacilities€Commððn.ó óóó,€270€N.W.2d€749€(Minn.€1978);€ò òòòCitizens€For€More€Important€Things€v.€KingÐ  ` ÐCountyó óóó,€932€P.2d€135€(Wash.€1997);€ò òòòCLEAN€v.€Washingtonó óóó,€928€P.2d€1054€(Wash.€1996);€ò òòòIn€Re:Ð ü L  ÐSpectrum€Arena,€Inc.ó óóó,€330€F.Supp.€125€(Dist.€Pa.€1971);€ò òòòMartin€v.€City€of€Philadelphiaó óóó,€215€A.2dÐ è 8  Ð894€(Pa.€1966);€ò òòòMurphy€v.€Erie€Countyó óóó,€268€N.E.2d€771€(N.Y.€1971);€ò òòòLibertarian€Party€v.Ð Ô$  ÐWisconsinó óóó,€546€N.W.2d€424€(Wisc.€1996);€ò òòòGinsburg€v.€City€and€County€of€Denveró óóó,€436€P.2d€685Ð À  Ð(Col.€1968),€and€many€other€cases.Ð ¬ü  ÐÌà  àThe€beautifully€phrased€explanation€of€the€ever€evolving€ð ðpublic€purposeðð€is€found€inÐ „Ô  Ðò òòòConrad€v.€Pittsburghó óóó,€218€A.2d€906€(Pa.€1966):Ð pÀ ÐÌà8  àà8` Ð Ð àà ¸ àThe€objective€of€a€community€is€not€merely€to€survive,€but€toÐ H˜ Ðprogress,€to€go€forward€into€an€ever„increasing€enjoyment€of€theÐ 4„ Ðblessings€conferred€by€the€rich€resources€of€this€nation€under€theÐ  p Ðbenefaction€of€the€Supreme€Being€for€the€benefit€of€all€the€people€ofÐ  \ Ðthat€community.ÐøH` x` x ÐÌà8  àà8` Ð Ð àà ¸ àIf€a€well€governed€city€were€to€confine€its€governmentalÐ Ð  Ðfunctions€merely€to€the€task€of€assuring€survival,€if€it€were€to€doÐ ¼  Ðnothing€but€provide€ððbasic€servicesðð€for€an€animal€survival,€it€wouldÐ ¨ø Ðbe€a€city€without€parks,€swimming€pools,€zoo,€baseball€diamonds,Ð ”ä Ðfootball€gridirons€and€playgrounds€for€children.€€Such€a€city€would€beÐ €Ð Ða€dreary€city€indeed.€€As€man€cannot€live€by€bread€alone,€a€city€cannotÐ l¼ Ðendure€on€cement,€asphalt€and€sewer€pipes€alone.€€A€city€must€haveÐ X ¨ Ða€municipal€spirit€beyond€its€physical€properties,€it€must€be€alive€withÐ D!” Ðan€esprit€de€corps,€its€personality€must€be€such€that€visitors€ð!ð€bothÐ 0"€  Ðbusiness€and€tourist€ð!ð€are€attracted€to€the€city,€pleased€by€it€and€wishÐ #l! Ðto€return€to€it.€€That€personality€must€be€one€to€which€the€populationÐ $X" Ðcontributes€by€mass€participation€in€activities€identified€with€that€city.Ðô$D #` x` x ÐÌò òòòId.ó ó€óóat€914€€ÓÓ(Justice€Ô_ÔMusannoÔ_Ô€concurring).Ð Ì&"% ÐÓÓà  àConsidering€the€record€as€a€whole,€we€conclude€that€the€resolutions€of€the€governmentalÐ ¤(ô#' Ðentities€and€the€contracts€executed€pursuant€thereto€are€for€a€public€purpose€as€construed€by€theÐ )à$( Ðâ âTennessee€court€and€the€decisions€of€courts€in€the€other€states.€€However,€this€opinion€should€not€beÐ |*Ì%) Ðconstrued€as€approving€the€business€decisions€made€by€the€governmental€authorities€as€reflected€inÐ ° Ðthe€executed€agreements.€€Ð œì Ðâ âÌà  àThe€last€issue€for€review€as€presented€by€Plaintiffs€is€whether€the€trial€court€erred€inÐ tÄ Ðoverruling€its€motion€to€alter€or€amend€the€judgment.€€Plaintiffs€filed€a€motion€to€alter€or€amend€theÐ `° Ðjudgment€requesting€the€court€to€hold€that€the€ð ðpublic€purpose€exception,ðð€as€articulated€inÐ L œ ÐTennessee€case€law€is€a€violation€of€art.€II,€Ô#†X SXXXåˆ5#ÔÔ‡XOXXX SÔððÔ#†X SXXXOÞL#ÔÔ‡XåˆXXX SÔ€29€and€art.€II,€Ô#†X SXXXåˆ$M#ÔÔ‡XOXXX SÔððÔ#†X SXXXOwM#ÔÔ‡XåˆXXX SÔ€31€of€the€Tennessee€Constitution€andÐ 8 ˆ Ðto€overturn€the€doctrine.€€The€trial€court€denied€the€motion€to€alter€or€amend.€€Plaintiffs€have€now,Ð $ t Ðby€this€appeal,€requested€this€Court€to€reverse€the€trial€court€on€this€issue€which,€in€effect,€wouldÐ  ` Ðrequire€this€Court€to€overrule€the€decisions€of€our€Supreme€Court.Ð ü L  ÐÌà  àIt€is€not€the€province€of€this€Court€to€overrule€a€decision€or€decisions€of€the€Supreme€Court.€Ð Ô$  ÐThe€prerogative€to€change€the€law€as€the€Plaintiffs€seek€in€this€case€lies€with€the€Supreme€Court€orÐ À  Ðthe€legislature.€€ò òòòSee€Ô_ÔLentzÔ_Ô€v.€Bakeró óóó,€792€S.W.2d€71€(Tenn.€Ct.€App.€1989),€ò òòòGraves€v.€Anchor€WireÐ ¬ü  ÐCorp.€of€Tennesseeó óóó,€692€S.W.2d€420€(Tenn.€Ct.€App.€1985).Ð ˜è  ÐÌà  àIn€summary,€the€judgment€of€the€trial€court€that€Plaintiffs€have€standing€to€maintain€thisÐ pÀ Ðaction€is€affirmed,€and€the€judgment€in€all€other€respects€is€reversed.€€The€injunction€issued€by€theÐ \¬ Ðtrial€court€is€dissolved.€€The€case€is€remanded€to€the€trial€court€for€such€further€proceedings€as€mayÐ H˜ Ðbe€necessary.€€Costs€of€the€appeal€are€assessed€against€the€appellees.Ð 4„ ÐÔ#†X SXXX刽M#ÔÔ#†¼¤„»XX Sã#ÔÔ€X SX»¼¤„ÔÌÌÌà  àà ` àà ¸ àà  àà h àà À à__________________________________________Ð ð@ Ðà  àà ` àà ¸ àà  àà h àà À àW.€FRANK€CRAWFORD,€PRESIDING€JUDGE,€Ô_ÔW.S.Ô_Ô