ÿWPC©$ V# ÄUNÏ % 0(#UNKw@™4Ùíü mþ 0Æ 0DÛ 0ØU:÷U:1 0Dk U:¯ 0ªé 6“ U:É {ª {Ø­ U:… b¿ Ç 0@Ï AQÆ` 0D& 0Dj D/® BÝ D3ú 0J- 0Tw 0^Ë 0h) 0r‘ 0| 0† 0 1u• 0d U*nB)˜DCÁ AMèQ´9Nív~;vÓ¹ BŒ$˜HP LaserJet 4SiHPPCL5MS,ü,,,,,ü0nLhÎ(ÖÃ9 Z‹6Times New Roman RegularX($¡¡(ÖÃ9 Z ‹6Times New Roman Regular D‘’D“”•D–—Ó€¡ê‚_#äƒ3|x¡ ÿU‹ÿÀÀÀ(v(2´O$¤¤Ý ƒ!ÝÝ  ÝÒ°ÒÒ„°ÒÔ€X#ÌXXXÔÔ€ôÈÐôXX#ÌÔà ` àòòÚ  Ú0Ú  Úóó(#Ã$òòÚ  Ú0Ú  Úóó<NNDÛy:QuickFormat1ÔÔÔ€XòÏXXXÔÔ€XòÏXXXòÏÔÔÔÔ€XòÏXXXÔÔ€XòÏXXXòÏÔ, øð AZ‹"Arial Regularo"Arial Regular(3¯$©©Ý ƒ!ÝÝ  Ý, øð AZ‹"Arial Regular<77Dp4:QuickFormat2Ô€XÔÔ€XÿÿXÔÔ  ÔÔ€XÔÔ€XÿÿXÔÔ  Ô PulaskiLakesiteCollegedaleRoaneWalkupTurleyFishervilleBerryhillKilcrease W.W.HerentonMathesBlantonPharr S.W.-ó‚ AZ‹"Arial Regular<77Dñ:QuickFormat1Ô€»ÔÔ€»ÿÿ»ÔÔ  ÔÔ€»ÔÔ€»ÿÿ»ÔÔ  Ô<NNDvÔ:QuickFormat1Ô€»ÒÙ»XXÔÔÔÔ€»ÖÛ»»»ÒÙÔÔ€»ÒÙ»XXÔÔÔÔ€»ÖÛ»»»ÒÙÔ, øð AZ‹"Arial Regular- ù-("ÿÿ$££Ò  ÒÒ  Ò!"$&Cþÿ<< CÿÿƒLevel 1Level 2Level 3Level 4Level 5(3¯$¢¢Ý ƒ!ÝÝ  Ý($$””ò òÚ  Ú1Ú  Úó ó(('÷ÿ dxdüÿP PdUUUU'ÿÿdxd2 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*+,-./01 ÿÿ?AGMSYaioIndent0I.A.1.a.(1)(a)i)a)P ÿÿ8Mac DefaultMac DefaultÓ ` °šXÓ< Œ 9p`(Arial% Line 7 d;;;;7Border 1dd!<Cþÿ << Gÿÿ ÞÝ ƒ!ÝÔ€:ÔÝ  ÝÝ ƒ""ÝÝ  ÝÔ€:ÔÓ  Óò òÔ YYY ÔFILEDÔ€:XÔÌÌDecember€10,€1997ÌÌCecil€W.€CrowsonÌAppellate€Court€ClerkÔ  Ôó ó ªÝ ƒ!ÝÑ#€d#ÑÔ€:ÔÝ  ÝÝ ƒ $ÝÒ  ÒÒ „ ÒÔ€:ÔÔ€:ôÔà àòòÚ  ÚÚ  ÚóóÝ  Ý€Ô_ÔIn€their€complaint,€the€plaintiffs€challenged€the€constitutionality€of€the€Act€as€(1)€violating€theÏcaption€provision€of€Tenn.€Const.,€Art.€II,€ðð€17;€(2)€violating€Article€II,€ðð€18€of€the€TennesseeÏConstitution€because€it€was€not€passed€on€three€different€days€in€each€House;€(3)€impairing€theÏobligation€of€the€plaintiffsðð€contractual€rights€and€retroactively€depriving€them€of€a€vested€right€inÏviolation€of€Article€1,€ðð€20€of€the€Tennessee€Constitution;€(4)€violating€Article€I,€ðð€8€and€Article€XI,€ðð€8€ofÏthe€Tennessee€Constitution€because€it€suspends€the€general€law€for€the€benefit€of€individuals€andÏviolates€equal€protection;€(5)€violating€Article€XI,€ðð€9€which€provides€that€the€General€Assembly€shallÏprovide€the€exclusive€methods€by€which€municipalities€may€be€created;€and€(6)€violating€Article€I,€ðð€5€ofÏthe€Tennessee€Constitution€providing€that€elections€are€to€be€free€and€equal€and€the€right€of€suffrageÏis€not€to€be€denied.€Ì DÝ ƒ!ÝÑ#€d#ÑÔ€:ÔÝ  ÝÝ ƒ $ÝÒ  ÒÒ „ ÒÔ€:ÔÔ€:ôÔà àòòÚ  ÚÚ  ÚóóÝ  Ý€Ô_ÔSince€the€Act€encompasses€one€subject,€we€reject€the€argument€that€the€Act€violates€ArticleÏII,€ðð€17€because€it€embraces€more€than€one€subject.€€We€likewise€reject€the€notion€that€the€Act€violatesÏArticle€II,€ðð€17€because€the€body€of€the€Act€is€in€direct€conflict€with€its€caption,€except€to€the€extent€thatÏthe€body€is€broader€than€the€caption.ÌPtPtHHÚ(ÿáÿâùFG(üHHØ(d'`Styl{WP}01•ÃÃÃÃÃÃÃÃÃÃÃÃÃÃÃÃÃÃà Ãà Ãà Ãà Ãà ÃÃÃÃÃÃÃÃÃÃÃÐ ÐÐHHÐÐ  ÐÐ2ÐÐÿÿ¸æ$ÿÐÐHHÐÐÐÐÐÐÐÐ  ÐÐ ÐÐ ÐÑÑÑGenevaÑÑ ÑÑ € ÑÑ<Px–ÈÑÒÒÒ443!#4ÒÒ$ *$ÒÒ$*$ÒÒ ÿKK ÒÒ  Geneva ÒÒ  Geneva ÒÓ.,ÓÓÓÓ6ÓÓ ÓßßßßßßßßßßßßßßßßßßÑGenevaÑÑ ÑÒ  ion-F Geneva ÒÒ  ion-F Geneva Ò dÝ ƒ!ÝÔ . ÔÔ€:ÔÝ  ÝÒ  ÒÒ „ ÒÑ À ÑÑ  ÑÑ\R AØ'\ÑÔ_ÔÑ7€V.XXdðdÈ7ÑØ ØÓ&€X8d&ÓÙ€!ÙßR€=><A1-j|U` ç `€€@ÿRß›Þ ÞÌà@ àIN€THE€SUPREME€COURT€OF€TENNESSEEÌà@ àAT€NASHVILLEÌœà@ à(Heard€at€Johnson€City,€Tennessee)›ÌÌÌà àà àà àà àà àà àà àœ€€€ò òòòFOR›€PUBLICATIONó óóóÌTENNESSEE€MUNICIPAL€LEAGUE,€à à)Ìet€al.,à àà àà àà àà àà à)à àò òòòFiled:€œ€December€10,€1997ó óóó›Ìà àà àà àà àà àà à)Ìà àPlaintiffs/Appellants,à àà à)à àDavidson€ChanceryÌà àà àà àà àà àà à)à àÌà àà àà àà àà àà à)à àHon.€Irvin€H.€Kilcrease,€Jr.,ÌVs.à àà àà àà àà àà à)à àà àChancellorÌà àà àà àà àà àà à)Ìà àà àà àà àà àà à)ÌBROOK€THOMPSON,€in€his€officialà à)à àSupreme€CourtÌcapacity€as€the€State€Electionà àà à)à àNo.€€01S01„9711„CH„00242ÌCoordinator,€et€al.,à àà àà àà à)Ìà àà àà àà àà àà à)Ìà àDefendants/Appellees.à àà à)ÌÌÌò òòòFor€Appellants,€Tennesseeà àà àà àFor€Appellees,€BrookÏThompson,ÌMunicipal€League:à àà àà àà àet€al.:ó óóóÌGeorge€E.€Barrettà àà àà àà àà àJohn€Knox€WalkupÌPhillip€A.€Purcellà àà àà àà àà àAttorney€General€and€ReporterÌBARRETT,€JOHNSON€&€PARSLEYÌNashville,€Tennesseeà àà àà àà àMichael€E.€MooreÌà àà àà àà àà àà àà àSolicitor€GeneralÌò òòòFor€Appellants,€City€of€Memphis:ó óóóà àà àÌLeo€Bearman,€Jr.à àà àà àà àà àMichael€W.€CatalanoÌAllan€J.€Wadeà àà àà àà àà àAssociate€Solicitor€GeneralÌDavid€L.€BearmanÌBAKER,€DONELSON,€BEARMANà àà àAnn€Louise€VixÌ€€&€CALDWELLà àà àà àà àà àSenior€CounselÌMemphis,€Tennesseeà àà àà àà àOffice€of€the€Attorney€GeneralÌà àà àà àà àà àà àà àNashville,€TennesseeÌÌò òòòà àFor€Intervenor€Appellees,€David€Sanders,€David€Lynn€Ranson,Ìà àJames€E.€Blount,€III,€and€James€F.€Leatherwood,€III:ó óóóÌà àà àVal€SanfordÌà àà àGULLETT,€SANFORD,€ROBINSON€&€MARTIN,€PLLCÌà àà àNashville,€TennesseeÌÌà àà àGordon€B.€OlswingÌà àà àLAW€OFFICES€OF€CHARLES€R.€PERKINSÌà àà àMemphis,€TennesseeÌÌà àà àLee€L.€PiovarcyÌà àà àMARTIN,€TATE,€MORROW€&€MARSTON,€PCÌà àà àMemphis,€TennesseeÌÌò òòòFor€Amicus€Curiae,à àà àà àFor€Amicus€Curiae,ÌCity€of€Elizabethton:à àà àà àTown€of€Oakland:óóó óÌCharlton€R.€DeVault,€Jr.à àà àà àEdward€B.€JohnsonÌKingsport,€Tennesseeà àà àà àSomerville,€TennesseeÌÌÌÔ€:„Ôò òà@ àO€P€I€N€I€O€Nó óÔ€:XÔÌÌÓÓREVERSED.à àà àà àà àà àà àà àà àAnderson,€C.J.ÇÑ  ÑÑ  ÑÑ ° ÑÑ€ÑÑ7€V.XXdðXXdð7Ñà àWe€granted€this€expedited€appeal€pursuant€to€Tenn.€Code€Ann.€ðð€16„3„201(d)€to€determine€a€question€of€unusual€public€importance€„€whether€1997€Tenn.ÏPub.€Acts,€ch.€98€(ð ðthe€Actðð),€which€dramatically€changed€requirements€forÏmunicipal€incorporation,€violates€the€Tennessee€Constitution.€€The€Chancery€CourtÏheld€that€the€Act€is€constitutional.€€We€conclude,€however,€that€the€Act€violatesÏArticle€II,€ðð17€of€the€Tennessee€Constitution€and€is,€therefore,€void€because€theÏbody€of€the€Act€is€broader€than€its€restrictive€caption.€€€Accordingly,€we€reverse.ÌÌà@ àòòò òBACKGROUNDó óóó€€€ÌÝ‚ ÿÝÔ€:ÔÔ€:XÔÝ  Ýà àÔT€ ÔÔT€ ÔDuring€the€1997€legislative€session,€the€General€Assembly€passed€1997ÏTenn.€Pub.€Acts,€ch.€98,€which€was€signed€into€law€by€the€Governor€on€April€16,Ï1997.€€The€Act€amended€the€municipal€annexation€provisions€in€Tenn.€Code€Ann.Ïðððð€6„1„201,€òòetóó€òòseqóó.€€The€caption€of€the€Act€provided€as€follows:Ý‚ ÿÝÝ  ÝÌÓÓÌà8 àà8 àò òAn€ACT€to€amend€Tennessee€Code€Annotated,ÏTitle€6,€Chapter€1,€Part€2;€Title€6,€Chapter€18,ÏPart€1;€and€Title€6,€Chapter€30,€Part€1,€relativeÏto€the€distribution€of€situs„based€tax€collectionsÏafter€new€municipal€incorporations€and€theÏtiming€of€elections€to€incorporate€newÏmunicipalities.Ìó óÌÌÓÓà àSections€7€through€11€of€the€Act€are€of€particular€relevance€to€the€issue€ofÏwhether€the€body€of€the€Act€is€broader€than€its€caption.€€They€provide€as€follows:ÌÌà àSpecifically,€Section€7€of€the€Act€lowered€the€population€requirement€forÏmunicipal€incorporation€of€territory€of€Tenn.€Code€Ann.€ðð€6„1„201(a)(1)€from€œ1,500›Ïpersons€to€only€225€persons.€€ÌÌà àSection€8€of€the€Act€completely€deleted€Tenn.€Code€Ann.€ðð€6„1„201(b)(1),Ïwhich€prohibited€incorporation€of€a€new€municipality€within€three€miles€of€anÏexisting€municipality€or€within€five€miles€of€an€existing€municipality€with€aÏpopulation€of€100,000€or€more.€€ÌÌà àSection€9€of€the€Act€replaced€subsection€(h)€of€ðð€6„1„201,€and€provided:€ÌÓÓÌà8 àà8 àNotwithstanding€the€requirements€of€ðððð€6„1„202,€6„1„203,€and€6„1„209,€or€any€other€provision€of€law€to€theÏcontrary,€the€petition€for€incorporation€may€consist€of€aÏletter€from€a€resident€of€the€territory€desiring€toÏincorporate€to€the€county€election€commissionÏrequesting€that€the€question€of€incorporating€the€territoryÏbe€placed€on€the€ballot.€€The€letter€shall€describe€theÏexact€boundaries€of€the€proposed€municipality€andÏindicate€the€name€of€the€proposed€municipality.€€TheÏletter€shall€be€treated€as€a€petition€meeting€all€of€theÏrequirements€of€the€law€if€such€petition€is€filed€with€theÏcounty€election€commission€before€December€31,€1997.ÌÌÓÓÌThus,€a€letter€from€a€single€resident€may€be€used€in€lieu€of€a€petition€to€incorporateÏand€is€to€be€treated€as€a€petition€meeting€all€the€requirements€of€the€law€if€filedÏbefore€December€31,€1997.€€No€plan€of€municipal€services€or€five„year€budget€orÍprojected€tax€rate€is€required€as€a€part€of€the€petition.€€In€contrast,€ðððð€6„1„202,€6„1„203,€and€6„1„209€€had€required€a€petition€for€incorporation€signed€by€thirty„threeÏand€one„third€percent€(33€1/3%)€of€the€registered€voters€of€the€territory€to€beÏincorporated,€a€plan€of€municipal€services,€a€five„year€budget€with€identifiedÏpotential€revenue€and€expenses,€and€a€projected€tax€rate.ÌÌà àSection€10€of€the€Act€added€subsection€(j)€to€Tenn.€Code€Ann.€ðð€6„1„201€andÏprovided€that€any€territory€that€has€conducted€an€election€under€this€section€beforeÏApril€16,€1997,€is€deemed€to€have€satisfied€the€requirements€for€incorporation.€ÏNew€subsection€(j)€also€provided€that€any€ordinance€of€annexation€by€anotherÏmunicipality€for€any€territory€within€the€corporate€limits€of€such€new€municipality€isÏvoid.€€Section€10€also€added€new€subsection€(k)€to€Tenn.€Code€Ann.€ðð6„1„201€andÏprovides€that,€if€a€territory€has€proposed€to€be€incorporated€pursuant€to€Tenn.€CodeÏAnn.€ðð€6„1„201€after€January€1,€1996,€that€new€municipality€shall€have€priority€overÏany€annexation€ordinance€of€an€existing€municipality€which€encroaches€upon€anyÏterritory€of€the€new€municipality.€€ÌÌà àSection€11€of€the€Act€provided€that€sections€7€and€8€of€the€Act€remain€inÏeffect€for€one€year€from€the€effective€date€of€the€Act,€and€that€at€the€expiration€of€thatÏone€year€period,€the€statutory€language€in€place€immediately€before€the€Act€tookÏeffect€will€be€revived€and€will€again€be€in€effect.€Ìà àÌà àOn€July€25,€1997,€a€suit€was€filed€seeking€a€declaratory€judgment€thatÏsections€7€through€11€of€the€Act€are€unconstitutional€under€various€provisions€of€theÏTennessee€Constitution.œ× ƒ? ××  ×›€€The€plaintiffs€are€the€Tennessee€cities€of€Memphis,ÏClarksville,€Harriman,€Pulaski,€Jackson,€Lakesite€and€Collegedale,€and€theÏTennessee€Municipal€League.€€The€defendants€are€Brook€Thompson,€StateÏCoordinator€of€Elections;€the€members€of€the€Tennessee€State€ElectionÏCommission;€and€the€members€of€the€County€Election€Commissions€of€Shelby,ÏMontgomery,€Roane,€Giles,€Madison,€and€Hamilton€Counties.€€John€Knox€WalkupÏis€sued€in€his€official€capacity€as€Attorney€General.€€Subsequently,€the€trial€courtÏallowed€Forest€Hills€Associates€and€Dan€B.€Turley€Company€to€intervene€asÏplaintiffs€in€order€to€press€their€claim€that€the€Act€impairs€contracts€they€had€enteredÏinto.€€Intervening€defendants€are€individuals€who€filed€or€signed€petitions€toÏincorporate€the€Towns€of€Fisherville,€New€Berryhill,€New€Forest€Hills,€andÏIndependence.ÌÌÝ‚ ÿÝÔ€:ÔÔ€:XÔÝ  Ýà àDuring€the€pendency€of€the€trial€court€proceedings,€an€order€was€in€effectÏrestraining€the€holding€of€elections€pursuant€to€the€Act.€€Subsequently,€a€hearingÏon€the€merits€of€this€case€was€held€on€September€8,€1997,€before€Chancellor€IrvinÏKilcrease.€Ý‚ ÿÝÝ  ÝÌÌà àFollowing€the€hearing,€the€Chancery€Court€rejected€all€of€the€plaintiffsððÏclaims€and€found€the€Act€to€be€constitutional.€€The€plaintiffs€appealed€to€the€Court€ofÏAppeals€and€filed€a€motion€requesting€that€this€Court€use€its€ð ðreach€downðð€authorityÏand€assume€jurisdiction€of€the€appeal€pursuant€to€Tenn.€Code€Ann.€ðð€16„3„201(d).ÏBecause€the€issues€presented€are€matters€of€unusual€public€importance€in€whichÏthere€is€a€special€need€for€expedited€decision€and€which€involve€issues€ofÏconstitutional€law,€this€Court€granted€the€Motion€to€Assume€Jurisdiction€and€heardÏoral€argument.Ì€Ìà@ àò òòòThe€Caption€Provision€of€Tenn.€Const.,€Art.€II,€ðð€17óóó óÌà àArticle€II,€ðð€17€of€the€Tennessee€Constitution€provides:ÌÓÓà8 àà8 àò òSec.€17.€€Origin€and€frame€of€bills.€„ó ó€Bills€mayÏoriginate€in€either€House;€but€may€be€amended,€alteredÏor€rejected€by€the€other.€€No€bill€shall€become€a€lawÏwhich€embraces€more€than€one€subject,€that€subject€toÏbe€expressed€in€the€title.€€All€acts€which€repeal,€revive€orÏamend€former€laws,€shall€recite€in€their€caption,€orÏotherwise,€the€title€or€substance€of€the€law€repealed,Ïrevived€or€amended.ÌÌThe€caption€of€the€Act€at€issue€provides:ÌÌÌà8 àà8 àAn€ACT€to€amend€Tennessee€Code€Annotated,€Title€6,ÏChapter€1,€Part€2;€Title€6,€Chapter€18,€Part€œ1;›€and€Title€6,ÏChapter€30,€Part€1,€relative€to€the€distribution€of€situs„based€tax€collections€after€new€municipal€incorporationsÏand€the€timing€of€elections€to€incorporate€newÏmunicipalities.ÌÌÌ1997€Tenn.€Pub.€Acts,€ch.€98.ÌÌÌÓÓà àThe€plaintiffs€contend€that€this€caption€violates€Article€II,€ðð€17€in€threeÏrespects.€€They€contend€that€the€body€of€the€Act€is€broader€than€its€restrictiveÏcaption,€that€the€Act€embraces€more€than€one€subject,€and€that€the€body€of€the€ActÏis€in€direct€conflict€with€the€caption.€€We€agree€that€the€body€of€the€Act€is€broaderÏthan€its€restrictive€caption.ÌÌà àThe€second€and€third€sentences€of€Article€II,€ðð€17,€which€form€the€basis€forÏthe€plaintiffsðð€arguments,€were€added€when€the€Constitution€of€1870€was€adopted.€ÏThey€were€not€present€in€the€two€previous€Constitutions€of€1796€and€1834.€€ÌÌà àIn€1872,€in€its€first€opportunity€to€construe€the€new€language,€this€Court€heldÏthat€the€language€was€mandatory.€€òòCannon€v.€Mathesóó,€55€Tenn.€504,€518€(1872).€ÏWe€also€held€that€if€an€act€at€issue€embraces€more€than€one€subject€or€if€the€titleÏdoes€not€express€the€subject€of€the€act,€the€law€is€unconstitutional€and€invalid.€€òòIdóó.Ïat€518„19.€€The€Court€further€noted€that€the€purpose€of€the€provision€was€to€ð ðpreventÍsurprise€or€fraud€upon€the€Legislature,€by€means€of€provision€in€bills€of€which€theÏtitles€gave€no€intimation,€and€which€might€Ô_Ôœtherefere›Ô_Ô€(sic)€be€overlooked,€andÏcarelessly€and€unintentionally€adopted.ðð€€òòIdóó.€at€521.€€ÌÌà àThe€Constitutional€language€was€ð ðto€prohibit€so„called€ððomnibus€billsðð€andÏbills€containing€hidden€provisions€which€legislators€and€other€interested€personsÏmight€not€have€appropriate€or€fair€notice.ðð€€òòState€ex€rel.€Ô_ÔBlantonÔ_Ô€v.€Durhamóó,€526ÏS.W.2d€109,€111€(Tenn.€1975).€€Nonetheless,€the€provision€was€to€be€liberallyÏconstrued,€so€that€the€General€Assembly€would€not€be€ð ðunnecessarily€embarrassedÏin€the€exercise€of€its€legislative€powers€and€functions.ðð€€òòMemphis€St.€Ry.€Co.€v.ÏByrneóó,€119€Tenn.€278,€287,€104€S.W.€460,€461€(1907).€€ÌÌà àThis€Court€also€recognized€early€that€titles€to€acts€may€be€general€and€broadÏor€restrictive€and€narrow,€and€that€the€legislature€has€the€right€to€determine€for€itselfÏhow€comprehensive€the€object€of€the€statute€will€be.€€Moreover,€if€the€title€is€generalÏor€broad€and€comprehensive,€all€matters€which€are€germane€to€the€subject€may€beÏembraced€in€the€act.€€If€the€matters€are€naturally€and€reasonably€connected€with€theÏsubject€expressed€in€the€title,€then€they€are€properly€included€in€the€act.€€òòIdóó.€at€288„289.€€òòSeeóó€òòalsoóó€òòChattanooga„Hamilton€County€Hospital€Authority€v.€City€ofÏChattanoogaóó,€580€S.W.2d€322,€326€(Tenn.€1979),€and€cases€cited€therein.€€If,€onÏthe€other€hand,€the€legislature€has€adopted€a€restrictive€title€where€a€particular€partÏor€branch€of€a€subject€is€carved€out€and€selected,€then€the€body€of€the€act€must€beÍconfined€to€the€particular€portion€expressed€in€the€limited€title.€€òòByrneóó,€119€Tenn.€atÏ289,€104€S.W.€œat€461.›ÌÌà àIn€the€years€shortly€after€the€pronouncement€in€òòCannon€v.€Mathesóó,€thereÏwere€numerous€examples€of€acts€which€the€Court€declared€void€due€to€theÏrestrictive€nature€of€their€captions€and€the€broad€nature€of€the€body€of€the€act.€€ForÏexample,€in€òòJackson€v.€Weis€&€Lesh€Mfg.€Co.óó,€124€Tenn.€421,€137€S.W.€757€(1911),Ïthe€Court€held€€that€a€caption€entitled€ð ð[œa]n›€act€to€make€it€unlawful€to€employ€a€childÏless€than€twelve€years€of€age€in€workshops,€mines,€mills,€or€factories€in€this€StateððÏwas€restrictive.€€The€Court€held€that€the€legislation€at€issue€was€void€under€Article€II,Ïðð€17€because€the€text€of€the€bill€dealt€with€children€17€years€of€age€and€youngerÏand€was,€therefore,€broader€than€its€limited€caption.€€In€òòLedgerwood€v.€Pittsóó,€122ÏTenn.€570,€125€S.W.€1036€(1910),€the€Court€struck€down€a€statute€that€describedÏthe€selection€process€for€presidential€electors,€the€selection€of€delegates€to€aÏnational€convention€and€the€formulation€of€party€platforms€when€the€caption€wasÏlimited€to€ð ða€compulsory€system€of€legalized€primary€law,€for€the€politicalÏnomination,€to€create€the€agencies€for€its€operation€and€penalize€its€violation.ðð€TheÏview€has€been€followed.€€òòSeeóó,€òòe.g.óó,òò€ArmisteadÔ_Ô€v.€Ô_ÔKarschÔ_Ôóó,€192€Tenn.€137,€143,€237ÏS.W.2d€960,€962€œ(1951)(finding›€unconstitutional€an€act€which€in€its€body€providedÏbenefits€to€widows€of€all€city€employees€and€to€children€and€mothers€under€certainÏcircumstances€when€the€restrictive€provision€of€the€caption€stated€that€the€Act€wasÏð ðto€provide€certain€benefits€for€widows€of€pensioned€employeesðð).€€ÌÌà à€When€a€law€is€enacted€to€amend€a€previous€enactment€of€the€legislature,€itÏis€generally€deemed€consistent€with€Article€II,€ðð€17€if€the€caption€recites€the€title€orÏsection€of€the€law€to€be€amended.€€òòState€ex€rel.€Blanton€v.€Durhamóó,€526€S.W.2d€atÏ111;€òòPharr€v.€Nashville€C.€&€St.€L.€Ryóó.,€186€Tenn.€154,€160,€208€S.W.2d€1013,€1015Ï(1948).€€However,€beginning€in€1925€with€the€case€of€òòHays€v.€Federal€ChemicalÏCo.óó,€151€Tenn.€169,€268€S.W.€883€(1925),€this€Court€recognized€that€ð ð[Ô_Ôœw]here›Ô_Ô€theÏtitle€of€the€amendatory€act€recites€the€title€of€the€act€to€be€amended€and€alsoÏspecifies€the€amendments€to€be€made,€òòthe€legislature€is€limited€to€the€amendmentsÏspecified€and€anything€outside€of€these€is€voidóó.ðð€€òòId.óó€at€175€(emphasis€added).€ÏChief€Justice€Grafton€Green€explained:ÌÓÓÌà8 àà8 àIf€the€title€of€an€amending€act€merely€indicates€generallyÏthat€amendments€of€the€original€act€are€to€be€made,€thenÏit€rests€upon€all€those€affected€by€the€original€act€toÏinvestigate,€and€see€in€what€respects€the€original€act€isÏto€be€changed.€€If€the€title€of€the€amending€act,€on€theÏcontrary,€sets€out€the€particular€amendments€that€are€toÏbe€made€to€the€original€act,€it€may€be€reasonablyÏconcluded€that€no€amendments€other€than€those€statedÏare€to€be€attempted.€€It€would€promote€deception,€œif,›Ïunder€a€caption€undertaking€to€specify€amendments€toÏbe€made,€other€and€different€amendments€wereÏincluded€in€the€body€of€the€act.ÌÌÌÓÓòòId.óó€€òòSeeóó€òòalsoóó€€òòWoods€v.€Phillipsóó,€558€S.W.2d€825,€829€(Tenn.€1977);€òòTennesseeÏElectric€Power€Co.€v.€City€of€Chattanoogaóó,€172€Tenn.€505,€517,€114€S.W.2d€441,Ï445€(1937).ÌÌà àSimilarly,€this€Court€has€held€that€when€the€caption€is€restrictive€in€that€itÏð ðrelatesðð€to€a€specific€subject,€the€body€of€the€act€must€be€germane€to€the€restrictiveÏportion€of€the€caption.€€The€phrase€ð ðrelative€toðð€means€ð ðrelevant€to;€concerning;Ïabout;€corresponding€to;€in€proportion€to.ðð€€òòWebsterððs€New€World€Dictionaryóó€(2d€ed.Ï1980).€€Thus,€when€used€in€the€caption€to€an€act,€it€has€been€held€in€severalÏTennessee€cases€to€have€a€restrictive€or€narrowing€effect.€€òòSeeóó,€òòe.g.óó,€òòState€v.ÏChastainóó,€871€S.W.2d€661€(Tenn.€1994)(finding€that€caption€stating€ð ðAn€Act€toÏamend€Tennessee€Code€Annotated,€Title€55,€Chapter€10,€Part€4,€and€Title€53,ÏChapter€11,€òòrelative€toóó€the€confiscation€of€motor€vehicles€of€certain€offendersðð€was€aÏð ðnarrowðð€caption);€òòFarris€v.€Stateóó,€535€S.W.2d€608€(Tenn.€1976)(holding€that€bodyÏof€act€requiring€that€the€trial€judge€charge€the€jury€on€parole€consideration€notÏgermane€to€a€caption€which€referred€to€an€amendment€ð ðòòrelative€toóó€verdict€andÏsentence€in€felony€convictionðð).Ô_ÔÌÌà àApplying€the€foregoing€principles€to€the€case€before€us,€it€is€apparent€that€theÏLegislature€has€employed€the€use€of€a€ð ðrestrictiveðð€caption€in€Chapter€98,€PublicÏActs€1997.€€While€the€caption€refers€to€only€one€overall€subject× ƒ@ ××  ×,€the€amendment€ofÏTitle€6,€Chapter€1,€œPart›€2;€Title€6,€Chapter€18,€Part€œ1;›€and€Title€6,€Chapter€30,€Part€1,Íit€purports€to€amend€the€statutes€ð ðrelative€toðð€only€two€Ô_ÔsubpartsÔ_Ô:€1)€the€distribution€ofÏsitus„based€tax€collections€after€new€municipal€incorporations;€and€2)€the€timing€ofÏelections€to€incorporate€new€municipalities.ÌÌà àSections€7€through€11€of€the€Act€are€not€within€the€caption€which€is€restrictedÏto€the€above€two€specific€subparts.€€Sections€7€through€11€reduce€the€population€ofÏterritories€that€may€incorporate€from€œ1,500›€to€225;€repeal€the€prohibition€againstÏnew€incorporations€within€5€miles€of€large€cities€and€within€3€miles€of€smaller€cities;Ïrelax€the€qualifying€requirements€for€the€petitioning€of€an€incorporation€election;Ïgrant€territories€proposing€to€incorporate€after€January€1,€1996,€priority€over€ð ðanyÏannexation€ordinanceðð€of€an€existing€municipality;€and€place€time€limitations€onÏwhen€portions€of€the€Act€will€remain€in€effect.€€Although€these€provisions€clearlyÏamend€the€code€sections€referred€to€in€the€caption,€they€do€not€directly€or€indirectlyÏrelate€to€the€ð ðdistribution€of€situs„based€tax€collectionsðð€or€the€ð ðtiming€of€elections€toÏincorporate€new€municipalities.ððÌÌà àAccordingly,€Sections€7€through€11€of€Chapter€98€of€the€1997€TennesseeÏPublic€Acts€are€broader€than€and€outside€the€caption€of€the€Act,€and,€under€theÏcontrolling€authority€discussed€hereinabove,€the€Act€must€be€declared€voidÏpursuant€to€Article€II,€ðð€17€of€our€state€Constitution.ÌÌà àThe€purpose€of€Article€II,€ðð€17,€is€to€prevent€ð ðsurprise€and€fraudðð€and€to€informÏlegislators€and€the€public€about€the€nature€and€scope€of€proposed€legislation.€€TheÏconstitutional€purpose€is€effectively€thwarted€when€a€restrictive€caption€is€employedÏand€then€legislation€is€adopted€which€is€broader€than€the€caption.€€In€this€case,Ïalthough€we€are€convinced€the€General€Assemblyððs€action€was€in€good€faith,€theÏrestrictive€caption€failed€to€adequately€inform€the€members€of€the€GeneralÏAssembly€and€the€citizens€of€this€state€about€the€nature€and€scope€of€the€legislationÏthat€eventually€passed.ÌÌÇà@ àòòò òCONCLUSIONó óóóÌà àWe€therefore€conclude€that€the€Act€violates€Article€II,€ðð€17€of€the€TennesseeÏConstitution€and€is,€therefore,€void.€€Having€reached€this€conclusion,€all€otherÏissues€are€Ô_ÔpretermittedÔ_Ô.€€The€judgment€of€the€Chancery€Court€for€Davidson€CountyÏis€reversed.€€Costs€are€taxed€against€the€defendants.ÌÓÓà àà àÌà àà àà àà àà àà àòò€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€€óóÌà àà àà àà àà àà àRILEY€ANDERSON,€Chief€JusticeÌÌÌÌò òCONCUR:ó óÌÌÔ_ÔDrowotaÔ_Ô,€Reid,€Birch,€and€Holder,€JJ.Ì€