ÿWPC¸+ åè¡wþJîb6.yó©ÇB¾s@<7`ÿ™¹cW‘+ À<ðtþq-1¤ß›2®ù«1 gÄ*ÞðZà•¢l÷á™ÀÀ‡!ˆõ¦Ì÷šÌ Mj,¡3­ž©HEâHÒ¿—‹×9~P›'i°q¿#Öc¨6¶€#Þ«}ÔsÚÁE¸7¦ ¼ ijy7ðâU•çÑIœ„ºôä†×ëwmÞ¬IÞ@µô›ûT‚…OúYQă¾®Q¨VOÁ« N•a¼Ã¯7{»ÅN°@+F g'¥ÈHý9Ÿ; ")Ç5wu€åÀVàä¹Ne$~庭hë>R‰4 ôð^žö£]¯¼Ûp> Å'¼fƒZX:ž”Yñ ñürBZàÍXY©v afåZþ=scr»T÷âÈEµ¦|ÚäXpBÙE,¡—ß.ðw|:_EÛhN_RrÛj½b©Æ¢©5 ÿ|’ÁozHæÙµzN+Åø¾…ÅRŸe{f^ZdÆ’™šqÚ¤Vév!Ž}†¤šŠp¯úµ¿ šN„ŒQˆ3\ÆP—ÏÕÚö—G0‡’'*Ç973)a1æÒ¼ú(¦ÛÓôSp2¯Ï‰?üŽú©Ÿ~&Z[Ãáº;£˜Éb#Á\ % H# 0ˆk UANó 0DA ^ … z‘ Ò wÝ4áõÆÆÌÆ’ÆX mN5! 7U+>XE–UN˜æ0ûûûûûûûû 0¦+%+%+%+%+% 0ÜÑ%Ñ%Ñ%Ñ%Ñ%Ñ%Ñ%Ñ%b­&­&­&­&­&­&­&­&­&­&­&­&­&­&­&­&­&­&­&­&­&­&­&­&­&­&­&­&­&­&­&­&­&­&­&­& 0ëµ&µ&µ&µ& B ' ' 0¤½' D3a( D-”( 0KÁ(Á( AS )Æ_) 0¤%* 0DÉ* A« +˜HP LaserJet 4050 Series PCL 5eÈÈ,,,,ÈÈ0» >Ý ƒR5$ÝÓ  Óà  àòòÚ  Ú1Ú  ÚóóÔ€ôéÝò»»ÔÝ  ÝÔ_ÔÔ_ÔT.C.A.Ô_Ô€ðð€54„1„105€(1998)€sets€forth€the€duties€of€the€Commissioner,€including,€as€particularly€pertinent€to€theÐ ° Ðpetitionersðð€claims,€the€duty€toÐ tÄ ÐÌà  àà8 ` àestablish€standards€for€the€construction€and€maintenance€of€highways€in€theÐ üL Ðcounties,€giving€due€regard€to€topography,€natural€conditions,€availability€of€roadÐ À Ðmaterial,€prevailing€traffic€conditions,€and€ways€and€means€of€the€counties€to€meetÐ „Ô Ðtheir€portion€of€the€cost€of€building€and€maintaining€roads€under€the€provisions€ofÐ H ˜ Ðthis€chapter€and€chapters€2€and€5€of€this€title.(`£ª$¡¡Ñ€.ÑÑ8€½­»»d»»d8ÑÑ ý ÑÓ  Ó(í€"  Z6Times New Roman Regular(#Ã$òòÚ  Ú0Ú  Úóó ‰+s  ˜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.wptXq+褤3|xLevel 1Level 2Level 3Level 4Level 5‚Level 1Level 2Level 3Level 4Level 5„Level 1Level 2Level 3Level 4Level 5…Level 1Level 2Level 3Level 4Level 5ÿU‹ÿÀÀÀ  Ý ƒR5$ÝÓ  Óà  àòòÚ  Ú2Ú  ÚóóÔ€ôéÝò»»ÔÝ  ÝÔ_ÔÔ_ÔT.C.A.Ô_Ô€ðð€4„33„104€(1998)€provides€as€follows:Ð ° ÐÌà  àà8 ` à(a)€Upon€written€request€by€the€commissioner€or€head€of€any€agency,€or€by€anyÐ 8ˆ Ðmember€of€the€general€assembly,€each€agency€shall€within€a€reasonable€time€justifyÐ üL Ða€proposed€action€by€preparing€an€economic€impact€statement€using€professionallyÐ À Ðaccepted€methodology,€with€Ô_ÔquantificationÔ_Ô€of€data€to€the€extent€practicable,€givingÐ „Ô Ðeffect€to€both€short„term€and€long„term€consequences;€provided,€that€the€provisionsÐ H ˜ Ðof€this€section€shall€not€apply€to€any€action€of€the€department€of€transportation€inÐ  \ Ðwhich€federal„aid€matching€funds€are€used.ÐÐ ` x` x Ðà  àà8 ` à(b)€The€economic€impact€statement€shall€include€the€following€information:Д ä ` x` x Ðà  àà8 ` à(1)€A€description€of€the€action€proposed,€the€purpose€of€the€action,€the€legalÐ X ¨  Ðauthority€for€the€action€and€the€plan€for€implementing€the€action;Ð l ` x` x Ðà  àà8 ` à(2)€A€determination€that€the€action€is€the€least„cost€method€for€achieving€the€statedÐ à 0  Ðpurpose;Фô ` x` x Ðà  àà8 ` à(3)€A€comparison€of€the€cost„benefit€relation€of€the€action€to€Ô_ÔnonactionÔ_Ô;Ðh¸ ` x` x Ðà  àà8 ` à(4)€A€determination€that€the€action€represents€the€most€efficient€allocation€of€publicÐ ,|  Ðand€private€resources;Ðð@ ` x` x Ðà  àà8 ` à(5)€A€determination€of€the€effect€of€the€action€on€competition;д ` x` x Ðà  àà8 ` à(6)€A€determination€of€the€effect€of€the€action€on€the€cost€of€living€in€theÐ xÈ  Ðgeographical€area€in€which€the€action€would€occur;Ð<Œ` x` x Ðà  àà8 ` à(7)€A€determination€of€the€effect€of€the€action€on€employment€in€the€geographicalÐ P Ðarea€in€which€the€action€would€occur;ÐÄ` x` x Ðà  àà8 ` à(8)€The€source€of€revenue€to€be€used€for€the€action;€andЈØ` x` x Ðà  àà8 ` à(9)€A€conclusion€as€to€the€economic€impact€upon€all€persons€substantially€affectedÐ Lœ Ðby€the€action,€including€an€analysis€containing€a€description€as€to€which€personsÐ ` Ðwill€bear€the€costs€of€the€action€and€which€persons€will€benefit€directly€andÐ Ô$ Ðindirectly€from€the€action.Иè` x` x Ðà  àà8 ` à(c)€If,€during€the€course€of€an€agency€action,€information€required€by€the€economicÐ \¬ Ðimpact€statement€materially€changes,€the€agency€shall€amend€the€statement€with€theÐ  p Ðcorrect€information.ô\  `‹&Times New Roman(ÖÃ9 Z‹6Times New Roman Regular Ñ  Ñ &Ý ƒR5$ÝÓ  Óà  àòòÚ  Ú3Ú  ÚóóÔ€ôéÝò»»ÔÝ  ÝÔ_ÔÔ‡ôéÝòòôéÝÔò òòòDelta€Loanó óóó€relied€upon€the€case€of€ò òòòCity€of€Nashville€v.€Webbó óóó,€114€Tenn.€432,€85€Ô_ÔS.W.Ô_Ô€404€(1905),€whichÐ ° Ðgives€a€glimpse€into€a€possible€rationale€for€this€rule:Ð vÆ ÐÑ @ ÑÌà8  àà8` Ð Ð à[Ô_ÔA]ctionsÔ_Ô€against€municipal€corporations€are€inherently€local.€€These€bodies€cannotÐ þN Ðchange€their€situs€or€their€place€of€abode.€€They€cannot€remove€from€one€place€toÐ Â Ðanother,€and€sojourn€for€a€time€at€this€point€or€that.€€They€remain€stationary;€henceÐ †Ö Ðthey€must€be€sued€where€they€are€found€ð!ð€that€is,€in€the€county€of€theirÐ J š Ðlocationð8ð.Such€actions€are€not€only€inherently€local,€but€it€is€of€the€greatestÐ  ^ Ðimportance€to€the€welfare€of€such€bodies,€and€of€the€citizens€whom€they€serve,€thatÐ Ò " Ðtheir€officers€should€be€permitted€to€remain€at€home€and€discharge€their€publicÐ – æ  Ðduties,€instead€of€being€called€hither€and€thither€over€different€parts€of€the€state€toÐ Z ª  Ðattend€to€litigation€brought€against€the€city€through€the€agency€of€counterpart€writs.Ð n ` x` x ÐÌÑ @ Ñò òòòCity€of€Nashvilleó óóó,€114€Tenn.€at€435,€85€Ô_ÔS.W.Ô_Ô€at€405.Ô#†ôéÝòòôéÝ~#Ô0;;ÿÿ.headerÑ  ÑÓ ÜÜìù!ÓÔ‡XXXÔÑ  ÑÓ ÜÜìù!ÓÔ‡XXXÔ<PP@ª©:QuickFormat1Ô‡XÔÔ‡XÿÿXÔÔ  ÔÔcÿÔÔb  ÔÔ‡XÔÔ‡XÿÿXÔÔ  ÔÔcÿÔÔb  Ô- ù-(|G25$¤¤Ý ƒ£ª!ÝÑ€.ÑÑ8€Ru»»dXXdì8ÑÑ ý ÑÓ  ÓÝ  Ýà  àòòÚ  Ú0Ú  ÚóóÔ€ôéÝò»»Ô d(|3‰\$££Ý ƒ£ª!ÝÑ€.ÑÑ8€Ru»»dXXdì8ÑÑ 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€Ru»»dXXdì8ÑÑ ý ÑÓ  ÓÝ  Ý($$””ò òÚ  Ú1Ú  Úó óX[Z&OLE 2.0 Box <=8ÿÿÿÿÿÿÿÿÿÿCÿÿ HKKKKÝ ƒ£ª!ÝÑ€.ÑÑ8€Ru»»ddÈ8ÑÑ ý ÑÓ  ÓÝ  ÝÔ_ÔÑ  ÑÔ€¼Ru»»»ÔÑ8€YXXdì»»d8ÑÑ  ÑÑ€P¸Ñà@ü ü ìàÔ‡î_4RuÔIN€THE€COURT€OF€APPEALS€OF€TENNESSEEˆÐ ° Ðà@kk$ìàAT€NASHVILLEÔ#†¼Ru»îî_4#ԈРÖ& ÐÓ  ÓAugust€7,€2001€SessionÐ üL ÐÔ‡XYX»¼RuÔÌò òÔ#†¼Ru»XXY#ÔSOUTHWEST€WILLIAMSON€COUNTY€COMMUNITY€Ô_ÔASSððNÔ_Ô,€òòet€al.óó€v.€J.Ð úJ ÐBRUCE€Ô_ÔSALTSMANÔ_Ô,€SR.,€Commissioner,€Tennessee€Department€ofÐ  ^ ÐTransportationòòóóÔ‡XYX»¼RuÔó óÐ " r ÐÌà@@½½ìàò òAppeal€from€the€Chancery€Court€for€Williamson€CountyÐ " r Ðà@@øøìàNo.€27,222€€€€€€J.€Russ€Ô_ÔHeldmanÔ_Ô,€JudgeÐ ^  ÐÌÌà@@ìì*ìàßA€V) °°` d€÷E<Ñ` AßÐ Ò"  ÐÌà@@TTìàNo.€M2001„00943„Ô_ÔCOAÔ_Ô„R3„CV€„€Filed€August€28,€Ô_Ô2001Ô_ÔÐ Í  ÐÌßA€V) °°` dE<¤` AßÐ ¥õ Ðó óÌÓ  ÓBeing€dissatisfied€with€the€Stateððs€concept€of,€and€planning€for,€the€extension€of€State€Route€840Ð  ð Ðthrough€southwest€Williamson€County,€three€residents€in€the€County,€two€nonprofit€corporations,Ð ŒÜ Ðand€a€partnership€that€owns€property€in€the€County,€sued€J.€Bruce€Ô_ÔSaltsmanÔ_Ô,€Sr.€(ð ðtheÐ xÈ ÐCommissionerðð),€in€his€official€capacity€as€Commissioner€of€the€Tennessee€Department€ofÐ d´ ÐTransportation€(ð ðÔ_ÔTDOTÔ_Ôðð).€€Following€a€bench€trial,€the€court€below€entered€a€final€judgmentÐ P  Ðincluding€(1)€€a€writ€of€mandamus€ordering€the€Commissioner€to€perform€a€number€of€ð ðdutiesðð€inÐ <Œ Ðconnection€with€Route€840;€and€(2)€€a€permanent€injunction€enjoining€him€from€moving€forwardÐ (x Ðwith€the€planning€and€construction€of€Route€840€through€Williamson€County€until€he€complies€withÐ d Ðthe€trial€courtððs€order.€€The€Commissioner€appeals.€€In€addition€to€other€bases€for€reversal,€he€assertsÐ P Ðthat€the€trial€court€lacked€subject€matter€jurisdiction€of€this€controversy.€€We€agree€with€the€appellantÐ ì< Ðthat€the€trial€court€was€without€subject€matter€jurisdiction.€€Accordingly,€we€reverse€the€judgmentÐ Ø( Ðbelow€in€its€entirety€and€dismiss€the€petition.Ð Ä ÐÓ¥ÓÌò òTenn.€R.€App.€P.€3€Appeal€as€of€Right;€Judgment€of€the€Chancery€Court€Reversed;€PetitionÐ œ ì ÐDismissed;€and€Case€Remandedó óÐ ˆ!Ø  ÐÌòòÓ  ÓÔ#†¼Ru»àXYD#ÔÔ‡XYX.¼RuÔCharles€D.€Susano,€Jr.,€J.óó,€delivered€the€opinion€of€the€court,€in€which€òòHouston€M.€Ô_ÔGoddardÔ_Ô,Ð `#°" ÐÔ_ÔP.J.Ô_Ô,óó€and€òòHerschel€P.€Franks,€J.óó,€joined.Ð L$œ# ÐÌPaul€G.€Summers,€Attorney€General€and€Reporter;€Michael€E.€Moore,€Solicitor€General;€MichaelÐ $&t!% ÐW.€Ô_ÔCatalanoÔ_Ô,€Associate€Solicitor€General;€and€Phyllis€A.€Ô_ÔChildsÔ_Ô,€Assistant€Attorney€General,€for€theÐ '`"& Ðappellant,€J.€Bruce€Ô_ÔSaltsmanÔ_Ô,€Sr.,€Commissioner,€Tennessee€Department€of€Transportation.Ð ü'L#' ÐÌDavid€E.€Ô_ÔLemkeÔ_Ô,€Nashville,€Tennessee,€for€the€appellees,€Southwest€Williamson€County€CommunityÐ Ô)$%) ÐAssociation,€Inc.,€Ô_ÔMicaroÔ_Ô€Properties,€Billie€Ô_ÔRutledgeÔ_Ô,€Dorothy€Beard,€and€William€B.€Caldwell.Ð À*&* ÐÌJulian€L.€Bibb€and€Robert€C.€Ô_ÔHannonÔ_Ô,€Nashville,€Tennessee,€for€the€appellee„Ô_ÔintervenorÔ_Ô,€HeritageÐ ˜,è', ÐFoundation€of€Franklin€and€Williamson€County,€Tennessee.Ð „-Ô(-ý ÐÔ_Ô‡William€L.€Penny,€Lyle€Reid,€and€Jonathan€D.€Rose,€Nashville,€Tennessee,€for€amicus€curiae,Ð ° ÐTennessee€Road€Builders€Association.Ð œì ÐÓ ÓÌò òOPINIONó óÔ#†¼Ru»XXY2 #ÔÔ‡XYX»¼RuÔÐ tÄ ÐÌòòóóÔ#†¼Ru»XXYP#ÔÔ‡XYX»¼RuÔÓ  Óà@´´)ìàI.ˆÐ L œ ÐÌà  àThis€litigation€was€commenced€by€the€filing€of€a€ð ðVerified€Petition€for€Writ€of€MandamusÐ $ t Ðand€Injunctive€Reliefðð€in€the€Williamson€County€Chancery€Court.€€The€original€petitioners€wereÐ  ` ÐSouthwest€Williamson€County€Community€Association,€Inc.,€a€Tennessee€nonprofit€corporation;Ð ü L  ÐMicaro€Properties,€a€Tennessee€partnership€that€owns€real€property€in€Williamson€County;€and€threeÐ è 8  Ðindividuals,€all€of€whom€reside€or€own€property€in€the€County.€€They€were€later€joined€by€anotherÐ Ô$  Ðnonprofit€corporation,€Heritage€Foundation€of€Franklin€and€Williamson€County,€Tennessee,€whichÐ À  Ðthe€trial€court€permitted€to€intervene€as€a€petitioner.Ð ¬ü  ÐÌà  àThe€sole€respondent€in€the€suit€is€the€Commissioner.€€The€original€petition€alleges€theÐ „Ô  Ðfollowing€with€respect€to€him€and€the€Department€he€heads:Ð pÀ ÐÌà  àà8 ` àThe€Tennessee€Department€of€Transportation€(ð ðTDOTðð)€is€a€politicalÐ H˜ Ðsubdivision€and€agency€of€the€executive€branch€of€the€State€ofÐ 4„ ÐTennessee.€€TDOTððs€principal€office€is€located€at€Suite€700,€James€K.Ð  p ÐPolk€Building,€Nashville,€Tennessee€€€37243.€€Respondent€J.€BruceÐ  \ ÐSaltsman,€Sr.,€is€the€Commissioner€of€TDOT;€his€principal€office€isÐ øH Ðlocated€at€the€same€address€as€TDOT.Ðä4` x` x ÐÌà  àThe€petition€focuses€on€TDOTððs€involvement€with€State€Route€840,€especially€as€it€pertainsÐ ¼  Ðto€the€portion€of€the€highway€to€be€built€in€Williamson€County:Ð ¨ø ÐÌà  àà8 ` àTDOT€is€engaged€in€the€planning,€design,€right„of„way€acquisition,Ð €Ð Ðfinancing,€and€construction€of€a€four„lane,€access€controlled€highwayÐ l¼ Ðrunning€from€Interstate€40€East€(Wilson€County)€to€Interstate€40€WestÐ X ¨ Ð(Dickson€County)€through€Wilson,€Rutherford,€Williamson,Ð D!” ÐHickman,€and€Dickson€Counties€(the€ð ðSouthern€Loopðð),€whichÐ 0"€  Ðhighway€TDOT€from€time€to€time€calls€Interstate€840,€I„840,€StateÐ #l! ÐRoute€840,€SR€840,€or€Route€840€(hereinafter€ð ðRoute€840"€or€theÐ $X" Ðð ðProjectðð).Ðô$D #` x` x ÐÌà  àà8 ` àThe€Project€is€in€various€stages€of€construction.€€The€Project€isÐ Ì&"% Ðcurrently€constructed€and€opened€from€Interstate€40€East€to€InterstateÐ ¸'#& Ð24€Ô#†¼Ru»XXY®#ÔÔ€XYX»¼RuÔEast€only.€€TDOT€is€only€in€various€stages€of€planning,€design,Ð ¤(ô#' Ðright„of„way€acquisition,€financing,€excavation,€and€construction€onÐ )à$( Ðthe€remainder€of€the€Project.Ð|*Ì%)` x` x ÐÐ h+¸&* Ðà  àà8 ` àTDOT€has€created€numerous,€separate€projects€for€different€segmentsÐ ° Ðand€parts€of€Route€840€from€I„40(E)€to€I„40(W).€€Each€separateÐ œì Ðproject€has€been€given€a€separate€project€number€by€TDOT.€€AttachedÐ ˆØ Ðas€Exhibit€A€to€this€Petition€is€a€copy€of€a€document€prepared€byÐ tÄ ÐTDOT€dated€July€23,€1997,€which€identifies€some€of€the€variousÐ `° Ðprojects€and€project€numbers€that€make€up€the€entire€Route€840.ÐL œ` x` x ÐÌà  àà8 ` àThose€segments€of€the€Project€that€are€proposed€to€run€through€theÐ $ t ÐSouthwest€Community€are€identified€by€TDOT€on€Exhibit€A€by€theÐ  ` ÐCounty€name€ð ðWilliamson.ððÐü L ` x` x ÐÌà  àà8 ` àNo€construction€has€begun€on€those€segments€of€the€Project€which€areÐ Ô$  Ðproposed€to€run€from€east€of€Thompson€Station€Road€to€southeast€ofÐ À  ÐState€Route€100€through€Williamson€County.€€Moreover,€no€right„of„Ð ¬ü  Ðway€acquisition€has€even€occurred€on€that€segment€of€the€ProjectÐ ˜è  Ðproposed€to€run€from€east€of€Thompson€Station€Road€to€west€ofÐ „Ô  ÐBending€Chestnut€Road.ÐpÀ` x` x ÐÌà  àà8 ` àTDOT€estimates€the€Project€will€not€be€completed€any€sooner€thanÐ H˜ Ðthe€year€2008.€€Attached€as€Exhibit€B€to€the€Petition€is€a€copy€of€aÐ 4„ Ðdocument€in€which€TDOT€states€the€foregoing€estimate€of€the€date€ofÐ  p Ðcompletion.Ð \` x` x ÐÌà  àà8 ` àTDOT€has€announced€recently€its€plans€to€begin€the€right„of„wayÐ ä4 Ðacquisition€phase€of€that€segment€of€the€Project€identified€by€TDOTÐ Ð  Ðas€ð ðState€Project€No.€94840„2221„04€Williamson€County,ðð€which€isÐ ¼  Ðproposed€to€run€from€east€of€Thompson€Station€Road€to€west€ofÐ ¨ø ÐBending€Chestnut€Road.Дä` x` x ÐÌà  àà8 ` àTDOT€has€also€announced€recently€its€plans€to€solicit€bids€and€let€theÐ l¼ Ðcontracts€on€that€segment€of€the€Project€proposed€to€run€from€west€ofÐ X ¨ ÐBending€Chestnut€road€to€southeast€of€State€Route€100.ÐD!”` x` x ÐÌà  àà8 ` àPetitioners€are€informed€TDOT€has€already€acquired€right„of„way€andÐ #l! Ðbegun€construction€on€the€remaining€segments€of€the€ProjectÐ $X" Ðproposed€to€run€through€the€Southwest€Community.Ðô$D #` x` x ÐÌ(Numbering€in€petition€omitted).Ð Ì&"% ÐÌà  àThe€petition,€as€later€amended€on€two€occasions,€alleges€that€the€Commissioner€has€certainÐ ¤(ô#' Ðð ðnon„discretionaryðð€duties€that€he€must€perform€in€connection€with€Route€840.€€The€amendedÐ )à$( Ðâ âpetition€goes€on€to€allege€that€ð ðeven€if€[the€aforesaid€duties]€are€discretionary,ðð€the€CommissionerÐ |*Ì%) Ðand€TDOT€ð ðmay€not€perform€or€fail€to€perform€those€duties€in€an€arbitrary€and€oppressive€manner,Ð ° Ðnor€may€they€abuse€their€discretion€in€deciding€whether€or€not€to€perform€such€duties.ððÐ œì Ðâ âÌà  àThe€petition€identifies€the€ð ðnon„discretionaryðð€duties€of€the€Commissioner€as€those€set€forthÐ tÄ Ðin€(1)€€T.C.A.€ðð€€54„1„105׃×Ý ƒ#ÃÝòòÚ  Ú1Ú  ÚóóÝ  Ý×  ×;€(2)€€ð ðthe€Procedure€Manual€for€Highway€Location€Studiesðð;€(3)€€TDOTððsÐ `° Ðð ðRight„of„Way€Manualðð;€and€(4)€€T.C.A.€ðð€4„33„104׃°×Ý ƒ#ÃÝòòÚ  Ú2Ú  ÚóóÝ  Ý×  ×€pertaining€to€an€ð ðeconomic€impact€statement.ðð€Ð L œ ÐThe€amended€petition€goes€on€to€allege€that€the€Commissioner€has€failed€to€perform€his€duties€andÐ 8 ˆ Ðmeet€his€responsibilities€and,€as€a€result,€the€petitioners€ð ðare€adversely€affected€and€their€rights€areÐ $ t Ðimpaired€and€interfered€with€by€the€[Commissionerððs]€and€TDOTððs€failure€and€refusal€to€performÐ  ` Ðtheir€duties€as€outlined€above,€inasmuch€as€Petitioners€are€not€receiving€the€protections€and€benefits,Ð ° Ðincluding€the€environmental,€safety,€and€economic€benefits€they€would€be€afforded,€and€to€whichÐ œì Ðthey€are€entitled,€if€[the€Commissioner]€and€TDOT€were€performing€their€duties€with€respect€toÐ ˆØ ÐRoute€840€as€it€pertains€to€Williamson€County.ððÐ tÄ ÐÌà  àThe€petition€concludes€by€seeking€a€writ€of€mandamus€as€to€the€various€alleged€duties€and€Ð L œ Ðresponsibilities€of€the€Commissioner€ð ðwith€respect€to€those€segments€of€[Route€840]€proposed€to€runÐ 8 ˆ Ðthrough€Williamson€County.ðð€€It€also€praysÐ $ t ÐÌà  àà8 ` à[t]hat€a€temporary,€preliminary€and€permanent€injunction€be€issuedÐ ü L  Ðprohibiting€[the€Commissioner]€and€TDOT€from€undertaking€anyÐ è 8  Ðfurther€design,€planning,€financing,€contract€letting,€right„of„wayÐ Ô$  Ðacquisition,€surveying,€excavation,€or€construction€of€any€part€ofÐ À  Ð[Route€840]€proposed€to€run€through€the€Southwest€Community€[ofÐ ¬ü  ÐWilliamson€County],€until€such€time€as€the€[Commissioner]€andÐ ˜è  ÐTDOT€have€performed€all€their€non„discretionary€duties€as€set€forthÐ „Ô  Ðin€the€writ;...ÐpÀ` x` x ÐÌà  àAt€the€conclusion€of€a€bench€trial€below,€the€court€filed€a€110„page€memorandum€opinionÐ H˜ Ðwith€findings€of€fact€and€conclusions€of€law€that€it€later€incorporated€into€a€ð ðFinal€Judgment,€WritÐ 4„ Ðof€Mandamus,€and€Permanent€Injunctionðð€that€ð ðgrant[ed]€the€[p]etition€in€its€entirety.ðð€€In€its€finalÐ  p Ðjudgment,€the€trial€court€directed€the€performance€of€numerous€specified€duties€and€responsibilitiesÐ  \ Ðfound€by€it€to€be€incumbent€upon€the€Commissioner.€€After€enjoining€the€Commissioner€and€othersÐ øH Ðfrom€doing€various€and€sundry€things€with€respect€to€Route€840,€the€judgment€concludes€that€theÐ ä4 ÐCommissioner€and€TDOT,Ð Ð  ÐÌà  àà8 ` àits€officers,€agents,€attorneys,€designees,€employees,€contractors,Ð ¨ø Ðsubcontractors,€and€any€other€persons€acting€in€concert€orÐ ”ä Ðparticipation€with€him€or€under€his€control,€as€well€as€their€respectiveÐ €Ð Ðsuccessors,€shall€be€and€hereby€are€enjoined€from€engaging€in€anyÐ l¼ Ðfurther€contract€letting,€right„of„way€acquisition,€excavating,Ð X ¨ Ðconstructing,€or€building€of€[Route]€840€in€the€Southwest€CommunityÐ D!” Ð[of€Williamson€County]€until€[the€Commissioner]€complies€with€theÐ 0"€  Ðrequirements€of€this€Order.Ð#l!` x` x ÐÌThis€appeal€followed.Ð ô$D # Ðà  àà ` àà ¸ àÌà@••)ìàII.ˆÐ Ì&"% ÐÌà  àThe€Commissioner€makes€a€number€of€assertions€on€appeal:Ð ¤(ô#' ÐÌà  àà8 ` à1.€€The€Williamson€County€Chancery€Court€did€not€have€subjectÐ |*Ì%) Ðmatter€jurisdiction€of€the€petition€filed€against€the€Commissioner.Ðh+¸&*` x` x ÐÑP¸Ñâ âÑ  Ñâ âÑ  ÑÌà  àà8 ` à2.€€The€proof€at€trial€did€not€establish€the€necessary€factual€predicateÐ œì Ðfor€the€issuance€of€a€writ€of€mandamus.ЈØ` x` x ÐÌà  àà8 ` à3.€€Because€of€a€previously„filed€suit€by€the€petitioners€in€DavidsonÐ `° ÐCounty,€they€are€precluded€ð!ð€by€virtue€of€the€doctrine€of€prior€suitÐ L œ Ðpending€ð!ð€from€raising€the€issue€of€whether€T.C.A.€ðð€67„3„2003(b)(1)Ð 8 ˆ Ðrequires€the€Commissioner€to€plan,€design,€finance€and€constructÐ $ t ÐState€Route€840€as€an€interstate€highway.Ð `` x` x ÐÌà  àà8 ` à4.€€The€trial€court€erred€in€holding€that€T.C.A.€ðð€67„3„2003(b)(1)Ð è 8  Ðrequires€the€Commissioner€to€plan,€design,€finance,€and€constructÐ Ô$  ÐState€Road€840€as€an€interstate€highway€and€to€comply€with€allÐ À  Ðfederal€environmental€statutes€and€regulations€as€a€result€thereof€in€itsÐ ¬ü  Ðconstruction.Иè ` x` x ÐÌWe€have€determined€that€the€first€issue€is€dispositive€of€this€appeal.€€Since€this€issue€ð!ð€subject€matterÐ pÀ Ðjurisdiction€ð!ð€is€a€question€of€law,€our€review€is€òòde€novoóó€with€no€presumption€of€correctness€as€toÐ \¬ Ðthe€trial€courtððs€conclusion€as€to€this€matter.€€ò òòòNelson€v.€Wal„Mart€Stores,€Inc.ó óóó,€8€S.W.3d€625,€628Ð H˜ Ð(Tenn.€1999).Ð 4„ ÐÌà  àIn€view€of€our€determination€that€the€trial€court€lacked€subject€matter€jurisdiction€to€hear€thisÐ  \ Ðpetition€against€the€Commissioner,€we€pretermit€consideration€of€the€other€issues.Ð øH ÐÌÔ‡XYXXXYÔà@vv(ìàIII.ˆÐ Ð  ÐÌà  àIn€assuming€jurisdiction€of€this€controversy€in€the€face€of€the€Commissionerððs€argument€thatÐ ¨ø Ðhe€could€not€be€sued€on€the€cause€of€action€alleged€in€the€petition€except€in€an€appropriate€court€inÐ ”ä ÐDavidson€County,€the€Williamson€County€Chancery€Court€found€that€this€was€a€controversy€aboutÐ €Ð Ðland:Ð l¼ ÐÌà  àà8 ` àClearly€the€land€and€waters€in€the€wake€of€proposed€840€inÐ D!” ÐWilliamson€County€are€the€subject€of€the€controversy€because€but€forÐ 0"€  Ðthe€land€and€waters,€the€Commissionerððs€alleged€refusal€either€toÐ #l! Ðð ðestablishðð€proper€ð ðconstruction€and€maintenanceðð€standards€or€toÐ $X" Ðfollow€such€standards€under€Ô#†XYXXXYÒB#ÔT.C.A.Ô‡XYXXXYÔ€54„1„105(b)ððs€mandate€would€beÐ ô$D # Ðof€no€consequence€or€impact€to€the€Petitioners.Ðà%0!$` x` x ÐÌà@ŽŽ%ìà*€€€€*€€€€*ˆÐ ¸'#& ÐÌà  àà8 ` àVenue€is€proper€in€this€Court€under€two€alternative€Tennessee€statutesÐ )à$( Ðð!ð€Ô#†XYXXXYeF#ÔT.C.A.Ô‡XYXXXYÔ€29„25„103€and€Ô#†XYXXXYßG#ÔT.C.A.€Ô‡XYXXXYÔ20„4„107.Ð|*Ì%)` x` x ÐÐ h+¸&* Ðà@ŽŽ%ìà*€€€€*€€€€*ˆÐ ° ÐÌà  àà8 ` àThough€the€Petitioners€are€seeking€a€writ€of€mandamus€requiringÐ ˆØ ÐCommissioner€Saltsman€to€perform€certain€duties,€those€duties€haveÐ tÄ Ða€direct€relationship€to€and€impact€on€the€land€owned€by€theÐ `° ÐPetitioners.€€In€the€case€of€the€Association€and€the€HeritageÐ L œ ÐFoundation,€a€direct€impact€on€land€that€the€Association€and€theÐ 8 ˆ ÐHeritage€Foundation€have€an€interest€in€protecting€based€upon€theirÐ $ t Ðstated€purposes.Ð `` x` x ÐÌà  àà8 ` àThe€construction€of€840€will€have€a€direct€impact€on€specific€propertyÐ è 8  Ðin€which€Petitioners€have€a€specific€interest.€€As€a€result,€there€isÐ Ô$  Ðspecific€property€to€which€this€action€relates,€and€T.C.A.€29„25„103Ð À  Ðapplies€to€the€determination€of€proper€venue€for€this€action.Ьü ` x` x ÐÌà  àà8 ` àT.C.A.€29„25„103€is€one€of€the€statutory€exceptions€to€the€general€ruleÐ „Ô  Ðthat€a€commissioner€or€head€of€a€department€of€state€government€mayÐ pÀ Ðonly€be€sued€in€Davidson€County.€€T.C.A.€29„25„103€sets€forth€theÐ \¬ Ðproper€venue€for€which€a€writ€of€mandamus€is€returnable€and€isÐ H˜ Ðcontrolling€on€this€issue.Ð4„` x` x ÐÌà  àà8 ` àWilliamson€County€is€the€proper€venue€for€this€action€since€theÐ  \ Ðsubject€of€the€controversy€is€land€located€in€Williamson€County.ÐøH` x` x ÐÌà  àà8 ` àMoreover,€T.C.A.€20„4„107€sets€forth€the€proper€venue€for€casesÐ Ð  Ðinvolving€real€property€in€which€the€State€of€Tennessee,€or€any€stateÐ ¼  Ðagency,€is€a€party,€as€follows:Шø` x` x ÐÌà  àà ` àà8 ¸ àNotwithstanding€any€other€provision€of€law€or€rule€ofÐ €Ð Ðprocedure€to€the€contrary,€any€action€the€subjectÐ l¼ Ðmatter€of€which€involves€real€property€in€which€theÐ X ¨ Ðstate€of€Tennessee,€or€any€agency€thereof,€is€a€party,Ð D!” Ðmay€be€properly€instituted€in€any€county€in€whichÐ 0"€  Ðsuch€property€is€located.Ð#l!¸ ¸  ÐÌà  àà8 ` àThe€present€action€does€in€fact€relate€to€specific€property,€i.e.,€theÐ ô$D # Ðproperty€on€which€Petitioners€live€and€recreate€and€which€will€beÐ à%0!$ Ðtaken€and€adversely€impacted€by€the€Commissioner€ofÐ Ì&"% ÐTransportationððs€failure€to€establish€and€follow€proper€standardsÐ ¸'#& Ðunder€T.C.A.€54„1„105(b).€€The€nonperformance€of€these€duties€priorÐ ¤(ô#' Ðto€or€during€the€construction€of€840€have€[sic]€a€direct€relationship€toÐ )à$( Ðan[d]€impact€on€specific€property€in€which€the€Petitioners€have€aÐ |*Ì%) Ðspecific€interest.€€Petitioners€want€TDOT€to€consider€the€economic,Ð h+¸&* Ðenvironmental,€historical,€and€social€impacts€on€the€water,€land,Ð ° Ðhomes€and€communities€which€840€will€affect€and€on€whichÐ œì ÐPetitioners[]€live.€€As€a€result,€Ô#†XYXXXY7H#ÔT.C.A.€Ô‡XYXXXYÔ20„4„107€is€another€basis€forÐ ˆØ Ðthis€Court€to€find€that€Williamson€County€is€the€proper€venue€for€thisÐ tÄ Ðaction.Ð`°` x` x ÐÌ(Numbering€in€memorandum€opinion€omitted).Ð 8 ˆ ÐÌà@ll)ìàIV.ˆÐ  ` ÐÌà  àIn€arguing€that€he€cannot€be€sued€in€Williamson€County,€the€Commissioner€points€to€Ô#†XYXXXYU#ÔT.C.A.Ð è 8  ÐððÔ‡XYXXXYÔ€4„4„104(a)€(1998),€which€provides€as€follows:Ð Ô$  ÐÌà  àà8 ` àEach€department€shall€maintain€a€central€office€at€the€capitol,€whichÐ ¬ü  Ðshall€be€the€official€residence€of€each€commissioner,€or€head€ofÐ ˜è  Ðdepartment.Ð„Ô ` x` x ÐÌHe€contends€that€the€cases€have€construed€this€provision€to€mean€that€a€commissioner€of€aÐ \¬ Ðdepartment€of€state€government,€òòóóin€his€or€her€official€capacity,€can€only€be€sued€in€Davidson€County,Ð H˜ Ðòòi.e.óó,€his€official€residence.€€Hence,€so€the€argument€goes,€the€Williamson€County€Chancery€Court€didÐ 4„ Ðnot€have€subject€matter€jurisdiction€over€the€instant€suit,€which€is€admittedly€a€suit€againstÐ  p ÐCommissioner€Saltsman€in€his€official€capacity.Ð  \ ÐÌà  àThe€petitioners€contend€that€other€statutes€vest€the€Williamson€County€Chancery€Court€withÐ ä4 Ðsubject€matter€jurisdiction€over€the€issues€raised€in€the€subject€controversy.€€They€rely€upon€Ô#†XYXXXYoW#ÔT.C.A.Ð Ð  ÐððÔ‡XYXXXYÔ€29„25„101€(2000)€(ð ðCircuit€judges€and€chancellors€have€power€to€issue€writs€of€mandamus€uponÐ ¼  Ðpetition€or€bill,€supported€by€affidavit.ðð);€Ô#†XYXXXY\#ÔT.C.A.€ððÔ‡XYXXXYÔ€29„25„103€(2000)€(ð ðà8 @â àà8 @â àThe€writ€is€returnable€to€theÐ ¨ø Ðcourt€of€the€county€in€which€the€land€lies,€in€all€cases€where€land€is€the€subject€of€controversy,€andÐ ”ä Ðin€all€other€cases€to€the€court€of€the€county€where€the€defendant€resides,€or,€if€against€a€public€officerÐ €Ð Ðor€corporation,€in€the€county€in€which€the€office€is€kept€or€corporation€does€business.ðð);€and€Ô#†XYXXXY÷\#ÔT.C.A.Ð l¼ ÐððÔ‡XYXXXYÔ€20„4„107€(ð ðÔ%† XYXXXY_%ÔÔ!‡ XYXXXY!ÔÝ‚&ª©ÿÝÔ€X ð XXXYÔÔ€X ð X XX ðÔÔ€X ð X XX ðÔÔ€XYX XX ðÔÔ€XYXXXYÔÔÔÔcÿÿÔÔb  ÔÝ  ÝNotwithstanding€any€other€provision€of€law€or€rule€of€procedure€to€the€contrary,€anyÐ X ¨ Ðaction€the€subject€matter€of€which€involves€real€property€in€which€the€state€of€Tennessee,€or€anyÐ D!” Ðagency€thereof,€is€a€party,€may€be€properly€instituted€in€any€county€in€which€such€property€isÐ 0"€  Ðlocated.Ý‚&ª©ÿ‰_ƒÝÔ€XYXXXYÔÔ€XYXXXYÔÔ€XYXXXYÔÔ€XYXXXYÔÔ€XYXXXYÔÔÔÔcÿÿÔÔb  ÔÝ  ÝÔ#†XYXXXYh_#ÔÔ!‡ XYXXXY!Ôðð)€€Finally,€the€petitioners€contend€that€Ô#†XYXXXYÖb#ÔT.C.A.€ððÔ!‡ XYXXXY!Ô€4„4„104(a)€(1998),€the€statute€upon€whichÐ #l! Ðthe€Commissioner€relies€to€support€his€lack€of€jurisdiction€argument,€addresses€the€concept€of€venue,Ð $X" Ðand€not€that€of€subject€matter€jurisdiction.€€They€argue€that€the€Commissioner€failed€to€raise€the€issueÐ ô$D # Ðof€lack€of€venue€on€appeal€and,€as€a€consequence€of€that€failure,€cannot€now€rely€upon€it.Ð à%0!$ ÐÌÐ  ¸'#& Ðà@‹‹)ìàV.ˆÐ ° ÐÌà@‹‹)ìàA.ˆÐ ˆØ ÐÌà  àWe€first€examine€the€petitionersðð€asserted€bases€to€justify€the€placing€of€this€lawsuit€in€theÐ `° ÐWilliamson€County€Chancery€Court.Ð L œ ÐÌà@‘‘)ìàB.ˆÐ $ t ÐÌà  àThe€petitioners€contend€that€this€suit€is€about€real€property;€that€the€real€property€is€locatedÐ ü L  Ðin€Williamson€County;€and€that€Ô#†XYXXXYRc#ÔT.C.A.€ððÔ!‡ XYXXXY!Ô€20„4„107€ð!ð€with€its€reference€to€ð ðany€action€the€subjectÐ è 8  Ðmatter€of€which€involves€real€propertyðð€ð!ð€and€Ô#†XYXXXY6g#ÔT.C.A.€ððÔ!‡ XYXXXY!Ô€29„25„103€ð!ð€with€its€reference€to€returningÐ Ô$  Ðð ð[t]he€writ...to€the€county€in€which€the€land€lies,€in€all€cases€where€land€is€the€subject€of€theÐ À  Ðcontroversy,ðð€ð!ð€vest€the€Williamson€County€Chancery€Court€with€subject€matter€jurisdiction€of€thisÐ ¬ü  Ðcase.€€We€believe€this€argument€must€fail€because,€as€we€construe€the€allegations€of€the€petition€andÐ ˜è  Ðthe€relief€sought€ð!ð€and€granted€in€its€entirety€by€the€trial€court€ð!ð€the€controversy€in€this€case€is€notÐ „Ô  Ðabout€ð ðreal€property,ðð€òòseeóó€Ô#†XYXXXY h#ÔT.C.A.€ððÔ!‡ XYXXXY!Ô€20„4„107,€or€ð ðland,ðð€òòseeóó€Ô#†XYXXXYºj#ÔT.C.A.€ððÔ!‡ XYXXXY!Ô€29„25„103.Ð pÀ ÐÌà  àÔ#†XYXXXY/k#ÔT.C.A.€ððÔ!‡ XYXXXY!Ô€20„4„107€has€been€alluded€to€by€the€appellate€courts€of€this€state€on€a€number€ofÐ H˜ Ðoccasions.€€None€of€those€cases€support€the€petitionersðð€reliance€on€that€statute€to€justify€the€filingÐ 4„ Ðof€the€instant€action€in€the€Williamson€County€Chancery€Court.Ð  p ÐÌòòò òà  àóóó óInò òòò€Carter€v.€Olsenó óóó,€660€S.W.2d€483€(Tenn.€1983),€the€Supreme€Court€reviewed€a€caseÐ øH Ðinvolving€the€collection€of€inheritance€taxes€on€a€tract€of€land€located€in€Franklin€County,€belongingÐ ä4 Ðto€a€deceased€resident€of€Texas.€€ò òòòIdó óóó.€at€483.€€When€the€Commissioner€of€Revenue€sent€a€finalÐ Ð  Ðdemand€for€payment€ordering€the€plaintiffs€to€pay€the€tax€assessment€or€suffer€seizure€of€theÐ ¼  Ðproperty,€the€plaintiffs€filed€a€complaint€in€the€Franklin€County€Chancery€Court€against€theÐ ¨ø Ðcommissioner.€€ò òòòIdó óóó.€at€484.€€The€complaint€alleged,€among€other€things,€that€the€commissionerÐ ”ä Ðassured€the€plaintiffs€that€the€Department€of€Revenue€would€not€pursue€collection€during€theÐ €Ð Ðadministrative€appeal€process.€€ò òòòIdó óóó.€€The€trial€court€found€ð ðthat€allowing€the€commissioner€to€collectÐ l¼ Ðthe€taxes,€which€could€only€be€done€by€selling€a€large€portion€of€the€property,€before€any€of€the€legalÐ X ¨ Ðquestions€had€been€resolved€would€result€in€irreparable€harm€to€the€Plaintiffs.ðð€€ò òòòIdó óóó.€€At€trial,€in€theÐ D!” Ðface€of€the€commissionerððs€argument€that€the€Franklin€County€Chancery€CourtÔ#†XYXXXY«k#ÔÔ‡XYXXXYÔ€lacked€jurisdiction,Ð 0"€  Ðthe€trial€court€relied€upon€T.C.A.€ðð€20„4„107€as€statutory€authority€for€its€jurisdiction.€€ò òòòIdó óóó.€€OnÐ #l! Ðappeal,€the€Supreme€Court€held€that€the€commissioner€ð ðwas€without€authorityð8ðto€levy€against€theÐ $X" ÐPlaintiffððs€property€until€Plaintiff€exhausted€his€administrative€remedy€as€required€by€law€to€do.ðð€Ð ô$D # Ðò òòòIdó óóó.€at€486.€€Except€for€the€portion€of€the€opinion€relating€the€history€of€the€case€in€which€theÐ à%0!$ ÐSupreme€Court€noted€the€trial€courtððs€claimed€basis€of€jurisdiction,€the€Supreme€Court€did€notÐ Ì&"% Ðaddress€the€question€of€subject€matter€jurisdiction€and€did€not€take€a€position€on€that€matter.Ô#†XYXXXY[r#ÔÔ‡XYXXXYÔòòò òÐ ¸'#& ÐÌà  àó óóóIn€òòò òBarry€v.€Commissioners€of€Commerce€&€Insurance,€et€al.ó óóó,€C/A€No.€01A01„9404„CH„Ð Œ)Ü$( Ð00156,€1994€WL€485588,€(Tenn.€Ct.€App.€W.S.,€filed€September€9,€1994),€the€plaintiff€wasÐ x*È%) Ðconstructing,€without€the€benefit€of€a€licensed€architect€or€engineerÔ#†XYXXXYu#ÔÔ‡XYXXXYÔ,€a€three„story€addition€to€aÐ d+´&* Ðbuilding€he€owned€in€Wilson€County.€€ò òòòIdó óóó.€at€*1.€€Upon€receiving€an€order€to€cease€the€unlicensedÐ ° Ðpractice€of€architecture€and€engineering,€the€plaintiff€Ô#†XYXXXY1w#ÔÔ‡XYXXXYÔbrought€suit€in€the€Wilson€County€ChanceryÐ œì ÐCourt€against€the€Commissioner€of€Commerce€&€Insurance€and€the€State€Board€of€Architectural€andÐ ˆØ ÐEngineering€Examiners,€seeking€a€declaratory€judgment€and€injunctive€relief.€€ò òòòIdó óóó.€€The€trial€courtÐ tÄ Ðdismissed€the€complaint€for€lack€of€venue.€€ò òòòIdó óóó.€€The€issue€on€appeal€was€ð ðwhether€venue€is€properÐ `° Ðin€Wilson€County€pursuant€to€T.C.A.€ðð€20„4„107€as€asserted€by€plaintiff,€or€whether€venue€is€properÐ L œ Ðin€Davidson€County€because€plaintiffððs€lawsuit€is€against€a€state€officer€in€his€official€capacity.ðð€€ò òòòIdó óóó.€Ð 8 ˆ ÐWe€found€that€the€case€did€not€involve€real€property€within€the€meaning€of€T.C.A.€ðð€20„4„107€andÐ $ t Ðthat€ð ðthe€gravamen€of€[the€plaintiffððs]€complaint€is€his€right€to€practice€unlicensed€architecture€orÐ  ` Ðengineering.ðð€€ò òòòIdó óóó.€at€*2,€*1.€€We€relied€upon€T.C.A.€ðð€4„4„104(a)€and€upon€the€ð ðwell€settled€[rule]Ð ü L  Ðthat€a€lawsuit€brought€against€a€state€officer€in€his€or€her€official€capacity€must€be€brought€in€theÐ è 8  Ðcounty€of€the€officerððs€official€residence,ððÔ#†XYXXXY^x#ÔÔ‡XYXXXYÔ€in€affirming€the€trial€courtððs€dismissal€predicated€on€thatÐ Ô$  Ðcourtððs€finding€that€the€case€had€to€be€brought€in€Davidson€County.€€ò òòòIdó óóó.€at€*2.Ð À  ÐÌà  àIn€òòò òBowden€Building€Corporation€v.€Tennessee€Real€Estate€Commissionó óóó,€15€S.W.3d€434,Ð ˜è  Ð447„48€€(Tenn.€Ct.€App.€1999),€òòperm.€app.€deniedóó€February€14,€2000,€Ô#†XYXXXY˜}#ÔÔ‡XYXXXYÔthe€plaintiff€was€a€corporationÐ „Ô  Ðð ðengaged€in€the€business€of€acquiring€and€selling€real€estate€for€its€own€account€in€Shelby€County,Ð pÀ ÐTennessee,€through...corporate€representatives,€some€of€which€[were]€not€licensed€real€estateÐ \¬ Ðbrokers.ðð€€ò òòòIdó óóó.€at€436€(internal€quotation€marks€omitted).€€Subsequent€to€receiving€an€order€to€ceaseÐ H˜ Ðand€desist,€the€plaintiff€brought€suit€in€the€Shelby€County€Chancery€Court€against€the€Tennessee€RealÐ 4„ ÐEstate€Commission,€its€members,€and€the€Attorney€General.€€ò òòòIdó óóó.€at€436„37.€€The€complaint€pertainedÐ  p Ðð ðto€the€construction,€enforcement,€and€constitutionality€of€particular€provisions€of€the€TennesseeÐ  \ ÐReal€Estate€Broker€License€Act€of€1973,ðð€and€sought,€among€other€things,€declaratory€relief.€€ò òòòIdó óóó.€atÐ øH Ð436.€€The€defendants€moved€to€dismiss€the€complaint€on€the€ground€that€the€plaintiff€failed€to€seekÐ ä4 Ðrelief€in€the€Davidson€County€Chancery€Court€in€accordance€with€the€Uniform€AdministrativeÐ Ð  ÐProcedures€Act€(ð ðUAPAðð).€€ò òòòIdó óóó.€at€437.€€The€trial€court€relied€upon€T.C.A.€ðð€20„4„107€in€denying€theÐ ¼  Ðmotion.€€ò òòòIdó óóó.€at€438.€€Upon€appeal,€we€found€that€ò òòòó óóóthe€gravamen€of€the€complaint€did€not€involve€realÐ ¨ø Ðproperty€but€rather€the€right€of€the€plaintiffððs€employees€to€engage€in€unlicensed€real€estateÐ ”ä Ðbrokering.€€ò òòòIdó óóó.€at€448.€€We€accordingly€found€that€Davidson€County€was€the€proper€site€of€theÐ €Ð Ðlitigation€under€T.C.A.€ðð€4„5„225€of€the€UAPA.€€ò òòòIdó óóó.Ð l¼ ÐÌà  àIn€the€instant€case,€it€is€clear€beyond€any€doubt€that€the€petition,€as€amended,€seeks€an€orderÐ D!” Ðfrom€the€trial€court€directing€the€Commissioner€to€perform€the€duties€alleged€to€be€incumbent€uponÐ 0"€  Ðhim€as€they€pertain€to€the€planning€for,€and€the€construction€of,€Route€840€through€southwestÐ #l! ÐWilliamson€County.€€The€trial€court€recognized€the€thrust€of€the€petition€ð!ð€a€petition€that€it€grantedÐ $X" Ðð ðin€its€entirety.ðð€€It€agreed€with€the€petitioners€that€the€Commissioner€had€certain€legal€dutiesÐ ô$D # Ðpertaining€to€Route€840€in€Williamson€County€and€that€he€was€not€meeting€his€responsibilities€withÐ à%0!$ Ðrespect€to€those€duties.€€The€trial€court€remedied€this€perceived€breach€of€duty€by€ordering€theÐ Ì&"% ÐCommissioner€to€properly€perform€his€duties€and,€to€the€extent€his€duties€are€discretionary€in€nature,Ð ¸'#& Ðto€perform€them€without€abusing€his€discretion.€€The€court€then€halted€all€work€on€Route€840€inÐ ¤(ô#' ÐWilliamson€County€until€the€Commissioner€had€done€that€which€he€was€ordered€to€do.Ð )à$( Ðâ âÐ |*Ì%) Ðà  àThis€is€not€a€suit€about€real€property.€€It€is€a€suit€seeking€to€require€a€commissioner€of€aÐ ° Ðâ âdepartment€of€the€State€of€Tennessee€to€do€his€job.€€Therefore,€the€Williamson€County€ChanceryÐ œì ÐCourt€cannot€rely€upon€Ô#†XYXXXYk#ÔT.C.A.€ððÔ‡XYXXXYÔ€20„4„107€or€Ô#†XYXXXY…Œ#ÔT.C.A.€ððÔ‡XYXXXYÔ€29„25„103€to€sustain€its€jurisdiction€in€thisÐ ˆØ Ðcase.€€Those€statutes€simply€do€not€apply€to€the€cause€of€action€attempted€to€be€asserted€in€theÐ tÄ Ðpetition.Ð `° ÐÌà  àIt€goes€without€saying€that€if€and€when€Route€840€is€extended€through€southwest€WilliamsonÐ 8 ˆ ÐCounty,€it€will€impact€property€in€that€county.€€Some€property€in€the€county€probably€will€beÐ $ t Ðpurchased€while€other€tracts€will€have€to€be€condemned.€€Other€property,€not€acquired€toÐ  ` Ðaccommodate€Route€840's€right„of„way,€probably€will€also€be€affected,€albeit€in€varying€degrees.€Ð ü L  ÐNone€of€this€means,€however,€that€this€lawsuit€ð!ð€this€controversy€ð!ð€is€an€action€ð ðthe€subject€matterÐ è 8  Ðof€which€involves€real€property.ðð€Ô#†XYXXXYߌ#ÔT.C.A.€ððÔ‡XYXXXYÔ€20„4„107.€€The€relief€granted€in€this€case€ð!ð€which€is€aÐ Ô$  Ðhundred€percent€of€that€sought€in€the€petition€ð!ð€would€not,€upon€execution,€òòdirectlyóó€impact€theÐ À  Ðownership€or€enjoyment€of€a€single,€identified€piece€of€property.€€As€previously€noted,€the€subjectÐ ¬ü  Ðmatter€of€this€lawsuit€focuses€on€the€Commissionerððs€duties€with€respect€to€Route€840€throughÐ ˜è  Ðsouthwest€Williamson€County,€nothing€more€and€nothing€less.€€If€and€when€the€CommissionerÐ „Ô  Ðdecides€to€condemn€property€in€this€part€of€Williamson€County€in€order€to€build€Route€840,€theÐ pÀ Ðcondemnation€lawsuits€required€to€achieve€this€objective€will€be€suits€ð ðthe€subject€matter€of€whichÐ \¬ Ðinvolves€real€property.ðð€€Those€suits€will€have€to€be€filed€in€an€appropriate€court€in€WilliamsonÐ H˜ ÐCounty.Ð 4„ ÐÌà@)ìàC.ˆÐ  \ Ðà  àà ` àà ¸ àà  àà h àà À àà  àà p àà È àà  àà x àÌà  àAs€an€alternative€basis€of€power,€the€petitioners€rely€upon€Ô#†XYXXXYz#ÔT.C.A.€ððÔ‡XYXXXYÔ€29„25„101€(2000),€whichÐ ä4 Ðgrants€to€ð ðchancellorsðð€the€ð ðpower€to€issue€writs€of€mandamus.ðð€€While€there€can€be€no€question€thatÐ Ð  Ða€chancellor€has€the€power,€òòin€a€case€properly€before€that€chancelloróó,€to€issue€a€writ€of€mandamusÐ ¼  Ðwhen€the€requesting€party€makes€out€a€case€for€such€relief,€that€statute,€by€itself,€does€not€grantÐ ¨ø Ðsubject€matter€jurisdiction€in€the€instant€case.€Ô#†XYXXXYj•#ÔT.C.A.€ððÔ‡XYXXXYÔ€29„25„101€identifies€a€type€of€remedy€thatÐ ”ä Ða€chancellor€is€empowered€to€grant;€it€does€not€identify€a€type€of€controversy€that€he€or€she€isÐ €Ð Ðempowered€to€hear.Ð l¼ ÐÌà  àEven€if€we€were€to€construe€Ô#†XYXXXY—#ÔT.C.A.€ððÔ‡XYXXXYÔ€29„25„101€as€a€grant€of€subject€matter€jurisdiction,€itÐ D!” Ðis€a€general€statute€that€must€give€way€to€a€specific€statute€ð!ð€such€as€Ô#†XYXXXYá˜#ÔT.C.A.€ððÔ‡XYXXXYÔ€4„4„104,€the€statuteÐ 0"€  Ðupon€which€the€Commissioner€relies.€€As€we€will€see,€that€statute€has€been€construed€to€require€suitsÐ #l! Ðagainst€commissioners€of€departments€of€state€government€to€be€filed€in€Davidson€County.€€ð ðAÐ $X" Ðspecific€statute€prevails€over€a€general€one.ðð€€ò òòòMorris€v.€Snodgrassó óóó,€871€S.W.2d€484,€487€(Tenn.€Ct.Ð ô$D # ÐApp.€1993).Ð à%0!$ ÐÌà@ll)ìàVI.ˆÐ ¸'#& ÐÌà  àThe€Tennessee€Constitution€mandates€that€the€State€can€only€be€sued€as€the€GeneralÐ )à$( Ðâ âAssembly€directs€by€law.€€Art.€I,€Section€17,€Tennessee€Constitution.€€We€believe€that€the€GeneralÐ |*Ì%) ÐAssembly€has€clearly€prescribed€that€a€suit€against€a€commissioner€in€his€or€her€official€capacity,€òòi.e.óó,Ð ° Ða€suit€against€the€State,€must€be€brought€in€Davidson€County.Ð œì Ðâ âÌà  àAs€we€have€seen,€Ô#†XYXXXYÆ™#ÔT.C.A.€ððÔ‡XYXXXYÔ€4„4„104(a)Ô#†XYXXXYñ#ÔÔ‡XYXXXYÔ€provides€as€follows:Ð tÄ ÐÌà  àà8 ` àEach€department€shall€maintain€a€central€office€at€the€capitol,€whichÐ L œ Ðshall€be€the€official€residence€of€each€commissioner,€or€head€ofÐ 8 ˆ Ðdepartment.Ð$ t` x` x ÐÌThis€statute€ð ðlocates€each€department,€and€fixes€the€commissionerððs€official€residence,€at€the€capitolÐ ü L  Ðin€Nashville,€Davidson€County.ðð€€ò òòòDelta€Loan€&€Finance€Co.€v.€Longó óóó,€206€Tenn.€709,€713,€336Ð è 8  ÐS.W.2d€5,€6€(1960)€(construing€T.C.A.€ðð€4„404,€the€precursor€of€T.C.A.€ðð€4„4„104).€€ð ðThe€òòsitusóó€ofÐ Ô$  Ðsuch€department€and€official€residence€is,€therefore,€local€like€that€of€a€municipal€corporation.ðð€€ò òòòIdó óóó.Ð À  Ð(emphasis€added).€€The€Commissioner€is€the€head€of€TDOT€pursuant€to€T.C.A.€ðð€4„3„2302(a)Ð ¬ü  Ð(1998).Ð ˜è  ÐÑ  ÑÌÑ  Ñà  àCases€interpreting€T.C.A.€ðð€4„4„104€or€its€substantially€similar€predecessor€have€found€thatÐ pÀ Ðthe€general€rule€ð ðis€that€a€commissioner€or€head€of€a€department€of€state€government€may€be€suedÐ \¬ Ðas€such€only€in€the€county€of€his€official€residenceð8ð.ðð€€ò òòòDelta€Loanó óóó,€206€Tenn.€at€713,€336€S.W.2dÐ H˜ Ðat€6.׃×Ý ƒ#ÃÝòòÚ  Ú3Ú  ÚóóÝ  Ý×  ×€€€òòSee€alsoóó€ò òòòMorrisó óóó,€871€S.W.2d€at€485€(ð ðT.C.A.€ðð€4„4„104,€as€interpreted€by€the€courts€of€thisÐ 4„ Ðstate€for€many€years,€establishes€venue€for€suits€against€state€officials€such€as€these€defendants€inÐ  p ÐDavidson€County.ðð);€ò òòòBarry,€ó óóó1994€WL€485588€at€*2€(Tenn.€Ct.€App.€1994)€(ð ðIt€is€well€settled€thatÐ  \ Ða€lawsuit€brought€against€a€state€officer€in€his€or€her€official€capacity€must€be€brought€in€the€countyÐ øH Ðof€the€officerððs€official€residence.ðð)€(citing€ò òòòDeltaó óóó€and€ò òòòMorrisó óóó)Ô%† XYXXXY>ž%ÔÔ!‡ XYXXXY!Ô.Ô#†XYXXXY¦#ÔÔ‡XYXXXYÔ€€òòSee€alsoóóÔ#†XYXXXYÕ¦#ÔT.C.A.€ððÔ‡XYXXXYÔòò€óó29„25„103€(TheÐ ä4 Ðwrit€[of€mandamus]€is€returnable...,€if€against€a€public€officer...,€in€the€county€in€which€the€office€isÐ Ð  Ðkept....).Ð ¼  ÐÌà  àThe€effect€of€Ô#†XYXXXY3§#ÔT.C.A.€ððÔ‡XYXXXYÔ€4„4„104(a)€in€the€instant€case€is€to€establish€the€CommissionerððsÐ ”ä Ðofficial€residence€at€the€ð ðcentral€officeðð€of€TDOT€ð ðat€the€capitolðð€in€Davidson€County.€€The€petitionÐ €Ð Ðacknowledges,€as€it€must,€that€the€Commissionerððs€ð ðprincipal€office€is€located€at€the€same€addressÐ l¼ Ðas€TDOT,ðð€which€latter€address€the€petition€identifies€as€ð ðSuite€700,€James€K.€Polk€Building,Ð ° ÐNashville,€Tennessee€37243.ððÐ œì ÐÌà  àThe€petitioners,€recognizing€the€import€of€Ô#†XYXXXYb¨#ÔT.C.A.€ððÔ‡XYXXXYÔ€4„4„104(a),€argue€that€it€pertains€toÐ tÄ Ðvenue,€and€not€subject€matter€jurisdiction.€€They€then€argue€that€the€Commissioner€did€not€expresslyÐ `° Ðraise€the€issue€of€venue€on€appeal€and€is,€therefore,€precluded€from€arguing€it€now.Ð L œ ÐÌà  àWe€recognize€that€some€of€the€reported€cases€have€tended€to€blur€the€line€between€theÐ $ t Ðconcepts€of€subject€matter€jurisdiction€and€venue.€€Loose€language€in€some€of€the€cases€hasÐ  ` Ðcontributed€to€the€confusion€surrounding€the€distinction€between€these€concepts.€€This€subject€wasÐ ü L  Ðclarified€by€the€Supreme€Court€in€the€1996€case€of€ò òòòMeighan€v.€U.S.€Sprint€Communicationsó óóó,€924Ð è 8  ÐS.W.2d€632€(Tenn.€1996),€wherein€the€High€Court€said€the€following:Ð Ô$  ÐÌà  àà8 ` àSubject€matter€jurisdiction€and€venue€are€two€separate€concepts.€Ð ¬ü  ÐSubject€matter€jurisdiction€concerns€the€authority€of€a€particular€courtÐ ˜è  Ðto€hear€a€particular€controversy.€€It€relates€to€the€nature€of€the€causeÐ „Ô  Ðof€action€and€the€relief€sought.€€It€is€generally€defined€by€theÐ pÀ Ðconstitution€or€statute€and€conferred€by€the€authority€that€organizesÐ \¬ Ðthe€courtsð8ð.ÐH˜` x` x ÐÌà8  àà8` Ð Ð àVenue,€on€the€other€hand,€is€a€concept€based€on€privilege€of€andÐ  p Ðconvenience€to€the€parties.€€It€is€generally€not€a€condition€precedentÐ  \ Ðto€the€courtððs€power,€but€relates€instead€to€the€appropriateness€of€theÐ øH Ðlocation€of€the€action.€€While€there€is€much€debate€regarding€theÐ ä4 Ðconnectedness€between€the€two€concepts,€our€rules€of€civil€procedureÐ Ð  Ðhave€clearly€distinguished€between€the€two.€€Improper€venue€is€aÐ ¼  Ðmatter€which€is€waived€unless€contested€in€the€first€pleading.€€SubjectÐ ¨ø Ðmatter€jurisdiction,€on€the€other€hand,€cannot€be€waived,€because€itÐ ”ä Ðis€the€basis€for€the€courtððs€authority€to€act.ЀÐ` x` x ÐÌò òòòIdó óóó.€at€639€(citations€omitted).Ô#†XYXXXYðª#ÔÔ‡XYXXXYÔÐ X ¨ ÐÌà  àIn€our€judgment,€the€issue€before€us€is€the€ð ðauthority€of€[the€Williamson€County€ChanceryÐ 0"€  ÐCourt]€to€hear€a€particular€controversy,ðð€that€is,€a€suit€against€the€Commissioner€to€compel€him€toÐ #l! Ðperform€the€duties€of€his€office€as€they€pertain€to€Route€840€in€southwest€Williamson€County.€€TheÐ $X" ÐGeneral€Assembly€has€exercised€its€constitutional€grant€of€authority€to€prescribe€that€such€aÐ ô$D # Ðcontroversy€must€be€litigated€in€an€appropriate€court€in€Davidson€County.€€This€is€a€question€ofÐ à%0!$ Ðsubject€matter€jurisdiction,€not€one€of€venue.Ð Ì&"% ÐÌà@MM(ìàVII.ˆÐ ¤(ô#' ÐÌà  àIn€summary,€we€find€and€hold€that€the€Williamson€County€Chancery€Court€was€withoutÐ |*Ì%) Ðsubject€matter€jurisdiction,€òòi.e.óó,€without€power,€to€hear€the€instant€case.€€Because€a€court€cannotÐ h+¸&* Ðexercise€jurisdiction€that€has€not€been€expressly,€or€by€necessary€implication,€conferred€upon€it,€itÐ ° Ðfollows€that€the€judgment€of€the€Williamson€County€Chancery€Court€in€the€instant€case€is€void€andÐ œì Ðof€no€effect.€€òòSee€ò òDishmon€v.€Shelby€State€Community€Collegeó óóó,€15€S.W.3d€477,€480€(Tenn.€Ct.Ð ˆØ ÐApp.€1999),€òòperm.€app.€deniedóó€April€10,€2000.Ð tÄ ÐÌà0  àà ° àà@..(ì(#(#àVIII.ˆÐ L œ ÐÌà  àThe€judgment€of€the€trial€court€is€reversed€in€its€entirety€and€the€petition€is€dismissed.€€CostsÐ $ t Ðat€the€trial€court€level€and€on€appeal€are€taxed€to€the€petitioners.€€This€case€is€remanded€to€the€trialÐ  ` Ðcourt€for€collection€of€costs€of€the€trial€court,€pursuant€to€applicable€law.Ô%† XYXXXYî³%ÔÔ!‡ XYXXXY!ÔÐ ü L  ÐÔ#†XYXXXYO»#ÔÌà  àà ` àà ¸ àà  àà h àà À àà  àà p àà È àà  àà x àÌÌà  àà ` àà ¸ àà  àà h àà À àà  à___________________________________€Ð ¬ü  Ðà  àà ` àà ¸ àà  àà h àà À àà  àCHARLES€D.€SUSANO,€JR.,€JUDGE