James P. Little M.D. Et Al. v. City of Chattanooga, Tennessee

This is a mandamus action in which the plaintiffs seek to compel the City of Chattanooga (“the City”), pursuant to Tennessee Code Annotated § 6-51-108(e), to complete the plans of services arising from a 1972 annexation and to publish annual reports of its progress pursuant to Tennessee Code Annotated § 6-51-108(c). Two areas of the 1972 annexation are at issue: (1) an area known as “Tiftonia” or “Area 4” and (2) an area known as “Wauhatchee–Williams Island” or “Area 12.” The plaintiffs also seek a declaration that all annexations by the City since 1981 were void due to the City’s violation of Tennessee Code Annotated § 6-51-102(b)(5), which prohibits a municipality from annexing additional territory while in default on a prior plan of services. After three years of trial preparation, but prior to trial, the court imposed monetary sanctions against the City under Tennessee Rule of Civil Procedure 37.03 in the amount of $263,273.08 for attorneys’ fees, costs, and expenses caused by the City’s failure to supplement discovery responses. Thereafter, the case was tried in three phases. Following the first phase of the trial in 2017, the court found the City complied with its obligations as to Area 4; however, it found the City “materially and substantially failed to comply” with its obligations to provide street paving, street construction, and sanitary sewers in Area 12. Following the second phase of the trial in 2019, the court found the City’s failure to comply with its obligations as to Area 12 was not excused in that it was not caused by “unforeseen circumstances.” As a consequence, the court ordered the City to submit a proposed scope of services to be provided, which would, inter alia, be the subject of the Phase 3 trial. After the third and final phase of the trial in 2020, the court found the City’s proposed scope of services was insufficient and issued a writ of mandamus ordering the City to bring all streets up to current standards and install, inter alia, a gravity-fed sewer system for Area 12 within 48 months. The court also ordered the City to publish annual reports of its progress and enjoined the City from further annexations until the services were provided. Finally, the court found the plaintiffs were not entitled to additional relief for the City’s past violations of §§ 6-51-102(b)(5) and - 108(c). Both parties appealed. The plaintiffs contend, inter alia, that the trial court erred 01/25/2022 - 2 - by finding the City complied with the plan of services for Area 4 and by denying their request for additional relief under §§ 6-51-102(b)(5) and -108(c). The City contends that § 6-51-102(b)(5) and § 6-51-108(c) and (e) do not apply to the annexations of Area 4 and Area 12 because the statutes were enacted after the annexation ordinances were passed. The City also contends that the plaintiffs lack standing, and that their claims are barred by the doctrine of laches and the applicable statute of limitations. In the alternative, the City asserts that the trial court erred by finding it failed to materially and substantially comply with the plan of services for Area 12. The City also appeals the trial court’s award of sanctions for noncompliance with discovery under Rule of Civil Procedure 37.03. Following a thorough review, we reverse and modify the trial court’s judgment regarding the standards that apply to the City’s provision of street paving and construction in Area 12; vacate its judgment regarding the City’s provision of sanitary and storm sewers in Areas 4 and 12; and remand for further proceedings consistent with this opinion. We affirm the court’s judgment in all other respects.