ÿWPCÀ- …# VU:a %› 0ˆ¡L) wšu 4 # e2 0è3 0D 0J_ 0T© 0^ý 0h[à 0rË 0|= 0†¹ 0? 1uÏ 0dD B¨U *ÅB)ïDC AM[n¨o D3…%¸ŸÝ 0@|!¼!v~Ê$vÓH& AO,Æj, 0D0- D/t- B£-˜HP LaserJet 4Si/4SiMX PS 600dpiPSCRIPTÈÚØÚÚØÈÚ0nLLÎ, øð AZ‹"Arial RegularX(`o$¡¡ÑTRY 3Ø'ÿ LetterY 3Ø'ÿ Letter3Ø'ÿ Letter3Ø'ÿ LetterTÑÔ  ÔC:\OFFICE\WPWIN\TEMPLATE\STANDARD.WPTd/e/f+g/h/i/jIklEmnUoUpqHrQsPtDu•zI{[|S}~ZÓ€‰DÒ Ôô3|x‰(˜(2¯•$¤¤Ý ƒo!ÝÑTRY3Ø'ÿ Letter3Ø'3Ø'&Avery 5164 Shippingÿ3Ø'TÑÔ  ÔÝ  ÝÒ4°ÒÒ„°Òà Œ àòòÚ  Ú0Ú  Úóó(#Ã$òòÚ  Ú0Ú  Úóó2 ÿÿ0Indent1Ô2ÔÔ3  Ô2" ÿÿ0Indent2à0 àÔ2ÔÔ3  Ô2, ÿÿ0Indent3à0 àà0 àÔ2ÔÔ3  Ô26 ÿÿ0Indent4à0 àà0 àà0 àÔ2ÔÔ3  Ô2@ ÿÿ0Indent5à0 àà0 àà0 àà0 àÔ2ÔÔ3  Ô2J ÿÿ0Indent6à0 àà0 àà0 àà0 àà0 àÔ2ÔÔ3  Ô2T ÿÿ0Indent7à0 àà0 àà0 àà0 àà0 àà0 àÔ2ÔÔ3  Ô2^ ÿÿ0Indent8à0 àà0 àà0 àà0 àà0 àà0 àà0 àÔ2ÔÔ3  Ô ÿÿ?AGMSYaioIndent0I.A.1.a.(1)(a)i)a)P ÿÿ8Mac DefaultMac DefaultÓ ` °šXÓ d< Œ 9p`(Arial% Line 7 d%%%%7Border 1dd€-&Cþÿ << Gÿÿ dÝ ƒ!ÝÑ  ÑÑ#€d#ÑÔ€$ÔÑ\R3Ø'\ÑÔ  ÔÔ  ÔÝ  ÝÔ€$ÔÓ  Óò òÔ YYY ÔFILEDÔ€$XÔÌÌSeptember€8,€1997ÌÌCecil€W.€CrowsonÌAppellate€Court€ClerkÔ  Ôó ó eÝ ƒ!ÝÑ#€d#ÑÔ€$ÔÑ\R3Ø'\ÑÔ  ÔÔ  ÔÝ  ÝÝ ƒ $ÝÒ 4 ÒÒ „ Òà àòòÚ  ÚÚ  ÚóóÝ  Ý€€The€following€animals€are€enumerated€as€inherently€dangerous:ÌÓ ` °‚X" †ÂÈ“X ÓÌà à(A)à àMammals:Ìà0 àà à(I)à àPrimates€„€Gorillas,€orangutans,€chimpanzees,€gibbons,Ïsiamangs,€mandrills,€drills,€baboons,€Gelada€baboons;Ìà0 àà à(ii)à àCarnivores:Ìà0 àà0 àà à(òòaóó)à àWolves€„€All€species;Ìà0 àà0 àà à(òòbóó)à àBears€„€All€species;€andÌà0 àà0 àà à(c)à àLions,€tigers,€leopards,€jaguars,€cheetahs,€cougars€„€AllÏspecies;Ìà0 àà à(iii)à àOrder€Proboscidia:€€Elephants€„€All€species;Ìà0 àà à(iv)à àOrder€Artiodactyla:€€Rhinoceroses€„€All€species;Ìà0 àà à(v)à àOrder€Artiodactyla:€€Hippopotamus,€African€buffalo;Ìà à(B)€à àReptiles:Ìà àà à(I)à àOrder€Crocodylia:€€Crocodiles€and€alligators€„€All€species;€andÌà àà à(ii)à àOrder€Serpentes:€€Snakes€„€All€poisonous€species;€andÌà à(C)à àAmphibians:€€All€poisonous€species;Ì 'ÿÿdxd Ý ƒ!ÝÑ#€d#ÑÔ€$ÔÑ\R3Ø'\ÑÔ  ÔÔ  ÔÝ  ÝÝ ƒ $ÝÒ 4 ÒÒ „ Òà àòòÚ  ÚÚ  ÚóóÝ  Ý€€Animals€specifically€listed€as€Class€III€are€as€follows:ÌÓ ` °‚X" †ÂÈ“X ÓÌà à(A)à àNonpoisonous€reptiles€and€amphibians€except€caimans€and€gavials;Ìà à(B)à àRodents€„€Gerbils,€hamsters,€guinea€pigs,€rats,€mice,€squirrels€andÏchipmunks;Ìà à(C)à àRabbits,€hares,€moles€and€shrews;Ìà à(D)€€€Ferrets€and€chinchillas;Ìà à(E)à àLlamas,€alpacas,€guanacos,€vicunas,€camels,€giraffes€and€bison;Ìà à(F)€€à àAvian€species€not€otherwise€listed,€excluding€North€American€gameÏbirds,€ostriches€and€cassowary;Ìà à(G)à àSemi„domestic€hogs,€sheep€and€goats;Ìà à(H)à àAll€fish€held€in€aquaria;Ìà à(I)à àBovidae€not€otherwise€listed;Ìà à(J)à àMarsupials;Ìà à(K)à àCommon€domestic€farm€animals;Ìà à(L)à àEquidae;Ìà à(M)à àPrimates€not€otherwise€listed;Ìà à(N)à àBobcat/domestic€cat€hybrids;Ìà à(O)à àHybrids€resulting€from€a€cross€between€a€Class€II€species€and€aÏdomestic€animal€or€Class€III€species;Ìà à(P)à àCervidae€except€white„tailed€deer;€andÌà à(Q)à àFurbearing€mammals,€including€those€native€to€Tennessee,€raisedÏsolely€for€the€sale€of€fur.Ì •Ý ƒ!ÝÑ#€d#ÑÔ€$ÔÑ\R3Ø'\ÑÔ  ÔÔ  ÔÝ  ÝÝ ƒ $ÝÒ 4 ÒÒ „ Òà àòòÚ  ÚÚ  ÚóóÝ  Ý€€Class€V€species€may€only€be€held€in€zoos€or€under€such€conditions€thatÏwill€prevent€their€release€into€the€environment.Ì("ÿÿ$££Ò  ÒÒ  Ò Ý ƒ!ÝÑ#€d#ÑÔ€$ÔÑ\R3Ø'\ÑÔ  ÔÔ  ÔÝ  ÝÝ ƒ $ÝÒ 4 ÒÒ „ Òà àòòÚ  ÚÚ  ÚóóÝ  Ý€€The€Court€of€Appeals€held€that€the€issue€in€òòTascoóó€was€not€whether€theÏdelegation€was€constitutional€but€whether€the€Board€had€exceeded€its€authority.€ÏWe,€however,€framed€the€issue€in€òòTascoóó€as€follows:ÌÌà8 àThe€real€question€for€consideration€in€this€lawsuit€is€whether€or€notÏthe€State€Board€for€Licensing€General€Contractors€has€the€right,Ïpower,€and€authority€to€classify€and€limit€the€license€which€it€issuesÏto€general€contractors.ÌÌòòTascoóó,€368€S.W.2d€at€66.ÌPtPtHHÚ(ÿáÿâùFG(üHHÚ(d'hStyl{WP}01•ÃÃÃÃÃÃÃÃÃÃÃÃÃÃÃÃÃÃà Ãà Ãà Ãà Ãà ÃÃÃÃÃÃÃÃÃÃÃÐ ÐÐHHÐÐ  ÐÐ2ÐÐÿÿ¸æ$ÿÐÐHHÐÐÐÐÐÐÐÐ  ÐÐ ÐÐ ÐÑÑÑGenevaÑÑ ÑÑ € ÑÑ<Px–ÈÑÒÒÒ443!#4ÒÒ$ *$ÒÒ$*$ÒÒ ÿKK ÒÒ  Geneva ÒÒ  Geneva ÒÓ.,ÓÓÓÓ6ÓÓ ÓßßßßßßßßßßßßßßßßßßÑGenevaÑÑ ÑÒ  h HD: Geneva ÒÒ  h HD: Geneva Ò€-‚ƒCþÿ<< CÿÿƒLevel 1Level 2Level 3Level 4Level 5($$””ò òÚ  Ú1Ú  Úó ó„„'÷ÿ dxdüÿP PdÝ ƒ!ÝÔ . ÔÔ€$ÔÑ\R3Ø'\ÑÔ  ÔÔ  ÔÝ  ÝÑ  ÑÑ  ÑÒ 4 ÒÒ ° ÒÒ 4 ÒÒ „ ÒÑ\R AØ'\ÑÑ  ÑÑ\R AØ'\ÑÑ7€ºúXXdêdÈ7ÑÑ  ÑÑ  Ñò ò›Þ ÞÌà@ àIN€THE€SUPREME€COURT€OF€TENNESSEEÌà@ àAT€NASHVILLEÌÌÌà àà àà àà àà àà àà àFOR€PUBLICATIONÌÌó óà àà àà àà àà àà àà àò òFiled:€œòò€€€€€ó óSeptember€8,€1997ò òà€ àóóÌÌó óROBERT€BEAN,€FRANKLINà@ à)ÌSHAFFER,€DAVID€AUTRY,à@ à)ÌMACK€ROBERTS,€KEVIN€ANTLE,à@ à)ÌTOM€NICHOLS,€TAMMIE€BEASLEY,à@ à)Ìand€ROXANNE€LUCE,à@ à)Ìà@ à)Ìà àPlaintiffs/Appellees,à@ à)Ìà@ à)à àDavidson€ChanceryÌv.à@ à)Ìà@ à)à àHon.€Irvin€H.€Kilcrease,€Jr.,ÌNED€RAY€McWHERTER,€in€hisà@ à)à àChancellorÌcapacity€as€Governor€of€the€State€ofà@ à)ÌTennessee,€CHARLES€W.€BURSON,à@ à)à àNo.€01S01„9607„CH„00132ÌÙ€€ÙßR€'(&A1-j|üýá` ç `€€@ÿRßAttorney€General€of€the€State€ofà@ à)ÌTennessee,€TENNESSEE€WILDLIFEà@ à)ÌRESOURCES€COMMISSION,€andà@ à)ÌGARY€MYERS,€Director€of€theà@ à)ÌWildlife€Resources€Agency,à@ à)Ìà@ àà@ à)Ìà àDefendants/Appellants.à@ à)ÌÌÌÌÌòòFOR€APPELLEESóó:›à àà àà àà àà àòòFOR€APPELLANTSóó:ÌÌF.€Clay€Bailey,€Jr.à àà àà àà àà àœJohn€Knox€WalkupÌTune,€Entrekin€&€White,€P.C.à àà àà àAttorney€General€&€ReporterÌNashvilleÌà àà àà àà àà àà àà àMichael€E.€MooreÌà àà àà àà àà àà àà àSolicitor€GeneralÌÌà àà àà àà àà àà àà àElizabeth€P.€McCarterÌà àà àà àà àà àà àà àSenior€CounselÌÌÌÌÌÌÌÌà@ àò òÔ€$èÔO€P€I€N€I€O€Nó óÔ€$XÔÌÌÌÌÌCOURT€OF€APPEALS€REVERSED;€CASE€REMANDEDà€ àHOLDER,€J.ÇÓÓà àThis€appeal€addresses€the€General€Assembly's€power€to€delegate€rule„making€authority€to€administrative€agencies.€€The€Court€of€Appeals€held€that€theÏGeneral€Assembly€could€not€constitutionally€delegate€power€to€the€TennesseeÏWildlife€Resources€Commission€("TWRC")€to€add€or€delete€animals€from€theÏdangerous€species€list.€€We€reverse€and€hold€that€the€legislature€may€delegateÏpower€to€add€and€delete€items€from€a€statutory€schedule€absent€explicitÏguidance€standards.€€The€legislature,€however,€must€provide€a€basic€standardÏaccompanied€by€a€general€policy€when€delegating€in€areas€concerning€publicÏhealth,€safety,€and€general€welfare.ÌÌò òÓ  ÓBACKGROUNDó óÌÓ  ÓÌà àThe€plaintiffs,€Robert€Bean€òòetóó€òòalóó.,€claimed€to€be€owners,€dealers,€orÏlicensed€propagators€of€various€wildlife€species.€€They€filed€a€complaint€seekingÏa€declaratory›€judgment€against€the€defendants,€the€TWRC€and€the€Director€ofÏthe€Tennessee€Wildlife€Resources€Agency€("Director").€€The€plaintiffs€allegedÏthat€Tenn.€Code€Ann.€ðð70„4„403(1)€&€(3)€violated€the€Tennessee€ConstitutionÏby€unlawfully€delegating€legislative€authority€to€both€the€TWRC€and€œto€the›ÏDirector.ÌÌà àThe€trial€court€granted€the€plaintiffs'€petition.€€The€trial€court€held€theÏdelegation€unconstitutional€because€"the€legislature€did€not€provide€theÏagencies€with€any€standards€by€which€they€were€to€proceed€in€deleting€orÏadding€species€under€[the€statute]."€€The€Court€of€Appeals€affirmed€the€trial€courtÏand€held€that€the€delegation€was€unconstitutional€due€to€the€absence€of€specificÏstandards.€€The€appellate€court€reasoned€that,€absent€specific€standards,€theÏstatute€vests€the€TWRC€and€the€Director€with€"the€discretion€to€determine€whatÏthe€law€shall€be€as€opposed€to€discretion€as€to€the€law's€execution."ÌÌà àWe€find€the€delegation€of€power€constitutionally€valid.€€For€the€reasonsÏstated€below,€we€reverse€the€Court€of€Appeals€and€dismiss€the€case.ÌÌò òÓ  ÓSTATUTORY€LANGUAGEó óÌÓ  ÓÌà àThe€issue€in€controversy€concerns€the€statutory€provisions€in€Tenn.€CodeÏAnn.€ðð70„4„403(1)€&€(3).€€This€statute€classifies€Tennessee€wildlife€into€five€(5)Ïgeneral€classes.€€Class€I€includes€"all€species€inherently€dangerous€toÏhumans."× ƒ) ××  ×€€Class€II€includes€all€native€species€("presently€occurring€in€the€wild")Ínot€listed€in€another€class.€€Class€III€is€a€domestic€or€semi„domestic€class€ofÏanimals€that:€€(1)€€is€not€listed€in€other€classifications;€and€(2)€€requires€"noÏpermits€except€those€required€by€the€department€of€agriculture."× ƒ+ ××  ×€€Class€IVÍincludes€native€species€that€may€only€be€possessed€by€zoos€and€temporaryÏexhibitors.€€Class€V€includes€species€that€are€injurious€to€the€environment.× ƒ, ××  ×ÌÌà àThis€appeals€focuses€on€Class€I€and€Class€III.€€Class€I€provides€that€"[t]heÏcommission,€in€conjunction€with€the€commissioner€of€agriculture,€may€add€orÏdelete€species€from€the€list€of€Class€I€wildlife€by€promulgating€rules€andÏregulations."€€Tenn.€Code€Ann.€ðð70„4„403(1).€€Class€III€permits€"[t]heÏcommission,€in€conjunction€with€the€commissioner€of€agriculture,€[to]€add€orÏdelete€species€from€the€list€of€Class€III€wildlife€by€promulgating€rules€andÏregulations."€€The€delegation€of€the€authority€to€add€and€delete€species€fromÏClass€I€and€Class€III€is€the€focus€of€this€appeal€by€the€defendants.€€Tenn.€CodeÏAnn.€ðð70„4„403(3).ÌÌò òÓ  ÓANALYSISó óÓ  ÓÌà àThe€General€Assembly€may€grant€an€administrative€agency€the€power€toÏpromulgate€rules€and€regulations€which€have€the€effect€of€law€in€œthe€agencyððs›Íarea€of€operation.€€òòTasco€v.€Longóó,€368€S.W.2d€65,€68„69€(1963).€€This€grant€ofÏpower,€however,€should€be€limited€and€defined€in€such€a€manner€thatÏadministrative€officials€can€discern€and€implement€the€legislature's€will.€€16ÏC.J.S.€òòConstitutional€Lawóó€ðð€137,€448„49€(1984).€€An€administrative€agency€mayÏbe€afforded€discretion€as€to€implementation€of€legislative€policy€but€not€as€toÏdetermination€of€that€policy.€€òòState€v.€Edwardsóó,€572€S.W.2d€917,€919€(Tenn.Ï1978).ÌÌà àOur€review€of€previous€case€law€reveals€that€this€Court€has€neverÏsuccinctly€stated€a€test€for€determining€whether€a€delegation€of€power€isÏconstitutional.€€In€òòLobelville€v.€McCanlessóó,€381€S.W.2d€2d€273€(Tenn.€1964),€thisÏCourt€quoted€16€C.J.S.€òòConstitutional€Lawóó€ðð€133,€560„61€for€the€proposition€thatÏlawful€delegations€require€a€"sufficient€basic€standard"€accompanied€by€"aÏdefinite€and€certain€policy€and€rule€of€action."€€òòIdóó.€at€274.€€LegislativeÏdelegations€must€also€contain€sufficient€safeguards€to€prevent€agencies€fromÏacting€œin›€an€arbitrary€manner.€€òòState€v.€Edwardsóó,€572€S.W.2d€917,€919€(Tenn.Ï1978);€€òòTasco€Developing€and€Building€Corp.€v.€Longóó,€368€S.W.2d€65€(Tenn.Ï1963).€€Prior€case€law,€however,€has€not€enunciated€criteria€for€analyzingÏwhether€the€legislature's€guidelines€or€standards€are€adequate€to€preventÏarbitrary€œaction.€ÌÌà àWe€are€mindful€of€the€need€for€guidance€in€this€area.€€We€haveÏreexamined€òòTascoóó€and€its€progeny€and€have€created€a€test€for€analyzing€theÏadequacy€of€the€standards€or€guidelines€contained€in€a€statute€alleged€to€haveÏunlawfully€delegated€legislative€power.€€We,›€therefore,€hold€that€the€test€forÏdetermining€whether€a€statute€is€an€unlawful€delegation€is€whether€the€statuteÏcontains€sufficient€standards€or€guidelines€to€enable€both€the€agency€and€theÏcourts€to€determine€if€the€agency€is€carrying€out€the€legislature's€intent.ÌÌà àGoverning€standards€need€not€be€expressed€provided€such€standardsÏcan€be€reasonably€ascertained€from€the€statutory€scheme€as€a€whole.€€TheÏnecessity€of€œexpressed›€œstandards›€is€contingent€upon€the€statute's€subject€matterÏœand›€œon€the›€degree€of€difficulty€involved€in€articulating€finite€standards.€€DetailedÏor€specific€legislation€may€be€neither€required€nor€feasible€when€the€subjectÏmatter€requires€an€agency's€expertise€and€flexibility€to€deal€with€complex€andÏœchanging›€conditions.ÌÌà àThe€requirement€of€œexpressed›€œstandards›€may€also€be€relaxed€when€theÏdiscretion€to€be€exercised€relates€to€or€regulates€for€the€protection€of€the€public'sÏhealth,€safety,€and€welfare.€€In€òòTasco€v.€Longóó,€œ368›€S.W.2d€65€(Tenn.€1963),€thisÍCourt€was€confronted€with€a€statute€that€delegated€powers€to€a€board€to€grantÏgeneral€contractor€licenses.× ƒ. ××  ×€€The€statute€stated€that€the€œboardÌ›ÌÓÓà8 àshall€have€the€power€to€make€such€by„laws,€rules,€and€regulationsÏas€it€shall€deem€best,€providing€the€same€are€not€in€conflict€withÏthe€laws€of€Tennessee.ÌÌÓÓœÌòòIdóó.›€at€67.€€We€interpreted€the€statute's€standard€as€one€of€reasonableness.€€òòIdóó.€atÏ67„69.€€The€œboard,›€œtherefore,€was€given›€the€discretion€to€act€provided€itsÏdecisions€were€neither€arbitrary€nor€capricious€and€were€in€harmony€with€theÏlaws€of€this€state.€€òòIdóó.€€Although€these€guidelines€were€vague,€they€were€heldÏsufficient€under€the€circumstances.ÌÌà àIn€òòTascoóó,€we€found€that€the€policy€behind€the€statute€was€"to€protect€theÏgeneral€public€from€contractors€who€are€not€qualified€to€perform€work€whichÏthey€have€contracted€.€.€."€€òòIdóó.€at€68.€€Accordingly,€òòTascoóó€teaches€us€that€minutelyÍdetailed€standards€are€not€required€when€the€statute's€policy€relates€to€publicÏhealth,€safety,€or€welfare€and€œwhen€flexibility›€is€necessary€for€practicalÏlegislation.ÌÌà àThe€legislative€policy€of€the€present€statute€is€clear.€€The€statute€outlinesÏa€general€scheme€designed€to€protect€the€public€from€dangerous€animals.€€If€theÏagency€adds€a€non„enumerated€animal€to€one€of€the€legislative€classes,€thatÏspecies€is€regulated€pursuant€to€the€legislative€scheme.€€The€mere€adding€orÏdeleting€of€animals€from€a€nonexclusive€list€or€moving€an€animal€from€oneÏclassification€to€another€does€not€alter€the€legislative€policy€of€providing€publicÏprotection.€€òòSeeóó€òòState€v.€Edwardsóó,€572€S.W.2d€917€(Tenn.€1978)€(holdingÏadding€and€deleting€items€from€a€non„exclusive€list€permissible).ÌÌà àBecause€the€present€statute€concerns€issues€of€public€safety€and€welfare,Ïthe€requirement€of€expressed€or€specific€standards€is€relaxed.€€The€legislativeÏstandard€for€adding€an€animal€to€Class€I€is€whether€the€animal€is€"inherentlyÏdangerous."€€The€legislature€has€also€provided€a€non„exclusive€list,€in€bothÏClass€I€and€Class€III,€of€animals€falling€within€the€œlegislatively„created›€categoriesÏor€classifications.€€These€lists€provide€the€agency€with€additional€criteria€forÏclassifying€animals.ÌÌà àWe€have€carefully€considered€the€entire€statutory€scheme€and€find€thatÏthe€statute€implies€a€standard€of€reasonableness.€€We€further€find€that€theÏstatute's€guidelines€are€that€animals€possessing€characteristics€consistent€withÏthe€legislature's€listed€examples€and€statutory€definitions€are€to€be€classifiedÏpursuant€to€the€legislative€scheme.€€These€standards€are€clearly€adequate€toÏallow€both€us€and€the€TWRC€to€determine€whether€the€legislature's€intent€isÏbeing€furthered.ÌÌà àWe€hold€the€present€delegation€of€power€constitutional.€€We€reverse€theÏCourt€of€Appeals€judgment€and€remand€for€further€proceedings€consistent€withÏthis€opinion.€€Costs€of€this€appeal€are€taxed€to€the€appellees,€Robert€Bean€òòetóó€òòalóó.,Ïfor€which€execution€may€issue€if€necessary.ÌÌÌÓÓà àà àà àà àà àòòà€ àóóÌà àà àà àà àà àJanice€M.€Holder,€JusticeÌÌÌÌœò òConcurring:ó ó›à0 àœà0 àAnderson,€C.J.€Ìà àà àà àDrowota,›€œReid,›€œBirch,€J.J.›ÌÌÌÌÇÌòòDRAFT:€Ô" US ú/ú/ú ú: ú ÔÔ ƒ ÔÔ!  Ô€Ô.Zƒ JG:\IB013S2\OPINION\BEAN.087\BEANR.OPNZÔG:\IB013S2\OPINION\BEAN.087\BEANR.OPNÔ/  ÔÌREV€AUTHOR:€dhÌREV€DATE/TIME:€€œóóÌÌÌ›