ÿWPC  ¿†À(ºáhzªx2âO{å@@F½°,zµŸVUÂQ6vw/ˆž“’¥×ü=¢T¿ß~0«” Úû³^éÍ›ÕkAä´ßÝ ¬pe‚—4½)wûO>áÆhaæûQð× *¦Kæ²Ö6Ró¿ù[á²ò“Šýœf«¢Êägz{ !9û¥u‡®Ü ¨0Þ¸•K*‘³®fÓyêx—× UO«¤‰9Fìí?ì*)(÷P8ä†q 6t] ÕvðaUü»ÜÀø¥Bi–qàÞë7ÄOjƒÞcß Ô²fgƒ|Å÷zàC2TÆO™ku=¡(Ówé—wçùà-¹æ<ú2q\3¹R¢ ù‰ö¤nÏ~Æ¡LgCðýœ+å¿}Á¹™ÎBëK—©µTwöŽ T‹µ›ÚÃGè|D+¹KÒ¢: ÊéI¬¹«|)‡KJ]† L³A}kŠ’8š<‡!W _ÁÅQ*HÛÿ˜7Thã6:êfÒB´}ïˆøŒs¨d]‘´€-v"+Õ¿Eî™ß Ïlaë5Pç1à/iW'ª¡mŒ#îÆ£¾ËÃ$šÈ8wi²¨l›=mM,Þ¨{iF6”wNI žb¹”oú ãP5=ˆšÏ¦U9äæ*# LUNW %¥ 0(«U:Ów@ 4Mabplxbä 0lì 0DXbœ AQ¤ 0Dõb9bAbIQbY*ab‹ b“ b› b U:Ÿ Ÿ bÙ "á b  Æ" 0Dè 0D, Bp p D/ B¼ D3Ù ˜HP LaserJet 4HPPCL5MS,ü,,,,,ü0nLàÏ(ÈhH  Z 6Times New Roman RegularX($¡¡,c½¬AZ‹"Arial Regular - e-r‚---D---D-e-Ó€Ìqæ$3|x%-- ù- bÑ  ÑÑ#€ÖØXÿÿd#ÑØØØØÑ  ÑÑ € Ñ- ù-((3üÝ$¤¤Ý ƒ!ÝÝ  Ýà  àòòÚ  Ú0Ú  Úóó(#Ã$òòÚ  Ú0Ú  Úóó-2-!"#&Cþÿ<< Cÿÿ($$””ò òÚ  Ú1Ú  Úó ó-2-- ù-- ù--3- Ý ƒ"¯"ÝÝ  ÝÔ€XºXXXÔÔ€ƒXXºÔÓ  ÓÔ Ad ÔFILEDÔ€XºXƒÔÐ  ÐÌò òSeptember€11,€1998Ð šš ÐÌCecil€Crowson,€Jr.ÌÔ€ôLðôXXºÔAppellate€Court€Clerkó ó-4-- ù-,c½¬AZ‹"Arial Regular- ù- Ñ € ÑÑ  Ñ- ù- Ñ € уLevel 1Level 2Level 3Level 4Level 5(3¯$¢¢Ý ƒ!ÝÝ  Ý(3¯$££Ý ƒ!ÝÝ  Ý d(('÷ÿ dxdüÿP Pd$$$$'ÿÿdxdÝ ƒ!ÝÝ  Ýñ-ñ›ñ-ññ-ñ›ñ-ñÒ„°ÒÒ4°ÒÔ€XºXXXÔò òÓ  ÓÑTR[¤ AØ'ÿ Legal3Ø' AØ'ÿ Legalÿ3Ø'TÑÑ€ÑÑ7€,õXXdðXXdð7ÑÑ€-áÑÑ€ §ÑÑ€ S6Ññ-ñœßr€)<,(j 8` `€€@Eô±` ttx$,°ð Õrß›ñ-ñIN€THE€COURT€OF€CRIMINAL€APPEALS€OF€TENNESSEE€Ð ° ÐÌAT€KNOXVILLEÌÌMARCH€1998€SESSIONÌÌÌó ó)ò òÐ $ t ÐÓoÓSTATE€OF€TENNESSEE,à ” àà ì àà D àó ó)Ð  Z Ðà Œ àà ä àà < àà ” àà ì àà D à)€C.C.A.€No.€ñ-ñœñ-ññ-ñœñ-ñ03C01ñ-ñ›ñ-ññ-ñ›ñ-ñ„9708„CR„00357Ìà Œ àAppellee,à < àà ” àà ì àà D à)Ð Ü ,  Ðà Œ àà ä àà < àà ” àà ì àà D à)€ñ-ñœñ-ññ-ñœñ-ñRoaneñ-ñ›ñ-ññ-ñ›ñ-ñ€CountyÌV.à Œ àà ä àà < àà ” àà ì àà D à)Ð ¨ø  Ðà Œ àà ä àà < àà ” àà ì àà D à)€Hon.€€E.€Eugene€ñ-ñœñ-ññ-ñœñ-ñEblenñ-ñ›ñ-ññ-ñ›ñ-ñ,€JudgeÌò òKENNETH€F.€WALKER,ó óà ” àà ì àà D à)€Ð tÄ  Ðò òà Œ àà ä à€à < àó óà ” àà ì àà D à)€(Vehicle€Search)à L àà ¤ àà ü! àÐ `°  Ðà Œ àAppellant.à < àà ” àà ì àà D à)€Ð Lœ Ðà Œ àà ä àà < àà ” àà ì àà D à)ÌÌÌÌÌFOR€THE€APPELLANT:à ” àà ì àà D àFOR€THE€APPELLEE:Ð ° ÐÌPatrick€Cooleyà < àà ” àà ì àà D àJohn€Knox€WalkupÐ |Ì ÐCooley,€Cooley€&€Ageeà ” àà ì àà D àAttorney€General€&€Reporterà ü! àÐ b² ÐP.O.€Box€730à < àà ” àà ì àÐ H˜ ÐKingston,€TN€37763à ” àà ì àà D àSandy€C.€PatrickÐ .~ Ðà Œ àà ä àà < àà ” àà ì àà D àAssistant€Attorney€GeneralÌà Œ àà ä àà < àà ” àà ì àà D àñ-ñœñ-ññ-ñœñ-ñCordellñ-ñ›ñ-ññ-ñ›ñ-ñ€Hull€Building,€ñ-ñœñ-ññ-ñœñ-ñ2dñ-ñ›ñ-ññ-ñ›ñ-ñ€FloorÌà Œ àà ä àà < àà ” àà ì àà D à425€Fifth€Avenue€NorthÌà Œ àà ä àà < àà ” àà ì àà D àNashville,€TN€37243„0943€€€€Ìà Œ àà ä àà < àà ” àà ì àà D àÌà Œ àà ä àà < àà ” àà ì àà D àCharles€E.€HawkÌà Œ àà ä àà < àà ” àà ì àà D àDistrict€Attorney€GeneralÌà Œ àà ä àà < àà ” àà ì àà D àÌà Œ àà ä àà < àà ” àà ì àà D àRoger€ñ-ñœñ-ññ-ñœñ-ñDelpñ-ñ›ñ-ññ-ñ›ñ-ñÌà Œ àà ä àà < àà ” àà ì àà D àAssistant€District€Attorney€GeneralÌà Œ àà ä àà < àà ” àà ì àà D àP.O.€Box€703Ìà Œ àà ä àà < àà ” àà ì àà D àKingston,€TN€37763ÌÌÌÌÌÌOPINION€FILED:€_______________________ÌÌÌò òREVERSEDÐ  0\+0 Ðó óÌò òPAUL€G.€SUMMERS,ó óÐ Þ1.-2 ÐJudgeÌò òÓÓÓ  ÓÌÌÌÌÐ ;`6< ÐÑ S6ÑÑ  ÑÑ7€,õXXdðXXdð7ÑØØØØÑ  ÑÑ€ÑÑ  ÑO€P€I€N€I€O€Nó óÐ ° ÐÓ  Óà Œ àÌà Œ àThÔ  Ôe€appellant,€Kenneth€F.€Walker,€pled€òònolo€contendereóó€to€a€charge€ofÐ T¤ Ðpossession€of€over€seventy€pounds€of€a€Schedule€VI€controlled€substance€withÏintent€to€deliver.€€The€appellant,€however,€reserved€the€right€to€appeal€a€certifiedÏquestion€of€law€pursuant€to€Rule€37(b)(2)(I)€of€the€Tennessee€Rules€of€CriminalÏProcedure.ÌÌà Œ àThe€trial€court€denied€the€appellantððs€motion€to€suppress€the€evidenceÏobtained€during€a€vehicle€search€and€entered€an€order€allowing€the€appeal€of€theÏcertified€question€of€law.€€Therefore,€the€appellant€presents€two€issues€for€ourÏreview:€ÌÓÓà Œ à(1)€whether€the€trial€court€erred€in€overruling€his€motion€to€suppress€Ìà Œ àon€the€ground€that€the€roadblock€or€checkpoint€on€the€Airport€RoadÌ€à Œ àexit€off€Interstate€40€in€ñ-ñœñ-ññ-ñœñ-ñRoaneñ-ñ›ñ-ññ-ñ›ñ-ñ€County,€Tennessee€is€not€establishedÐ h Ðà Œ àand€operated€in€a€manner€consistent€with€Article€I,€Section€7€of€the€¼à Œ àTennessee€Constitution;€andÌÌà Œ à(2)€whether€the€trial€court€erred€in€overruling€the€appellantððs€motion€to€¼à Œ àsuppress€based€on€a€motor€vehicle€stop,€detention,€search€andÌà Œ àseizure€of€the€appellant€by€law€enforcement€officers€in€Roane€County,Ìà Œ àTennessee€conducting€a€roadblock€in€violation€of€the€appellantððsÌà Œ àrights€under€Article€I,€Section€7€of€the€Tennessee€Constitution.ÌÌÓWÓÌà Œ àAfter€carefully€reviewing€the€record€in€this€case,€we€respectfully€reverseÏthe€judgment€of€the€trial€court€and€dismiss€the€charge€against€the€appellant.ÌÌÓ  Óà @Œ àI.€€FACTSÌÓ  Óà Œ àOn€the€afternoon€of€May€18,€1996,€Deputy€Dennis€Worley€of€the€RoaneÏCounty€Sheriffððs€Department,€along€with€jailer€Joe€Brock€of€the€Roane€CountyÏSheriffððs€Department,€conducted€a€roadblock€just€inside€the€Roane€County€lineÏon€the€Airport€Road€exit€off€of€Interstate€40.€€The€appellant€was€travelingÏeastbound€on€Interstate€40.€€€Two€large€yellow€signs€that€stated€ð ðñ-ñœñ-ññ-ñœñ-ñDUIñ-ñ›ñ-ññ-ñ›ñ-ñ€DrugÏñ-ñÑ-áÑÑ€ÑÑ  ÑÑ  Ññ-ññ-ñÑ-áÑÑ€ÑÑ  ÑÑ  ÑÑ-áÑÑ€ÑÑ  ÑÑ  ÑÑ-áÑÑ€ÑÑ  ÑÑ  ÑÑ-áÑÑ€ÑÑ  ÑÑ  Ññ-ñCheckpoint€Aheadðð€were€placed€on€eastbound€Interstate€40€just€west€of€AirportÏRoad.€€One€sign€was€placed€in€the€median,€and€another€was€placed€on€theÐ Ø8(4: ÐÑ-áÑÑ€ÑÑ  ÑÑ  Ññ-ñÑ-áÑÑ€ÑÑ  ÑÑ  ÑÑ-áÑÑ€ÑÑ  ÑÑ  ÑÑ-áÑÑ€ÑÑ  ÑÑ  Ññ-ñshoulder€of€the€roadway,€just€before€the€Roane€County€line.€€€Just€past€the€signs,Ïthe€interstate€curves€immediately€to€the€right€and€the€Airport€Road€exit€appears.€€€ÏÌà Œ àAt€approximately€5:45€p.m.,€the€appellant€approached€the€roadblock€thatÏhad€been€established€at€the€end€of€the€Airport€Road€exit€ramp€off€of€InterstateÏ40.€€€€€According€to€the€testimony€at€the€motion€to€suppress€hearing,€DeputyÏWorley€explained€the€roadblock€to€the€appellant€and€determined€that€theÏappellant€did€not€appear€to€be€impaired.€€Deputy€Worley€visually€inspected€theÏinside€of€the€appellantððs€car€and€saw€no€contraband€inside€the€vehicle.€€€ÌÌà Œ àHowever,€according€to€Deputy€Worleyððs€testimony,€he€looked€for€certainÏð ðindicatorsðð€that€the€appellant€may€be€carrying€drugs.€€€First,€older€model€carsÏwith€large€cargo€areas€are€suspicious.€€Second,€the€key€ring€for€the€car€had€onlyÏtwo€keys€on€it,€indicating,€according€to€Worley,€that€the€car€is€a€rental,€that€itÏbelongs€to€someone€else,€or€that€the€key€ring€is€being€passed€to€severalÏindividuals€so€there€are€no€personal€keys€on€there.€€Third,€Deputy€Worley€noticedÏfood€wrappers€in€the€floorboard€of€the€front€passengerððs€side€of€the€car€and€thatÏthere€was€a€large€pile€of€clothing,€a€pillow,€and€a€blanket€on€the€back€seat€of€theÏcar.€€Also,€on€the€seat€next€to€the€appellant€were€a€cellular€telephone,€a€roadÏatlas,€and€some€handwritten€directions€on€a€scratch€pad.€€In€addition,€accordingÏto€Deputy€Worley,€the€appellant€had€several€red€peppers,€which€some€peopleÏbelieve€mask€odor€and€prevent€drug„sniffing€dogs€from€detecting€drugs,Ïscattered€along€the€dash€of€his€vehicle.ÌÌà Œ àDuring€his€stop€of€the€appellant,€Deputy€Worley€asked€the€appellant€whyÏhe€had€gotten€off€the€interstate€at€this€remote€exit,€especially€since€there€were€noÏrestaurants€or€service€stations€there.€€The€appellant€indicated€that€he€wasÐ 09€48ˆ ÐÑ §ÑÑ€ÑÑ  Ññ-ñÑ §ÑÑ€ÑÑ  ÑÑ §ÑÑ€ÑÑ  Ññ-ñsightseeing;€and€when€asked€by€Worley€what€sights€he€was€looking€for,€theÏappellant€did€not€offer€a€reply.ÌÌà Œ àDeputy€Worley€asked€the€appellant€if€he€could€search€his€car,€but€theÏappellant€refused€to€consent€to€a€search.€€€€Deputy€Worley€told€the€appellant€thatÏbased€on€the€evidence€in€plain€view€in€the€car,€the€appellantððs€attempt€to€coverÏpapers,€and€his€nervous€demeanor,€the€deputy€believed€he€had€reasonableÏsuspicion€to€allow€a€canine€sniff€of€the€vehicle.€€Worley€told€the€appellant€to€pullÏhis€car€off€the€road€onto€the€shoulder.ÌÌà Œ àWorley€told€the€appellant€to€stay€inside€the€car,€and€Brock€watched€theÏappellant€so€that€he€did€not€attempt€to€flee€or€use€a€weapon.€€Worley€got€his€dogÏand€had€him€sniff€the€appellantððs€car.€€The€dog,€King,€began€scratching€the€trunkÏarea€of€the€car.€€Worley€returned€the€dog€to€his€vehicle€and€then€went€back€to€theÏappellantððs€car.€€€He€asked€the€appellant€to€step€out€of€the€car.€€€Worley€did€a€patÏdown€search€of€the€appellant€and€took€his€car€keys€from€him.€€Worley€and€BrockÏasked€the€appellant€€to€stand€away€from€the€car€while€they€inspected€the€trunk.€ÏHowever,€according€to€Deputy€Worley,€the€appellant€apparently€would€not€standÏaway€from€the€car,€so€Brock€put€the€appellant€in€the€back€of€the€patrol€car.€€ÌÌà Œ àWorley€opened€the€trunk€of€the€appellantððs€car€and€found€several€bundlesÏof€a€substance€that€smelled€like€marijuana€under€a€drop€cloth.€€Some€of€theÏbundles€were€marked€according€to€weight,€with€the€sum€totaling€about€twoÏhundred€pounds.€€The€appellant€was€then€arrested.ÌÌÓ  ÓII.€€ARGUMENTSÌÓ  Óà Œ àThe€appellant€argues€that€the€Roane€County€Sheriffððs€DepartmentððsÏroadblock€is€òòper€ñ-ñœñ-ññ-ñœñ-ñseñ-ñ›ñ-ññ-ñ›ñ-ñóó€unconstitutional.€€He€contends€that€the€roadblock€is€ð ðset€upÐ P7 26 Ðas€a€ruseðð€and€ð ðnot€designed€to€combat€the€ñ-ñœñ-ññ-ñœñ-ñDUIñ-ñ›ñ-ññ-ñ›ñ-ñ€problem€that€exists€in€this€state.ðð€Ð 09€48 ÐHe€further€asserts€that€the€roadblock€is€intrusive€and€is€basically€a€€ð ðððñ-ñœñ-ññ-ñœñ-ñsearchpointñ-ñ›ñ-ññ-ñ›ñ-ñððÏwhereby€the€officers€seek€to€conduct€warrantless€searches€of€vehicles€that€haveÏlawfully€taken€the€interstate€exit.ððÌÌà Œ àIn€support€of€his€argument,€the€appellant€addresses€several€aspects€of€theÏroadblock.€€€First,€the€appellant€recognizes€that€the€Roane€County€SheriffððsÏDepartment€has€attempted€to€establish€guidelines€for€sobriety€roadblocks,€butÏcontends€that€the€guidelines€do€not€authorize€ð ðthe€scheme€employed€by€DeputyÏWorley€at€the€Airport€Road€exitðð€nor€authorize€a€checkpoint€to€search€vehicles€forÏnarcotics.€€Specifically,€the€appellant€notes€instructions€three€through€six€inÏSection€III€of€the€departmentððs€guidelines€for€conducting€sobriety€roadblocksÏ(See€Appendix€A).€€€The€appellant€asserts€that€pursuant€to€the€sheriffððsÏdepartmentððs€own€guidelines,€there€was€no€suspicion€that€he€was€impaired€fromÏalcohol€or€drugs€and€therefore,€would€not€be€a€threat€to€the€traveling€public.€ÏThus,€pursuant€to€the€Roane€County€Sheriffððs€Department€policy,€he€should€haveÏbeen€allowed€to€proceed.€€Instead,€Deputy€Worley,€who€testified€that€he€had€aÏð ðhunchðð€that€the€appellant€was€concealing€contraband,€detained€the€appellantÏfurther.ÌÌà Œ àThe€appellant€asserts€that€other€aspects€of€the€roadblock€wereÏinconsistent€with€constitutional€standards€as€well.€€First,€the€decision€to€establishÏthe€roadblock,€the€location€of€the€roadblock,€and€the€time€selected€for€theÏroadblock€were€all€determined€by€Deputy€Worley.€€Furthermore,€the€appellantÏargues€that€the€procedures€used€by€the€sheriffððs€department€for€conductingÏsobriety€roadblocks€were€written€by€Worley€and€then€simply€ratified€by€the€sheriff.€ÏSecond,€supervisory€authority€to€establish€the€roadblock€was€not€sought.€€€TheÏappellant€cites€the€procedure€that€Deputy€Worley€notified€the€sheriff€by€leaving€aÏâ âphone€message€or€pager€message€that€the€roadblock€was€going€to€beÐ P7 26 Ðestablished€as€well€as€the€fact€that€Deputy€Worley€would€decide€who€wouldÏparticipate€in€the€roadblock€with€him.Ìâ âÌà Œ àFinally,€the€appellant€notes€that€as€in€òòState€v.€Downeyóó,€945€ñ-ñœñ-ññ-ñœñ-ñS.W.2dñ-ñ›ñ-ññ-ñ›ñ-ñ€102Ð P   Ð(Tenn.€1997),€the€lack€of€supervisory€decision„making€was€indicated€by€theÏabsence€of€publicity€surrounding€the€roadblock€in€this€case.€€Deputy€WorleyÏtestified€that€there€was€no€publicity€surrounding€this€roadblock.€€The€appellantÏemphasizes€that€all€courts€that€have€addressed€the€constitutionality€ofÏroadblocks€have€consistently€recognized€the€importance€of€supervisory€authorityÏin€order€to€minimize€the€risk€of€intrusion€on€individual€liberties€by€officers€in€theÏfield.€€Thus,€the€absence€of€publicity€is€a€factor€to€be€considered€in€determiningÏthe€reasonableness€of€the€roadblock€in€this€case.ÌÌà Œ àThe€state,€however,€argues€that€the€roadblock€was€operated€inÏaccordance€with€constitutional€principles.€€€First,€the€state€notes€the€RoaneÏCounty€Sheriffððs€Departmentððs€policy€and€procedure€statement€for€conductingÏroadblocks.€€The€state€further€asserts€that€ð ðDeputy€Worley€stated€that€each€timeÏa€roadblock€was€planned,€department€policy€required€him€to€notify€either€theÏsheriff€or€the€chief€deputy€sheriff€for€approval.ðð€€€Without€such€supervisoryÏauthority,€a€roadblock€would€not€be€permitted.ÌÌà Œ àThe€state€contends€that€the€roadblock€at€which€the€appellant€was€stoppedÏwas€conducted€in€accordance€with€established€procedure€and€with€supervisoryÏpermission.€€€€It€also€notes€that€Deputy€Worley€would€discuss€each€roadblockÏwith€the€sheriff€to€ensure€that€each€one€was€uniform.€€The€state€further€arguesÏthat€the€officers€at€the€roadblock€usually€wore€an€orange€vest€with€the€wordÏð ðSheriffðð€written€across€it€in€black€lettering.€€Furthermore,€the€state€asserts€thatÏâ âthe€area€for€the€roadblock€was€well€marked€with€police€vehicles:€a€police€car€withÐ P7 26 Ðits€flashing€lights€on€at€the€scene€and€the€ñ-ñœñ-ññ-ñœñ-ñD.A.R.E.ñ-ñ›ñ-ññ-ñ›ñ-ñ€wagon,€which€was€markedÏwith€the€logo€of€the€Roane€County€Sheriffððs€Department.Ìâ âÌà Œ àThe€state€maintains€that€the€purpose€of€the€roadblock€in€this€case€was€toÏfind€alcohol€or€drug„impaired€drivers,€not€to€mislead€the€public€as€the€appellantÏcontends.€€It€contends€that€every€car€was€stopped€that€took€the€exit€off€ofÏInterstate€40.€€As€each€vehicle€stopped,€Deputy€Worley€would€explain€to€theÏdriver€that€this€was€a€ñ-ñœñ-ññ-ñœñ-ñDUIñ-ñ›ñ-ññ-ñ›ñ-ñ€and€drug€roadblock€and€engage€the€person€in€aÏconversation,€trying€to€detect€if€alcohol€or€drug€impairment€was€present.€€TheÏstate€maintains€that€the€detention€was€very€brief,€lasting€for€only€a€few€seconds.ÌÌà Œ àThe€state€contends€that€the€only€similarity€in€the€instant€case€and€òòDowneyóóÐ P  Ðis€the€lack€of€local€publicity€before€the€roadblock.€€The€state€notes€that€theÏabsence€of€publicity€is€only€one€factor€to€be€considered€when€determining€theÏreasonableness€of€a€roadblock.€€€The€state€argues,€however,€that€a€lack€ofÏpublicity€surrounding€a€roadblock€does€not€necessarily€make€the€roadblockÏunreasonable;€but€in€many€cases,€the€absence€of€publicity€increases€theÏdeterrent€effect€upon€motorists.ÌÌà Œ àTherefore,€the€state€maintains€that€the€roadblock€in€this€case€was€notÏestablished€and€operated€in€violation€of€Article€I,€Section€7€of€the€TennesseeÏConstitution.ÌÌÓ  ÓIII.€€òòState€v.€Downeyóó,€945€ñ-ñœñ-ññ-ñœñ-ñS.W.2dñ-ñ›ñ-ññ-ñ›ñ-ñ€102€(Tenn.€1997)Ð Ð/ +. ÐÓ@?ÓÌà Œ àIn€addressing€the€issues€presented€for€our€review,€we€are€guided€by€ourÏSupreme€Courtððs€decision€in€òòState€v.€Downeyóó,€945€ñ-ñœñ-ññ-ñœñ-ñS.W.2dñ-ñ›ñ-ññ-ñ›ñ-ñ€102€(Tenn.€1997).€€InÐ p5À04 Ðthat€case,€the€Court€addressed€the€issue€of€ð ðwhether€a€sobriety€roadblock€atÏwhich€police€officers€stop€and€question€motorists€whose€prior€conduct€isÐ 09€48 Ðunremarkable€and€free€from€suspicion€is€an€unreasonable€seizure€in€violation€ofÏarticle€I,€section€7€of€the€Tennessee€Constitution.ðð€€òòId.óó€at€103.€€Ð à ÐÌà Œ àIn€reaching€its€decision€in€òòDowneyóó,€the€Court€noted€that€Article€I,€Section€7Ð P   Ðof€the€Tennessee€Constitution,€which€prohibits€unreasonable€searches€andÏseizures,€may€afford€citizens€of€Tennessee€greater€protection€than€the€FourthÏAmendment€of€the€United€States€Constitution.€€òòId.óó€at€106;€òòsee€alsoóó€òòState€v.Ð ð@  Ðñ-ñœñ-ññ-ñœñ-ñJacuminñ-ñ›ñ-ññ-ñ›ñ-ñóó,€778€ñ-ñœñ-ññ-ñœñ-ñS.W.2dñ-ñ›ñ-ññ-ñ›ñ-ñ€430€(Tenn.€1989);€òòMiller€v.€Stateóó,€584€ñ-ñœñ-ññ-ñœñ-ñS.W.2dñ-ñ›ñ-ññ-ñ›ñ-ñ€758€(Tenn.Ð Ð  Ð1979).€€In€òòDowneyóó,€our€Supreme€Court€adopted€the€balancing€test€provided€inÐ ° ÐòòMichigan€v.€Sitzóó,€496€U.S.€444€(1990)€ð ðas€the€appropriate€constitutional€standard,Ð à Ðso€that€when€a€seizure€occurs,€an€individualððs€reasonable€expectation€of€privacyÏis€not€subject€to€arbitrary€invasions€solely€at€the€unfettered€discretion€of€officersÏin€the€field,€and€the€seizure€is€carried€out€pursuant€to€a€plan€embodying€explicit,Ïneutral€limitations€on€the€conduct€of€individual€officers.ðð€€òòDowneyóó,€945€ñ-ñœñ-ññ-ñœñ-ñS.W.2dñ-ñ›ñ-ññ-ñ›ñ-ñ€atÐ ` Ð110.€€The€Court€held€ð ðthat€the€use€of€a€sobriety€roadblock,€although€a€seizure,Ïcan€be€a€reasonable€seizure€under€the€Tennessee€Constitution,€provided€it€isÏestablished€and€operated€in€accordance€with€predetermined€operationalÏguidelines€and€supervisory€authority€that€minimize€the€risk€of€arbitrary€intrusionÏon€individuals€and€limit€the€discretion€of€law€enforcement€officers€at€the€scene.ððÏòòId.óó€at€104.€€Ð P( #& ÐÌà Œ àThe€Court€outlined€several€aspects€of€the€roadblock€in€òòDowneyóó€that€wereÐ ,`'* Ðconsistent€with€constitutional€standards:Ìà Œ à1.€Cars€traveling€in€both€directions€were€stopped.€€ÌÓÓà Œ à2.€When€the€traffic€became€congested,€motorists€were€permitted€Ìà Œ àto€pass€through€the€roadblock.€€ÌÌÓ‰IÓÓÓà Œ à3.€The€discretion€of€the€individual€officers€at€the€scene€was€Ìà Œ àlimited€as€to€what€motorists€were€to€be€stopped.€€ÌÌÓ+JÓÓÓà Œ à4.€The€roadblock€was€conducted€in€a€safe€and€visible€area€and€à ü! àÐ P7 26 Ðà Œ àconsisted€of€uniformed€officers€and€marked€patrol€cars€with€Ìà Œ àflashing€blue€lights.ÌÓÞJÓÐ  :p59 ÐòòId.óó€€at€110.à ä àHowever,€several€aspects€of€the€roadblock€in€òòDowneyóó€were€notÐ ° Ðestablished€and€operated€in€a€manner€consistent€with€Article€I,€Section€7€of€theÏTennessee€Constitution:ÌÓÓ€à Œ à1.€€The€decision€to€set€up€a€roadblock€was€made€by€an€officer€Ð P   Ðà Œ àin€the€field.€ÌÌ€à Œ à2.€€The€location€for€the€roadblock€and€the€procedure€to€be€Ð  p  Ðà Œ àused€in€operating€the€roadblock€were€matters€left€to€the€Ìà Œ àdiscretion€of€an€officer€in€the€field.€€Ì€ÌÓÏLÓÓÓà Œ à3.€€No€supervisory€authority€was€sought€or€obtained,€and€noÌà Œ àadministrative€decisions€were€made€with€regard€to€these€Ìà Œ àcritical€factors.€€ÌÓMNÓà Œ àÌòòId.óóà Œ àÐ à ÐÌà Œ àOur€Supreme€Court€also€observed€that€two€factors€present€in€òòDowneyóóÐ P  Ðindicated€a€lack€of€administrative€or€supervisory€decision„making.€€First,€€theÏpresence€or€absence€of€publicity€surrounding€the€roadblock€is€one€factor€that€canÏbe€used€in€assessing€the€reasonableness€of€the€roadblock.€€òòId.óó€at€111€n.8.€€Ð ð@ ÐSecond,€the€Court€reasoned€that€the€absence€of€supervisory€or€administrativeÏdecision„making€may€have€contributed€to€creating€an€issue€regarding€theÏpurpose€of€the€roadblock.€€It€noted€that€the€stated€purpose€for€the€roadblock€inÏòòDowneyóó€was€to€check€driversðð€licenses.€€However,€the€record€revealed€that€theÐ p&À!$ Ðactual€purpose€was€to€detect€alcohol„impaired€motorists.€€The€Court€emphasizedÏthat€€ð ðthis€discrepancy€in€the€proof€is€a€reflection€of€the€overall€failure€by€lawÏenforcement€officers€to€establish€this€roadblock€in€a€manner€consistent€withÏadministrative€and€supervisory€oversight.ðð€€òòId.óó€at€111.€€Thus,€the€Court€concludedÐ ð-@), Ðthat€this€discrepancy€regarding€the€purpose€of€the€roadblock€was€also€a€factorÏthat€weighed€against€the€reasonableness€of€the€roadblock.ÌÌÓ  ÓIV.€ANALYSISÌÓ  Óà Œ àWe€now€address€the€aspects€of€the€roadblock€of€the€present€case.€€First,Ïthe€roadblock€in€this€case€was€conducted€in€a€remote€area€just€inside€the€RoaneÐ 09€48 ÐCounty€line€off€of€Interstate€40.€€Therefore,€on€the€day€in€question,€only€motoristsÏtraveling€eastbound€on€Interstate€40€were€affected€by€the€roadblock.€€€ÌÌà Œ àSecond,€Deputy€Worley€testified€that€he€would€decide€the€time€andÏlocation€of€the€roadblock€and€then€notify€the€sheriff€of€his€plan.€€He€furtherÏtestified€that€in€all€the€times€that€he€had€conducted€a€roadblock,€the€sheriff€hadÏnever€told€him€that€he€could€not€operate€a€roadblock€when€he€notified€him€of€hisÏplan.€€€Deputy€Worley€also€testified€that€he€was€instrumental€in€drafting€theÏdepartmentððs€guidelines€for€conducting€a€sobriety€roadblock.€€Therefore,€it€isÏclear€that€Deputy€Worley,€as€an€officer€in€the€field€who€is€assigned€to€theÏNarcotics€Department€of€the€Roane€County€Sheriffððs€Department,€not€only€makesÏthe€decision€to€establish€a€roadblock€but€also€decides€the€location€and€the€timeÏfor€operating€the€roadblock.€€The€sheriff€merely€ð ðrubber€stampsðð€Deputy€WorleyððsÏdecision.€€The€sheriff,€who€has€always€approved€Worleyððs€roadblocks,€neverÏdecided€himself€whether€to€establish€a€roadblock,€the€location€of€a€roadblock,€orÏthe€time€for€operating€the€roadblock.€€Worley€admitted€that€he€would€decide€toÏestablish€a€roadblock€and€would€telephone€the€sheriff€or€page€him€to€notify€himÏthat€he,€Worley,€was€planning€to€set€up€a€roadblock.€€In€fact,€in€the€stateððs€brief,€itÏasserts€that€ð ðDeputy€Worley€stated€that€each€time€a€roadblock€was€òòplannedóó,Ð p&À!$ Ðdepartment€policy€required€him€to€notify€either€the€sheriff€or€the€chief€deputyÏsheriff€for€approval.ðð€(emphasis€added).€€Thus,€Deputy€Worley,€not€the€sheriff,Ïplanned€the€roadblock€and€then€the€sheriff€gave€his€approval,€as€he€had€alwaysÏdone.€€Deputy€Worley€testified€that€on€the€day€in€question,€May€18,€1996,€heÏdetermined€where€to€establish€the€roadblock,€when€to€set€it€up,€and€then€notifiedÏthe€sheriff€on€his€pager€that€he€was€setting€up€the€roadblock€on€the€Airport€RoadÏexit€ramp.ÌÌà Œ àThird,€as€the€Court€in€òòDowneyóó€observed,€the€failure€to€publicize€theÐ P7 26 Ðroadblock€and€the€possible€ð ðpretextðð€or€ð ðsubterfugeðð€involved€provide€evidence€ofÐ 09€48 Ða€lack€of€administrative€or€supervisory€decision„making.€€Deputy€Worley€testifiedÏthat€the€roadblock€in€this€case€had€not€been€publicized.€€Furthermore,€he€testifiedÏthat€the€purpose€of€the€roadblock€was€to€check€for€alcohol„impaired€or€drug„¼impaired€drivers.€€However,€the€record€strongly€indicates€that€the€primaryÏpurpose€of€the€roadblock€was€to€detect€motorists€who€might€be€transportingÏdrugs.€€€ÌÌà Œ àDeputy€Worley€is€assigned€to€the€Narcotics€Department€of€the€RoaneÏCounty€Sheriffððs€Department.€€He€testified€that€money€received€from€drugÏforfeitures€pays€for€his€salary,€his€drug„sniffing€dog€and€the€maintenance€of€theÏdog,€the€ñ-ñœñ-ññ-ñœñ-ñD.A.R.E.ñ-ñ›ñ-ññ-ñ›ñ-ñ€wagon,€his€patrol€car,€and€any€other€operational€expensesÏassociated€with€his€office.€€Deputy€Worley€further€testified€that€the€Roane€CountyÏSheriffððs€Department€did€not€have€a€mobile€ñ-ñœñ-ññ-ñœñ-ñintoximeterñ-ñ›ñ-ññ-ñ›ñ-ñ€at€the€time€of€thisÏroadblock€and€still€did€not€have€one.ÌÌà Œ àFourth,€Deputy€Worley€and€jailer€Brock€were€the€only€two€individualsÏconducting€the€roadblock€involving€the€appellant,€which€Deputy€Worley€testifiedÏwas€typically€the€case.€€Worley€was€in€his€uniform€and€had€a€gun€on€his€hip.€ÏBrock€also€had€a€gun.€€The€only€vehicles€present€were€Deputy€WorleyððsÏunmarked€car,€which€is€solid€white€with€tinted€windows,€that€had€the€ñ-ñœñ-ññ-ñœñ-ñD.A.R.E.ñ-ñ›ñ-ññ-ñ›ñ-ñÏwagon€attached€to€it.€€The€ñ-ñœñ-ññ-ñœñ-ñD.A.R.E.ñ-ñ›ñ-ññ-ñ›ñ-ñ€wagon€was€marked€with€the€Roane€CountyÏSheriffððs€Department€emblem.€€Brockððs€car€has€light€bars,€stripes,€and€stars€onÏthe€door.€€The€location€of€the€roadblock€in€this€case€was€a€€remote€area€justÏinside€the€Roane€County€line€at€the€end€of€an€exit€ramp€off€of€Interstate€40.€€€AÏmotorist€traveling€on€the€exit€ramp€could€see€the€roadblock€between€100€and€120Ïyards€before€having€to€stop.€Despite€the€stateððs€assertion,€the€record€contains€noÏevidence€that€either€one€of€the€two€cars€present€employed€flashing€blue€lightsÏduring€the€roadblock.€€€ÌÐ 09€48 ÐÓ  ÓV.€CONCLUSIONÌÓ  Óà Œ àWe€conclude€that€the€roadblock€in€this€case€was€not€established€andÏoperated€in€a€manner€consistent€with€Article€I,€Section€7€of€the€TennesseeÏConstitution€as€outlined€in€òòState€v.€Downeyóó.€€€We,€therefore,€need€not€addressÐ P   Ðthe€appellantððs€second€issue.€€Accordingly,€we€respectfully€reverse€the€judgmentÏof€the€trial€court€and€dismiss€the€charge€against€the€appellant.ÌÌÓ  ÓÌÌÌÌÌÌÌÌÌÌÌÌÌÌÌÌÌÌÌÌÌÐ 09€48 ÐVI.€€APPENDIX€AÌÓkgÓà Œ àà ä àà < àà ” à€€€€€€€€December€8,€1994ÌÌROANE€COUNTY€SHERIFFððS€DEPARTMENTÌPOLICY€AND€PROCEDURE€FOR€SETTING€UP€SOBRIETY€CHECK€€POINTSÌÌSUBJECT:€€SOBRIETY€CHECK€€POINTSÌI.€€PURPOSE:ÌÓÓ€€€€The€purpose€of€this€order€is€to€establish€policy,€procedures€and€regulationsÌ€€€€for€the€commissioned€members€of€the€Roane€County€Sheriffððs€Dept.Ì€€€€concerning€the€captioned€subject.ÌÌII.€POLICY:ÌÌ€€€€The€policy€is€to€remove€impaired€drivers€from€our€highways€as€safely€asÌ€€€€possible€with€due€regard€to€the€safety€of€the€public€and€the€officer(s).ÌÌIII.€INSTRUCTIONS€FOR€SOBRIETY€CHECK€€POINTS:̀̀€€€€1.€€Check€points€will€be€set€up€only€at€the€direction€of€high€level€Ìadministrative€officials.ÌÌ€€€€€2.€€The€location€and/or€ñ-ñœñ-ññ-ñœñ-ñsituqtionsñ-ñ›ñ-ññ-ñ›ñ-ñ€[sic]€encountered€will€determine€theÌplan€for€which€cars€to€stop.€€It€must€be€on€a€systematic,€non„random€basis.ÌSuch€as€stopping€every€car,€every€second€car,€etc.ÌÌ€€€€3.€€If€an€approaching€driver€turns€off€or€makes€a€U„turn€in€a€safe€manner,Ìno€action€will€be€taken€against€them.ÌÌ€€€€4.€€Each€car€will€be€approached€and€the€driver€informed€that€you€are€Ìconducting€this€check€point€looking€for€persons€driving€under€the€influence€ofÏalcohol€or€drugs.€€This€will€be€done€in€a€€courteous€and€professional€manner.ÌÌ€€€€5.€€The€stop€should€be€of€brief€duration.ÌÌ€€€€6.€€If€no€signs€of€intoxication€are€found€or€no€indication€of€contraband,Ìthe€driver€should€be€allowed€to€proceed.ÌÌ€€€€7.€€If€the€officer€observes€signs€of€intoxication€or€observes€contraband€in€theÌvehicle,€the€driver€should€be€directed€to€the€side€for€further€investigation.€€TheyÌshould€be€moved€out€of€the€flow€of€traffic€to€avoid€traffic€hazards,€congestion€andÏdelay€of€those€drivers€following.ÌÌ€€€€8.€€After€moving€out€of€the€flow€of€traffic€any€driver€demonstrating€signs€ofÏintoxication,€the€driver€will€be€given€the€field€sobriety€test.€€If€they€satisfactorilyÏpass€the€field€sobriety€test,€they€will€be€released.€€If€the€person€fails€to€pass€theÏfield€sobriety€test,€the€officer€is€to€obtain€their€operatorððs€license€and€then€offerÏthem€the€Breath€Alcohol€Test.€€Any€driver€who€registers€.10€on€the€breath€alcoholÏtest€will€be€arrested€and€booked€for€ñ-ñœñ-ññ-ñœñ-ñDUIñ-ñ›ñ-ññ-ñ›ñ-ñ.€€Those€drivers€who€show€signs€ofÏintoxication€but€do€not€register€.10€on€the€breath€alcohol€test€may€be€released€orÐ  :p59 Ðcharged€if€their€actions€indicate€that€they€cannot€drive€in€a€safe€manner.€€This€willÏbe€done€at€the€discretion€of€the€ranking€officer€on€the€scene.ÌÌ€€€9.€€If€the€officer€has€reasonable€suspicion,€supported€by€specific€and€ñ-ñœñ-ññ-ñœñ-ñarticulableñ-ñ›ñ-ññ-ñ›ñ-ñÏfacts€to€believe€that€contraband€is€present,€regardless€of€the€fact€that€a€roadblockÏwas€being€used,€then€the€driver€may€be€asked€to€sign€a€consent€to€search.€ÏPossible€use€of€canine€detectors€may€be€employed€in€these€vehicle€searches.ÌÌ€€10.€€If€a€subject€is€arrested€he/she€may€sign€a€release€form€authorizing€theÏofficer€to€leave€his€car€at€the€scene€in€a€safe€location€if€possible€or€the€car€will€beÏtowed€by€a€wrecker€of€driverððs€choice€or€next€scheduled€towing€ñ-ññ-ñœñ-ññ-ññ-ññ-ñœñ-ññ-ññ-ñœñ-ñserivceñ-ñ›ñ-ññ-ññ-ñ›ñ-ññ-ññ-ññ-ñ›ñ-ññ-ñ€[sic]€onÏthe€County€rotation.€€Only€exceptions€to€this€will€be€drug€seizures€which€will€beÏtowed€by€one€of€the€Countyððs€pre„determined€ñ-ñœñ-ññ-ññ-ñœñ-ñinpoundñ-ññ-ññ-ññ-ñœñ-ññ-ñiñ-ññ-ñnñ-ññ-ññ-ñmñ-ññ-ññ-ñpoundñ-ññ-ñ›ñ-ññ-ññ-ñ›ñ-ññ-ññ-ñ›ñ-ñ€ñ-ñœñ-ññ-ñ[sicñ-ññ-ñ]ñ-ññ-ññ-ñ}ñ-ññ-ññ-ñ€ñ-ñservices.ñ-ñ›ñ-ññ-ññ-ñÌÌÌÌÌÌÌà Œ àà ä àà < àà ” àà ì àà D à_______________________Ìà Œ àà ä àà < àà ” àà ì àà D àDavid€B.€HaggardÌà Œ àà ä àà < àà ” àà ì àà D àSheriff€of€Roane€CountyÌÌ€€€€€€Ìà Œ àÐ  0€ ÐÌà Œ àà ä àà < àà ” àà ì àà D àà œ à_______________________€€Ìà Œ àà ä àà < àà ” àà ì àà D àà œ àPAUL€G.€SUMMERS,€JudgeÌÌÌÌÌCONCUR:ÌÌÌÌÌ______________________________ÌJOHN€H.€ñ-ññ -ñœñ -ññ-ññ-ññ-ñœñ-ññ-ññ-ñœñ-ñPEAYñ-ñ›ñ-ññ-ññ -ñ›ñ -ññ-ññ-ññ-ñ›ñ-ññ-ñ,€JudgeÌÌÌÌÌ______________________________ÌCORNELIA€A.€CLARK,€Special€Judge