WPC$. v&GSKxgFɴ= PM!CJeޏ:>JE|Ca2kԫM0D[wT:bkyb ه18IS r>YcAsH,.J"pņQdj^b(nU\qR: laJvv}`<hy^VeB.a^}Gb^Fv?])4ldYާ߆ B;A2hH R~孏 WZGN/t7%#e/dr'M=jF;Q,cHh @ʅQ(vɃOȿD!:`#8p\iurj$e%"+UM@lT=v$X'{›*+_AQ͡&eѶ jLuGR!*?R_߻Lz60?}yr짿_#& % UN 0; U8N U@ zQ  F^  0D;wSNWW4YEmo~ m6-J;.iI&I&I&I&I&I&I&I&I&I&I&I&I&b(((((((((((((((((((((((((((((((((((( 0(((( B)) 0) D3* D-* 0K** ASD++ 0], 0D- AE-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E-E- 04-HP LaserJet 4050 Series PCL 5e,,,,0(uH Z6Times New Roman Regular(`$.8dd8    ("  Z6Times New Roman Regular(uH Z(Times New Roman  C:\PROGRA~1\COREL\WORDPE~1\TEMPLATE\CUSTOM~1\REVISE~1.WPTC:\Program Files\Corel\WordPerfect Office 2000\Template\Custom WP Templates\revised standard opinion.wpt  < R]$      1  X9X  _XX9Othernamedparty/appelleesareTheShelbyCountyElectionCommission;MyraStiles,Commissioner;O.  C.Pleasant,Jr.,Commissioner;DavidH._Lillard_,Commissioner;YvonneB._Acey_,Commissioner;RichardHolden, t Commissioner;andTheBoardofEducationofMemphisCitySchools.#X9X~#'wf) (#$  0  Level 1Level 2Level 3Level 4Level 5Level 1Level 2Level 3Level 4Level 5Level 1Level 2Level 3Level 4Level 5Level 1Level 2Level 3Level 4Level 5sM)13|xU R]$      2  X9X  _XX9Subjecttothegeneralelection.#X9X~# , R]$      3  X9X  XX9_1970Tenn.PrivateActsch.340,2.#X9Xn##X9XXX9# #      @ R]$      4  X9X  _*,XX XX*X9XXX9XX9207S.W.726(1918).#荨##X9X# 1 R]$      6  X9X  _XX9 [_U]nder_ԀTennesseelaw,courtsdonotdecideconstitutionalquestionsunlessresolutionisabsolutelynecessary  fordeterminationofthecaseandtherightsoftheparties.Owensv.State,908S.W.2d923,926(Tenn.1995). t Furthermore,whenreviewinglegislativeenactmentschallengedasunconstitutional, wearerequiredtoindulgeevery 8 presumptionandresolveeverydoubtinfavoroftheconstitutionalityofthestatute.! C ׀PetitionofBurson,909S.W.2d L 768,775(Tenn.1995);ShelbyCo.ElectionComnv.Turner,755S.W.2d774,777(Tenn.1988).However,several  courtshavefoundthatadurationalregistrationrequirementforcandidacyisunconstitutional.SeeBoardofSuprsof  Electionsv.Goodsell,396A.2d1033,103940(Md.App.1979)(andcasescitedtherein);Treimanv.Malmquist,342 H  So.2d972,976(Fla.1977).We,however,donotneedtoreachthatissue.#X9X~#  R]$      5  X9X  _XX9Theterm registeredvoterisdefinedas aqualifiedvoterwhohasfulfilledtheregistrationrequirementsof  thistitle.Tenn.CodeAnn.21104(a)(23)(1994). QualifiedvoterisdefinedasaUnitedStatescitizenwhois18 t yearsorolderandwhoisaresidentofTennessee.Tenn.CodeAnn.22102(1994).Halbertinsiststhattheprior 8 versionofthissection,whichdefined qualifiedvoteras aresidentoftheStateforaperiodofatleasttwentydaysprior L toofferinghimselfforregistration,isapplicable.Tenn.CodeAnn.22102(1985).Wefindthatregistrationserves  theregulatoryfunctionofverifyingacitizensqualificationstovote;itisirrelevanttothedeterminationofacitizens  qualificationstovote.Nordowefindpersuasivethepropositionthatanelectionin1998wouldbegovernedbya H  previouslydeletedmorerestrictiveversionoftheelectionlaws.  \   Halbertalsocontendsthatthe1978amendmenttotheTennesseeConstitution,art.IV,1,whichaddedthe    phrase beingdulyregisteredinthecountyofresidencetothedescriptionofthosecitizensentitledtovote, createsa X   constitutionalmandatethatregistrationbeaqualificationforvoting.WefindHalbertscontentionwithoutmerit.  l  Asnotedabove,registrationlawsregulatetheactofvoting.Suchlaws,however,donotaffectthequalificationsa  0  citizenisrequiredtopossessbeforebeingentitledtovote.Thus,theconstitutionalamendmentaddingthephrase   referringtoregistrationdoesnotaddresstheunderlyingqualificationsrequiredofacitizen.Rather,theamendment h  servestoregulateandprotecttheintegrityofelectionsandtheelectionprocess.#X9X~#  R($USUS.,    3    _Severalcourtshavefoundthata_durational_Ԁregistrationrequirementforcandidacyis  unconstitutional.SeeBoardof_Suprs_ԀofElectionsv._Goodsell_,396A.2d1033,103940(Md.  App.1979)(andcasescitedtherein);_Treiman_Ԁv._Malmquist_,342So.2d972,976(Fla.1977). | We,however,donotneedtoreachthatissue.- -(|G2]$ !.8N5dd8         0  X9X d(|3Gz$ !.8N5dd8     VVVV'dxd)!dxdx( $ Figure  1  ^_X`YE<<CLevel 1Level 2Level 3Level 4Level 5(|3Gz$ !.8N5dd8     ($$   1  X[Z&OLE 2.0 Box <=8C HKKKK&c$""0 !.8N5dd8     _N5  89XXdd8@7 7 INTHESUPREMECOURTOFTENNESSEE  @''%ATJACKSON  @April11,2000Session $ X9XN5 #N5XX9#  WANDA_HALBERT_v.THESHELBYCOUNTYELECTION " COMMISSION,etal.   6 X9XN5@6 6  AppealfromtheChanceryCourtforShelbyCounty  \ @ No.9806982Floyd_Peete_,Jr.,Chancellor  H @*AV) ` dE<` A߈   @ No.W199800706SCR3CVFiledNovember6,_2000_Ԉ   @*AV) ` dE<` A    X9XXX9ThismatterisbeforeusondirectappealfromtheChanceryCourtofShelbyCountypursuantto  Tenn.CodeAnn.217116.AtissueisMichaelA.Hooks,Jr.seligibilitytobeelectedtoand v serveon#X9XXX9#X9XXX9theBoardofEducationoftheMemphisCitySchools#X9XXX9/#X9XXX9Ԁ(SchoolBoard).Hiseligibilityhinges b onthemeaningoftheterm residentvoterasusedintheSchoolBoardscharter.Wanda_Halbert_, N theappellant,contendsthatHookswasnota residentvoterandisthusineligibletoserveonthe : SchoolBoard.ThetrialcourtfoundthatHookswas,indeed,a residentvoterandeligibletoserve &v asamemberoftheSchoolBoard.Thejudgmentofthetrialcourtis,therefore,affirmed,andthis b causeisdismissed. N #X9XXX9# @Tenn.R.App.P.3AppealofRight;JudgmentoftheChanceryCourtAffirmed  & _Adolpho_ԀA.Birch,Jr.,J.,deliveredtheopinionofthecourt,inwhich E.RileyAnderson,C.J.,  JaniceM.HolderandWilliamM.Barker,JJ., joined.FrankF._Drowota_,III,J.,not  participating.  MimiPhillips,Memphis,Tennessee,fortheappellant,Wanda_Halbert_. ^!  RobertL.J.Spence,Jr.,Memphis,Tennessee,fortheappellees,ShelbyCountyElection 6#" Commissionandindividuallynamedcommissioners;AllanJ.Wade,Memphis,Tennessee,forthe "$r# appellee,MichaelA.Hooks,Jr.;ErnestG.Kelly,Jr.,Memphis,Tennessee,fortheappellee,Board %^ $ ofEducationoftheMemphisCitySchools. %J!% @66' OPINION '"#'   Z-(- _X9XXX9@I.FactsandProceduralHistory    Theappellant,WandaHalbert,andtheappellee,MichaelA.Hooks,Jr.,   #  1      ׀werecandidatesfor t aseaton#X9XXX9 #X9XXX9theBoardofEducationoftheMemphisCitySchools#X9XXX9#X9XXX9,tobefilledbyelectionAugust6, ` 1998.  #  2      ׀Shortlybeforetheelection,HalbertlearnedthatHookshadregisteredtovoteinShelby L  CountyonJune16,1997,andhadnevervoted.Basedonthesefacts,Halbertfiledapetitioninthe 8  ChanceryCourtchallengingHookseligibilitytoserveontheSchoolBoardandseekingdeclaratory $ t andinjunctiverelief.Thetrialcourtdeniedtherequestforatemporaryrestrainingorder.Hooks  ` receivedalmostfiftysixpercentofthevotescastonAugust6,1998,andamajorityofthevotescast  L  inthegeneralelectionheldNovember3,1998.  8    HalbertcontendsthattheAugust6,1998,andNovember3,1998,electionsarevoidbecause   HookswasnoteligibletoserveontheSchoolBoard.Sheseeksanewelection.SeeForbesv.Bell,   816S.W.2d716,71924(Tenn.1991);Emeryv.RobertsonCo.ElectionComn,586S.W.2d103,   109(Tenn.1979).Inresponse,Hooksinsiststhathehascompliedwithallresidencyandeligibility   requirementsor,inthealternative,iftheSchoolBoardscharterestablishesadurationalregistration p requirement,suchrequirementinfringesonhisrighttoholdpublicofficeinviolationoftheEqual \ ProtectionClauseoftheFourteenthAmendmenttotheUnitedStatesConstitution.Cf.Dunnv. H Blumstein,405U.S.330,92S.Ct.995,31L.Ed.2d274(1972).Thus,theessentialissuebefore 4 usiswhetherHooksiseligibletoserveasamemberoftheBoardofEducationoftheMemphisCity  p Schools.Theresolutionofthisissuehingesonthemeaningoftheterm residentvoterasusedin  \ theSchoolBoardscharter. H   Weareoftheopinionthattheterm residentvoterneitherrequiresnorincludesthatthe   subjectpersoneitherregisterorvote.Thus,weconcludethatHooksmetalleligibilityrequirements   forserviceontheSchoolBoard.WeaffirmthejudgmentoftheChanceryCourtanddismissthis  causeofaction.  @JJII.StandardofReview l   Theissuepresentedisaquestionoflawtoberevieweddenovowithnopresumptionof D! correctnessgiventhelowercourtsjudgment.Myintv.AllstateIns.Co.,970S.W.2d920,924 0"  (Tenn.1998). #l!   Inconstruinglegislativeenactments,theprincipalgoalsaretoascertainthelegislativeintent $D # andgiveiteffectwithoutundulyrestrictingorexpandingitscoveragebeyonditslimitedscope. %0!$ Austinv.MemphisPub.Co.,655S.W.2d146,14849(Tenn.1983).Thatintentisprimarily &"% discernedfromthelanguageoftheenactment.Browderv.Morris,975S.W.2d308,311(Tenn.  1998). Courtsarerestrictedtothenaturalandordinarymeaningofthelanguageusedbythe  legislatureinthestatute,unlessanambiguityrequiresresortelsewheretoascertainlegislative  intent.Id.Wheredifferentmeaningsarepossiblefromthelanguage,anambiguityexists.Owens t v.State,908S.W.2d923,926(Tenn.1995). ` #X9XXX9#X9XXX9@#III.Analysis 8    TheMemphisCitySchoolsisaspecialschooldistrictwhosechartercomprisesaseriesof  ` PrivateActsoftheTennesseeGeneralAssembly,theearliestofwhichwasenactedin1869.The  L  actrelevantheretookeffectin1970.  #  3      ׀Essentially,itaddstotheeligibilityrequirementsforservice  8  ontheSchoolBoardbyimposingafiveyeardurationalresidencyrequirement: $  8  8`   Nopersonshallbeelected,orappointedashereinafterprovided,as   amemberoftheBoardofEducationoftheMemphisCitySchools   unlessheorsheshallhavebeenaresidentvoterandtaxpayerofthe   CityofMemphisfornotlessthanfive(5)yearsprecedinghisorher p electionorappointment....\` x` x Id.(emphasisadded). 4   TheappellantconcedesthatHookshasatalltimesbeenaresidentoftheCityofMemphis.  \ ThatHookshasbeeneligibletovoteformorethanfiveyearsprecedingtheelectionisconceded H also.Theappellantssolecontention,then,isthattheterm residentvoterinthecharterrequires 4 thatacandidateactuallyregisterandvotefiveyearspriortotheelectionasdistinguishedfrom   merelybeingeligibletodoso.Thougheligiblemuchearlier,Hooksregisteredtovote   approximatelyoneyearbeforetheelection.Thus,Hookseligibilitytoservehingessolelyonthe  constructionofChapter340ofthe1970PrivateActs.  #X9XXX9#X9XXX9  Toresolvethismatter,wemustconstruetheterm residentvoter.Whilethetermisnot l definedintheAct,theresidencerequirementsarenotcontested,soourfocusisontheword voter X  asusedintheterm residentvoter.Theword voteris,however,undefinedincontext.Moreover, D! #X9XXX9I&#thewordhasseveralpossiblemeaningsasisnotedbyBlacksLawDictionary: 0"  8  8`   X9XXX9Thewordhastwomeanings!apersonwhoperformstheactofvoting, $X" andapersonwhohasthequalificationsentitlinghimtovote.Its $D # meaningdependsontheconnectionsinwhichitisused,andisnot %0!$ alwaysequivalenttoelectors.Inalimitedsenseavoterisaperson &"% havingthelegalrighttovote,sometimescalledalegalvoter.'#&` x` x   (#' BlacksLawDictionary1576(6thed.1990).#X9XXX9(#ԀX9XXX9ԀThus,wemusttreatitasambiguousandlookto   sourcesbeyondtheActforitsmeaning.Insodoing,wefindourdecisionin#X9XXX9*#X9XXX9Trammelv.Griffin  #  4      #X9XXX9+#X9XXX9  persuasive.#X9XXX9~,#X9XXX9Ԁ    InTrammel,wewereasked#X9XXX9,#X9XXX9todeterminewhethertheword voter,asusedinacitycharter, ` meant apersonhavingthequalificationsentitlinghimtovote,or...apersonwhohasregistered L  andthuslawfullyevidencedhisrighttovote.Id.Weconcludedthat #X9XXX9f-#X9XXX9[a]ninspectionofour 8  electionandregistrationlawsdemonstratesthatthewordvoterisusedthereininthesenseofone $ t whoisqualifiedtovote,andnotinthesenseofaregisteredvoter.Id.at727.Inreachingthis  ` conclusion,wereliedontheprinciplethatregistrationlawsdonotpertaintothe qualifications  L  thatcitizensarerequiredtopossessbeforebeing entitledtovotebutrathertotheregulationofthe  8  exerciseofthatright.#X9XXX9.#X9XXX9 $    OurdecisioninTrammelisconsistentwithdecisionsfromotherjurisdictions.Forexample,   inGilbertv.Breithaupt,theNevadaSupremeCourtheldthatregistrationwasnotrequiredinorder   toconstitutetheappellantasa qualified#X9XXX9g1#X9XXX9voter.104P.2d183(Nev.1940).Similarly,inInReRay,   theCircuitCourtofNewJerseydeterminedthatacitizenofNewJerseywasa legalvoterdespite p nothavingregistered.56A.2d761(N.J.Cir.1947)#X9XXX92#X9XXX9.Inreachingthisconclusion,thecourtreasoned \ that: H 8  8`   [t]herighttoholdofficeisavaluableoneanditsexerciseshouldnot  p bedeclaredprohibitedorcurtailedexceptbyplainprovisionsoflaw  \ ...Statutesimposingdisqualificationsaretobeconstruedstrictly, H whilethosedeclaringqualificationsaretoreceivealiberal 4 construction.Inconsequence,ambiguitiesaretoberesolvedinfavor   ofeligibilitytooffice....Thepurposeofrequiringvoterstoregister   permanentlyistoprotectthepurityoftheballotbox,byascertaining  beforethevoteiscastwhetherornotsuchpersonspossessthe  qualificationstovoteandbypreventingimpersonationsthereafterat  thepolls.l` x` x Id.at763(allcitationsomitted).Thecourtcontinued: D!     8  8`   [i]nthepresentcasetheincumbentRaywaselectedbyavoteofthe #l! people.Heshouldnotbepreventedfromtakinghisseatas $X" councilman,unlessclearlyineligibleundersomeconstitutionalor $D # statutoryprovision.ThelanguageofR.S.19:23-15,N.J.S.A.,in %0!$ requiringapersonacceptingtheendorsementfornominationtostand &"% forofficetocertifythatheisalegalvoter,isnotsufficientlyexplicit '#& toshowalegislativeintenttodepriveapersonotherwisequalified (#' fromtherighttoholdapublicofficebecauseheisnotaregistered )$( voter.Itismyopinionthatthelegislature,inemployingtheterm  legalvoterintheabovesection,meanttorefertothosequalities  whichmustexist,insum,tomakeofhimavoter,asconferringon  himtherighttobeplacedamongtheclassofpersonswhichthe t constitutionofourstatecreatesanddeclaresvoters.Whenthe ` legislaturepassedthepermanentregistrationlaw,itismybeliefitdid L  notintendtoalterthequalificationsofoneseekingpublicoffice.The 8  latterlawreferstotheideaofarecordingofthefactthatapersonhas $ t givenproperevidenceoftheexistenceofthequalitieswhich  ` constitutehimalegalvoter.Theelectionlawswereneverintendedto  L  setforthqualificationsofofficeholders.#X9XXX9D4#X9XXX9 8 ` x` x 8Id.at765(citationsomitted).8  8h hphp   #X9XXX9X?#X9XXX9  #X9XXX9A@#X9XXX9Wehold,therefore,thattheterm residentvoterasusedintheSchoolBoardscharter   provisionestablishingtheeligibilityrequirementsforserviceon#X9XXX9@#X9XXX9theBoardofEducationofthe   MemphisCitySchools#X9XXX9A#X9XXX9Ԁrequiresthecandidatetopossessthelegalqualificationswhichwouldentitle p himorhertovoteintheelectionifregistered.Weholdalsothatregistrationlawsdonotaffectthe \ qualificationsforvoting;theymerelyregulatehow votersmayexercisethisright.Thus, H registrationlawshavenoapplicationhere.   #  5      ׀#X9XXX9B# 4    \ @rr#IV.Conclusion   @    X9XXX9Asdiscussedabove,weholdthatHooksisa residentvoterandisthuseligibletoserveas  amemberoftheSchoolBoard.We,therefore,donotreachtheconstitutionalissuesraisedby t Hooks.#X9XXX9D#  #  6      X9XXX9ԀAccordingly,thejudgmentofthetrialcourtisaffirmed,andthiscauseisdismissed.#X9XXX9BF#X9XXX9 `   Costsaretaxedtotheappellant,WandaHalbert.#X9XXX9F# 8     `     h     ___________________________________ $     `     h     ADOLPHOA.BIRCH,JR.,JUSTICE