WPC y%"I ѱϲ HRAY%@8 Q*~wm&Ɉ`L\o(d P&F_`X2׿2oN@pnՔ`4ln$A?'*¶NT9^[ oUnM>WI=˦uLW|y"~:hoI Nhsm8 o/5޷l%Hv֥Ӭʛ!/z6YlS9۞UP'/MU{TK`#1 )'ɿ^jó_-I 9ʝ^)kN)]Ԍ{R]gز5'g{ݫcqDԿ$MBAw)_ CIuPLפ9rw wrȯR[&W?7 | pzūJc7T yJBћ,# hUNs % 0(e  0 0DU:w=4U:4' ./ k] . U: U:03jU:N3U:U:N^  m BU: AQU!:N 0DN 0D 0D D/ BIf D3iU:HP LaserJet 4SiHPPCL5MS,,,,,,0nLh(hH  Z 6Times New Roman RegularX($ (v(2$ !  4XXXXPXX   0  (#$  0  ,  AZ"Arial Regular#P#[#D#E#P#Re##H###E#[##D#D#D#D##D##U#D##Ӏ#օ#%(3|x#,  AZ"Arial Regular  6$4X+XXXXX+   2    Theomissionofspecificstatutorylanguageexcludingprisondisciplinaryproceduresmay  havebeenlegallyrelevantifthelegislaturehaddraftedotherstatutoryprovisionsundertheUAPAspecificallyexcludingproceduresgoverningareassuchasprisonerjobterminationorproceduresgoverningparolehearings. $ 6$4X+XXXXX+   1    _Theprisonershaveraisedadditionalissueswhichwehavereviewedandfoundtobe  devoidofmerit. a 9$4= Xdd=Xt+XXX[XXt+   1    _Theprisonershaveraisedadditionalissueswhichwehavereviewedandfoundtobe  devoidofmerit. $ 6$4X+XXXXX+   1    _Theprisonershaveraisedadditionalissueswhichwehavereviewedandfoundtobe  devoidofmerit.,  AZ"Arial Regular,  AZ"Arial Regular ) 9$4= Xdd=Xt+XXX[XXt+   2    Theomissionofspecificstatutorylanguageexcludingprisondisciplinaryproceduresmay  havebeenlegallyrelevantifthelegislaturehaddraftedotherstatutoryprovisionsundertheUAPAspecificallyexcludingproceduresgoverningareassuchprisonerjobterminationorproceduresgoverningparolehearings. ,  AZ"Arial Regular  ) 9$4= Xdd=Xt+XXX[XXt+   2    Theomissionofspecificstatutorylanguageexcludingprisondisciplinaryproceduresmay  havebeenlegallyrelevantifthelegislaturehaddraftedotherstatutoryprovisionsundertheUAPAspecificallyexcludingproceduresgoverningareassuchprisonerjobterminationorproceduresgoverningparolehearings. ,  AZ"Arial Regular,  AZ"Arial Regular  6$4 X+XXX XX+   2    Theomissionofspecificstatutorylanguageexcludingprisondisciplinaryproceduresmay  havebeenlegallyrelevantifthelegislaturehaddraftedotherstatutoryprovisionsundertheUAPAspecificallyexcludingproceduresgoverningareassuchasprisonerjobterminationorproceduresgoverningparolehearings. 5% U d,  AZ"Arial Regular#$%&'C<< C,  AZ"Arial RegularLevel 1Level 2Level 3Level 4Level 5(3$ !  (3$ !  ($$   1  ((' dxdP Pd $"  +XXXX+9 X+X   Ad FILED+XX +9  October19,1998CecilW.CrowsonAppellateCourtClerkdAh 'dxd,cAZ"Arial Regular !  ####4"XXXX"&%&X"X###TR[A' Legal3'A' Legal3'T####TR[A'Legal Red3'A' Legal3'T#     ќ#= + XXdd=#"P&"&%"*US \\ (:!&)*  ##7XXdd7#  10\10\1998(12:52pm)!  :.tdG:\IB013S2\OPINION\ACTIVE\MANDELA.JMH\MANDELAJ.OPNtG:\IB013S2\OPINION\ACTIVE\MANDELA.JMH\MANDELAJ.OPN/  ##"&%&"P### ####r!)*<,(j 8` `@E ` 8ttxP,  r######@DINTHESUPREMECOURTOFTENNESSEE##@)DATNASHVILLE̜######   <      D   FORPUBLICATION̜# ###No.9848### #   <      D   Filed: 򀀀##񀀀#October19,1998####October12,1998###T$T$MT$   _JABARI_ԀISSAMANDELA,@&&/D) z  @&&/D) APPELLANT,@&&/D) "  @&&/D)  DAVIDSONCHANCERY   v.@&&/D)   @&&/D)  Hon.RobertS.Brandt,Chancellor   _DONAL_ԀCAMPBELL,COMMISSIONER,@&&/D) bZ  #t!)*>.*jxb` `@EV` 8ttxP2 tߛ#THETENNESSEEDEPARTMENTOF@&&/D)  No.01S019705CH00110 2*  CORRECTION,@&&/D)   @&&/D) APPELLEE.@&&/D)  LUTHERDAVIS,@&&/D)   @&&/D) APPELLANT,@&&/D)  @&&/D)v.@&&/D) RJ @&&/D)  WAYNECHANCERY " @&&/D)JIMROSE,ASSISTANT@&&/D)  Hon.JimT.Hamilton,Judge  COMMISSIONEROFTHE@&&/D)  TENNESSEEDEPARTMENTOF@&&/D)  No.01S019709CH00184 b Z CORRECTION;KEVINMYERS,@&&/D) 2!*  WARDEN;ANDRUSTY_HARVILLE_,@&&/D) "! DISCIPLINARYBOARDCHAIRMAN,@&&/D) "" @&&/D) APPELLEES.@&&/D) r$j$ FORAPPELLANTSMANDELAAND D FORAPPELLEESCAMPBELL,ROSE, &' DAVIS:  <      D MYERSAND_HARVILLE_: ' ( FRANKJ._SCANLON < _    JOHNKNOX_WALKUP_ R)J"* MATTHEWA.BOYD <      D ATTORNEYGENERALANDREPORTER "*#+ Nashville   <      D MICHAELE.MOORE   <      D SOLICITORGENERALFORAMICUSCURIAE,CORRECTIONS b-Z&/ CORPORATIONOFAMERICA:   D MICHAELW._CATALANO_ 2.*'0    <      D ASSOCIATESOLICITORGENERALWILLIAMB._HUBBARD_     D Nashville /(2 Nashville   <      D FORAPPELLEESMYERS##AND##### ! #### B2:+5  ## #### < ####  ####  #### D #####HARVILLE##_:## 3 ,6    <      D TOMANDERSON   <      D Lexington######@--)D OPINION  70< AFFIRMEDASMODIFIEDh h CT$HOLDER,J.  92>9 М######` ћ##ћ### қ#"XX&"&% XXX"X  OPINION ####  #"XXXX#XXX"X Wegrantedthisconsolidatedappealtoaddressthefollowingimportant   issues:(1)whethertheDepartmentofCorrectionsdisciplinarypolicy#9502.01improperlydelegatesresponsibilityofprisondisciplinetoaprivatecontractor;and(2)whethertheDepartmentof####Corrections####disciplinarypoliciesare"rules"withintheambitoftheUniformAdministrativeProceduresAct.Wehavecarefullyreviewedtherelevantstatutes,law,andtheparties'briefs.Weholdthatpolicy#9502.01isnotanimproperdelegationandthatthedisciplinarypoliciesbeforeusarenot"rules"withintheambitoftheUniformAdministrativeProceduresAct.####Tenn.####CodeAnn.#"XXXX#XXX"X#"XXXXq#XXX"XԀ####45102(10).####Theappellantsclaimsare  dismissed.@hh*D BACKGROUND  h` 4 A ####These####causesofaction####concern####prisondisciplinaryproceedingsinstateprisonsoperatedbyprivatecontractors.TheTennesseeDepartmentofCorrection("TDOC")isthestateagencyresponsiblefortheadministrationofourstateprisonfacilities.Inthecasesnowbeforeus,theTDOCcontractedwithaprivatecorporation,CorrectionsCorporationofAmerica("CCA),tooperatetheSouthCentral####Correctional####Facility("SouthCentral").TheTDOChasestablishedUniformDisciplinaryProcedureswhichgoverndisciplinarymattersinstateprisons.ThesedisciplinaryproceduresareenumeratedintheTDOC'sAdministrativePoliciesandProcedures.Accordingly,disciplinarymattersatSouthCentralarehandledpursuanttotheTDOC'spoliciesandprocedures. Theappellants,LutherDavisand_Jabari_ԀIssaMandela,areinmatesatSouthCentral.Bothprisonerscommitteddisciplinaryviolationsandwere 926 disciplinedpursuanttotheTDOC'sUniformDisciplinaryProcedures.Theprisonershavemadenumerouschallengestothevalidityoftheirdisciplinaryactions.Wegrantedaconsolidatedappealtoaddress:(1)whethertheTDOC'sUniformDisciplinaryProceduresunlawfullydelegateddisciplinaryauthoritytothe####CCA;####and(2)whethertheTDOC'sUniformDisciplinaryProceduresconstitute"rules"undertheUniformAdministrativeProceduresAct("UAPA").######## #  1       h`  #"X+XXX+:#   DELEGATION  (  I"X+XX"X+ TheTDOC'sUniformDisciplinaryProcedureswereimplementedtoprovidea"fairandimpartialtribunal[tohear]alldisciplinarychargesbroughtagainstinmatesoftheTDOC."Policy#9502.01(IV)(A).Thepolicygovernsthemannerinwhichdisciplinaryhearingsshallbeconducted,outlinesanaccused'srights,andestablishesadisciplinaryboard.Disciplinaryboardsarecomprisedofsixinstitutionalemployees,and#"X+XXX+"#X+XX"X+"disciplinary_hearing[s_]shallbeconductedbeforea H!@ panelofatleast####three####(3)members"ofthedisciplinaryboard.Policy#9502.01(VI)(A)(I). TheUniformDisciplinaryProceduresmandateappointmentofaliaisonbetweentheTDOCandtheprivatecontractor.Thisliaisonisreferredtoasa"Commissioner'sDesignee."The####commissioner's########designee####isaTDOCemployeewhois"authorizedbythecommissionertoserveastheapprovingauthorityforspecifiedactionsoccurringatprivatelycontractedTDOCfacilities."Policy#9502.01(IV)(I).A####commissioner's########designee####shall:8 observeallClassAandBdisciplinaryhearings,andapproveormodifyallrecommendationsofthedisciplinaryboardatthetimeof 6/3 thehearing.IncasesofClassCinfractionswherepunitivesegregationisrecommended,thecommissioner'sdesigneemustapprove/modifytherecommendationassoonaspossibleandpriortotheinmate'splacementinsegregation.Ifthecommissioner####[sic]####designeeisnotpresentataClassChearingatwhichtheboardrecommendsanypunishmentotherthanaverbalwarning,thechairpersonshallforwardalldocumentationtothe####commissioner########[sic]####designeeforreviewpriortopunishment#"X+XXX+|$#X+XX"X+.'  ! ! Policy#9502.01(VI)(D)(2).Accordingly,thedisciplinaryboardconductshearings,reviewstheevidence,andmakesrecommendationstotheTDOCliaisonwhomustapproveormodifytheboard'srecommendation. TheissuewithwhichwearenowconfrontediswhethertheTDOC'sdisciplinarypolicyviolatesthePrivatePrisonContractingActof1986.ThePrivatePrisonContractingActiscodifiedatTenn.CodeAnn.####4124101########to####115andprovidesinpertinentpart:8 Nocontractforcorrectionalservicesshallauthorize,alloworimplyadelegationoftheauthorityorresponsibilityofthecommissionertoaprisoncontractorforanyofthefollowing:....[_g]ranting_,denyingorrevokingsentencecredits;placinganinmateunderlessrestrictivecustodyormorerestrictivecustody;ortakinganydisciplinaryactions.#"X+XXX+1+#X+XX"X+&" ! ! Tenn.CodeAnn.4124110(5).Accordingly,wemustdecidewhethertheTDOC'sUniformDisciplinaryProceduresviolateTenn.CodeAnn.4124110(5)bypermittingprivatecontractoremployeestositondisciplinaryboards.#"X+XXX+/# Inthecasesnowbeforeus,adisciplinaryboardwascomprisedofprivatecontractoremployees.Theseprivatecontractoremployeesreviewedtheevidence,enteredfindings,andmaderecommendationstoaTDOCliaison.ThefX+XX"X+inalapprovalofthedisciplinaryrecommendationrestedsolelywiththeTDOC 704 commissioner'sdesignee.Theboard'srecommendationastopunishmentwas 926 merelyarecommendation,andactual#"X+XXX+1#X+XX"X+disciplinewasnotimposeduntiltheTDOC  representativereviewedthecaseandapprovedtheboard'srecommendation.Accordingly,t#"X+XXX+2#X+XX"X+heTDOCretainedtheauthoritytopunishtheprisonersand,infact,   imposedthepunishmentsinthecasesnowbeforeus.P#"X+XXX+3#X+XX"X+olicy#9502.01doesnot   violateTenn.CodeAnn.4124110(5).Thisissueisdevoidofmerit.#"X+XXX+4#    X+XX"X+   "RULE"  H@  5 Thenextissuewithwhichwearenowconfrontediswhether#"X+XXX+v5#ԀtheTDOC's  UniformDisciplinaryProceduresare"rules"asdefinedbytheUAPAandsubjecttotheUAPA's####rulemaking####requirements.X+XX"X+TheUAPAprovidesthatruleswithinthe  ambitoftheUAPAmustbepromulgatedbypublic####notice.####TheUAPA####also####requiresapublichearing,approvalbytheattorneygeneral,andfilingwiththestate.Tenn.CodeAnn.45202,203,206,211.FailuretopromulgatearuleascontemplatedbytheUAPArenderstherulevoid.Tenn.CodeAnn.#"X+XXX+ 7#X+XX"X+Ԁ45216. H!@ ̜#####"X+XXX+9## # Theappellantsarguethat X+XX"X+theTDOC'sproceduresgoverningdisciplinary %  proceedingsmustbewithintheambitoftheUAPA#"X+XX X+9#simplybecauseTenn.Code &" Ann.####45106(b)explicitlyprohibits####reviewofdisciplinarydecisionsunder#the#####UAPA.Theappellants'argumentisfundamentallyflawed.Section45106(b)merelyexemptscertainagencydecisionsfromreviewundertheUAPA.Thisstatutoryexemption,however,neitherimpliesthatprisondisciplinaryproceduresaresubjecttotheUAPAnoraddressesscrutinyofthoseprocedures.### ######### #  2      ׀We, H0@),  therefore,areunpersuadedbytheargumentthatthelegislatureintendedthe (2 +. TDOC's##displinary###disciplinary#procedurestobesubjecttotheUAPAsimplybecausethelegislaturehasprohibitedreviewofdisciplinarydecisionsunderthe####UAPA.##### #  TheUAPAdefines"rule"asan"agencystatementofgeneralapplicabilitythatimplementsorprescribeslaworpolicyordescribestheproceduresorpracticerequirementsofanyagency."Tenn.CodeAnn.45102(10).TheUAPA'sdefinitionofrule,however,specificallyexcludes"[_s]tatements_Ԁconcerningonlytheinternalmanagementofstategovernmentandnotaffectingprivaterights,privilegesorproceduresavailabletothepublic."Tenn.CodeAnn.4-5-102(10)(A).X+XX"X+ԀAccordingly,a#"X+XXX+@#X+XX"X+ԀpolicyisnotaruleundertheUAPAifthepolicy  concernsinternalmanagementofstategovernmentandifthepolicydoesnot  affecttheprivaterights,privileges,orproceduresavailabletothepublic.#"X+XXX+A# X+XX"X+ ThisCourt'sroleinstatutoryinterpretationistoascertainandeffectuatethe h` legislature'sintent.Statev._Sliger_,846S.W.2d262,263(Tenn.1993).Whena H!@ statute'slanguageisunambiguous,thelegislativeintentshallbederivedfromtheplainandordinarymeaningofthestatutorylanguage.CarsonCreekVacation %  Resorts####v.########State,####865S.W.2d1,2(Tenn.1993).If,however,astatute'slanguage &" isambiguousandthepartieslegitimatelyderivedifferentinterpretations,wemustlooktotheentirestatutoryschemetoascertainthelegislativeintent.Owensv. *#& State,908S.W.2d923,926(Tenn.1995).#"X+XX X+]B#X+XX"X+ ,%(  WhetherthelegislatureintendedtheUAPAtobeapplicabletoprisondisciplinarypoliciesandproceduresmaynotbegleanedfromtheplainlanguageoftheUAPA.Membersofouresteemedappellatecourthavedisagreed,andbothsidestothisdisputeadvancecompellingarguments.We,therefore,willfocusonlegislativeintentinaddressingthisissue.#"X+XXX+E#X+XX"X+ 926  ThisCourtmaylooktorelatedstatuteswhenattemptingtoascertainlegislativeintent.Statutesrelatingtothesamesubjectorhavingacommonpurposeshallbeconstruedinparimateria.Theconstructionofonesuchstatute,ifdoubtful,maybeaidedbythelanguageandpurposeofanotherstatute.Lyons   v._Rasar_,872S.W.2d895,897(Tenn.1994)#"X+XXX+G#X+XX"X+.   ThelegislaturehasprovidedtheTDOCconsiderabledeferenceandbroaddiscretionarypowerstoenabletheTDOCtomanageitstremendousresponsibilities.SeeTenn.CodeAnn.46102(stating,"_The_Ԁmanagementand  governmentofthestatepenitentiariesforadultsarevestedinthedepartmentofcorrection.Ithasallthepowernecessaryforthefullandefficientexerciseoftheexecutive,administrative,andfiscalsupervisionoverallsuchinstitutions,exceptasotherwiseexpresslyprovided.").#"X+XXX+I#X+XX"X+Thisbroadgrantoflegislativediscretion  necessarilyincludesthepowertoestablishpoliciesandproceduresforhandlingdisciplinarymatters.Thisbroadgrantofdiscretionalsoenvisionsthatthosepersonsintimatelyinvolvedwiththeintricaciesoftheprisonsystemandnotthevotingpublicarebestequippedtoestablishpoliciesandproceduresforinmatediscipline. Thepromulgationrequirementsofpublicnotice,publichearing,attorneygeneralapproval,andfilingwiththestatearesimplynotrealisticrequirementsforimplementingproceduresthatconcerntheintricaciesandcomplexitiesofaprisonenvironment#"X+XXX+]L#X+XX"X+.#"X+XXX+6O#X+XX"X+In_L'Heureux_Ԁv.Dept.ofCorr.,708A.2d549(R.I.1998),theRhode H0@), IslandSupremeCourtreviewedanadministrativeproceduresactsimilartotheUAPA:̀8 WearepersuadedbytherationaleoftheforegoingfederalandstatecasesthattheintricatestructureofourAPAprovisionsrelatingbothtocontestedcasesandtotheexerciseoftherulemakingpower 926 wouldbeillsuitedtothemanagementoftheoftenvolatilepopulationofthe[AdultCorrectionalInstitution]....WeareoftheopinionthatthereadingofthelanguageoftheAPAtogetherwithourinterpretationoftheintentionoftheGeneralAssemblythatthisstatuteshouldbeappliedinthedeterminationofprivateandpublicrightsasopposedtothecircumstancesand####conditions####ofacorrectionalinstitutionleadinevitablytotheconclusionthattheAPAisnotapplicabletoclassificationproceedings,disciplinaryproceedings,orrulemakingdealingwiththeinternalaffairsofthe  _ACI_ԀbytheDOC.oP#"X+XXX+{O#X+XX"X+xp  ! ! ####Id.########at####553(emphasisadded). 80   #"X+XXX+vT#X+XX"X+ TheTDOC's####Uniform####Disciplinary####Procedures####areinternaloperatingproceduresdetailinghowdisciplinarychargesshallbeleviedandprocessedagainstinmatescommittingdisciplinaryinfractions.#"X+XXX+oU#X+XX"X+The####policies########have####been  carefullytailoredtooutlineanaccused'srightsandtoprovideafairandimpartialtribunalconstructedofmembersintimatelyfamiliarwiththeprisonsetting.Weholdthatthepertinentstatuteswhenreadinparimateriaevidencealegislativeintenttograntconsiderabledeferencetothosebestsuitedandmostfamiliarwiththeprisonsettingwhenconstructinginmatedisciplinarypoliciesandprocedures.Accordingly,weholdthatthelegislaturedidnotintendtheUAPAtogoverntheTDOC'sdisciplinarypoliciesandprocedures.####  ####  CONCLUSION  +$' Y Wehavereviewedtheappellants'remainingclaimsandholdthoseclaimstobedevoidofmerit.Wefurtherhold:(1)thattheTDOCsUniformDisciplinaryProceduresdonotunlawfullydelegatedisciplinaryauthoritytoaprivatecorporation;and(2)thattheTDOC'sUniformDisciplinaryProceduresarenot "rules"withintheambitoftheUAPA.Theappellants'claimsaredismissed.The 6/3 costsofthisappealshallbetaxedagainsttheappellantsforwhichexecutionmayissueifnecessary.#"X+XXX+V#     N      V   T$T$MT$    N      V   JANICEM.HOLDER,JUSTICE #Concurring:#####Panel:##  80  Anderson,C.J._Drowota_ԀandBirch,_J.J._Reid,Sp.J.NotParticipating