ÿWPCâ z’B ¼Òe"SÏ&Q³4HÄ8ÛIêñös1k÷ÇR Y³¡€,c÷Ê ,:sÔaÄìûüìµÉ±»04¸:V£çòq)DQ¬BÂà¥.\°çc„ëGAý¥bØø<5§+iç5–±*ÙnJÏo9ƒ=6Ÿ™ÇÂP]ñcv'™9¼Ç,ò«Å(þ=k|‡/$‰9¶ŽÑ}¨ $ ³Lâþz" G‹´Ïê·‘SÜ\Âs*&Â$R ¦´ïÛfŸÚyÀ ÈÎð`ÑLÁ»ý&§4û•&â-ò>Î[–Ç¥ËB¿“ú_Ø,g#É/Š•a=:VÞ>¶Ó7J•FÆ[mŸ°”{ÎÂ>w>jÖûqUÄ¡hV"´ìø¼åˆ¼80øš¼9Ê2-˜³ÎJÓ­[æKL³¨ðÓ¢ÇÄ”p´ŠÝ ò)Ä÷–ì:®`£i(`„£6Õ7.Þ[ç*ý­‹ _}«Uð:½ºT–±,•*3NZÝ)ö† Uò‘¼]H’D”®68º¹Z¸h†=ï…ý¢X×]SçöÍåx¦(þ$ò-J5ôCöÑ%qóÚ‡üc4‘±ªúBs'·™=KÔLo—3ëI‡Í*®m¦„·Aj:Cû¬ÁžåªÎ@Hê&b#Á\ % ^ # 0ˆ/ U]N· w 4 z Ò— i x mz  ‘ Æ› Æa Æ'Æí 0D³N÷U(NùU@GE‡UN‰‰‰‰‰‰‰‰‰‰‰‰‰‰‰‰‰‰‰‰‰‰‰b×××××××××××××××××××××××××××××××××××× 0ëßßßß BÊÊ 0¤ç D3‹ D-¾ 0Këë AS6Ɖ 0¤O 0Dó A«7˜HP LaserJet 4Si,ü,,,,,ü0»ÍœÚ(L (`£ª$¡¡Ñ€.ÑÑ8€½­»»d»»d8ÑÑ ý ÑÓ  Ó(í€"  Z6Times New Roman Regular9?Æ(udgeJUDGE ˜C:\PROGRA~1\COREL\WORDPE~1\TEMPLATE\CUSTOM~1\REVISE~1.WPTC:\Program Files\Corel\WordPerfect Office 2000\Template\Custom WP Templates\revised standard opinion.wpt3|xÿU‹ÿÀÀÀ Ý ƒR#Z$ÝÓ  Óà  àòòÚ  Ú1Ú  ÚóóÔ€XºCX»»ÔÝ  ÝÔ_ÔThe€eleventh€sign€is€not€adjacent€to€a€State„controlled€artery€and€therefore€does€not€requireÐ ° Ða€State€permit.€Level 1Level 2Level 3Level 4Level 5‚Level 1Level 2Level 3Level 4Level 5„Level 1Level 2Level 3Level 4Level 5…Level 1Level 2Level 3Level 4Level 5(#Ã$òòÚ  Ú0Ú  Úóó(ÖÃ9 Z‹6Times New Roman Regular(ÖÃ9 Z‹(Times New Roman (ÖÃ9 Z ‹6Times New Roman Regular- ù-(|G2#Z$¤¤Ý ƒ£ª!ÝÑ€.ÑÑ8€¯Ô»»dd8ÑÑ ý ÑÓ  ÓÝ  Ýà  àòòÚ  Ú0Ú  ÚóóÔ€XºCX»»Ô d(|3&$££Ý ƒ£ª!ÝÑ€.ÑÑ8€¯Ô»»dd8ÑÑ ý ÑÓ  ÓÝ  ÝVVVV'ÿÿdxd)!ÈÈÈÈdxdx( ±þ$’’ò òFigure€Ú  Ú1Ú  Úó ó^_X`YEþÿ<<CÿÿƒLevel 1Level 2Level 3Level 4Level 5(|3&$¢¢Ý ƒ£ª!ÝÑ€.ÑÑ8€¯Ô»»dd8ÑÑ ý ÑÓ  ÓÝ  Ý($$””ò òÚ  Ú1Ú  Úó óX[Z&OLE 2.0 Box <=8ÿÿÿÿÿÿÿÿÿÿCÿÿ HKKKKÝ ƒ£ª!ÝÑ€.ÑÑ8€¯Ô»»ddÈ8ÑÑ ý ÑÓ  ÓÝ  ÝÔ_ÔÔ€¼¯Ô»»»Ôà@¦ ¦ ìàIN€THE€COURT€OF€APPEALS€OF€TENNESSEEˆÐ ° Ðà@””$ìàAT€KNOXVILLEˆÐ È ÐÔ‡XºCX»¼¯ÔÔÌÌò òÔ#†¼¯Ô»XXºC*#ÔÓ  ÓOUTDOOR€WEST€OF€TENNESSEE,€INC.€(LAMAR€ADVERTISING€OFÐ À ÐTRI„CITIES)òò€€óó€v.€€CITY€OF€JOHNSON€CITYòòóóÔ‡XºCX»¼¯ÔÔó óÐ Ø ( ÐÓqÓÌÌà@ßßìàò ò€€€€€€€Appeal€As€Of€Right€From€the€Circuit€Court€for€Washington€CountyˆÐ Ð  Ðà@ÁÁ ìàNo.€E1999„00412„Ô_ÔCOAÔ_Ô„R3„CV€€€€€€Hon.€G.€Richard€Johnson,€JudgeˆÐ À   ÐÌà@ìì*ìàßA€V) °°` d€÷E<Ÿ` A߈Ð  ð  ÐÌà@==ìàNo.€17512€„€Decided€June€26,€Ô_Ô2000Ô_ԈРŸï  ÐÌßA€V) °°` dE<~` AßÐ Ï  Ðó óÌÌà  àà ` àThe€City€of€Johnson€City€appeals€the€Trial€Courtððs€Order€requiring€the€City€to€issueÐ n¾ Ðeleven€permits€to€Ô_ÔOutdooorÔ_Ô€West€of€Tennessee,€Inc.€(Lamar€Advertising€of€Tri„Cities),€permittingÐ ^® ÐOutdoor€West€to€increase€the€size€and/or€double„face€eleven€billboards,€some€of€€which€previouslyÐ Nž Ðhad€only€one€face.€€We€affirm€the€Judgment€of€the€Trial€Court.€€Ð >Ž ÐÌò òÌT.€R.€A.€P.€Rule€3;€Judgment€of€the€Trial€Court€Affirmed;€Case€Remanded.ó óÐ ^ ÐÌòòSwiney,€J.Ô#†¼¯Ô»àXºCù#ÔÔ‡XºCX.¼¯ÔÔóó,€delivered€the€opinion€of€the€court,€in€which€òòGoddard,€P.J.,óó€and€òòSusano,€J.óó,€joined.Ð î> ÐÌÌEarl€P.€Booze,€James€D.€Ô_ÔCulpÔ_Ô€and€James€H.€Ô_ÔEppsÔ_Ô,€III,€Johnson€City,€for€Appellant,€City€of€JohnsonÐ ¾ ÐCity.Ð ®þ ÐÌThomas€C.€Ô_ÔJesseeÔ_Ô,€Johnson€City,€for€Appellee,€Outdoor€West€of€Tennessee,€Inc.€(Lamar€AdvertisingÐ Ž!Þ  Ðof€Tri„Cities).Ô#†¼¯Ô»XXºCâ#ÔÔ‡XºCX»¼¯ÔÔÐ ~"Î! ÐÌRichard€M.€Ô_ÔCurrieÔ_Ô,€Jr.€and€Timothy€B.€McConnell,€Kingsport,€Amicus€Curiae€Brief€for€ScenicÐ ^$®# ÐTennessee.Ð N%ž $ ÐÌÌà@55'ìàò òOPINIONó óÔ#†¼¯Ô»XXºC #ÔÔ‡XºCX»¼¯ÔԈР(n#' ÐÌÓÓÓ  Óòòò òBackgroundó óóóÐ þ)N%) ÐÓƒ ÓÓÓà  àà ` àAppellee,€Lamar€Advertising€of€Tri„Cities€(ð ðLamarðð),€filed€eleven€Applications€forÐ Þ+.'+ ÐSign€Permits€with€Appellant,€the€City€of€Johnson€City€(ð ðthe€Cityðð),€seeking€to€enlarge€the€size€ofÐ Î,(, Ðeleven€billboards€and/or€to€change€those€billboards€from€single„faced€to€double„faced,€so€as€toÐ ¾-)-ý' Ðprovide€more€advertising€space€on€each€sign.€€€Ô#†¼¯Ô»XXºC; #ÔÔ‡XºCX»¼¯ÔÔMr.€Richard€Drummond€testified€that€he€was€generalÐ ° Ðmanager€of€Outdoor€West€of€Tennessee,€Inc.,€the€original€company€that€filed€requests€and€obtainedÐ  ð ÐState€permits€for€ten€out€of€the€eleven€signs€which€are€at€issue€in€this€case.׃ ×Ý ƒ#ÃÝòòÚ  Ú1Ú  ÚóóÝ  Ý×  ×€€That€company€thenÐ à Ðbecame€Outdoor€Communications,€Inc.,€and€Drummond€was€general€manager€of€the€new€company.€Ð €Ð ÐOutdoor€Communications,€Inc.,€then€merged€with€Lamar€Advertising,€a€national€billboardÐ pÀ Ðadvertising€company,€and€became€Lamar€Advertising€of€Tri„Cities,€Inc.€Drummond€is€currentlyÐ ` ° ÐVice„President€and€General€Manager€of€that€company.€€The€gross€revenue€of€Lamar€exceeds€$5Ð P   Ðmillion€annually.€€From€the€record€before€us,€there€are€one€hundred€and€one€billboards€currentlyÐ @  Ðerected€in€Johnson€City.€€Lamar€owns€eighty€of€those€billboards.€€No€additional€billboards€will€beÐ 0 € Ðconstructed€in€Johnson€City,€because€in€1988€the€city€enacted€a€local€ordinance€prohibiting€newÐ  p  Ðbillboards.€€Ð `  ÐÌà  àà ` àThe€eleven€billboards€at€issue€were€built€before€the€enactment€of€the€1988€ordinance.Ð ð@  ÐLamar€contends€that€those€billboards€were€permitted€uses€at€the€time€they€were€constructed€underÐ à0  Ðthe€then„existing€city€ordinances,€and€that€the€requested€sign€permits€for€upgrading€those€signs€areÐ Ð  Ðauthorized€under€Ô‡XdE XXXºCÔÔ#†¼* » XXdE¨ #ÔÔ‡XdE X »¼* ÔT.C.A.€ððÔ#†XºCX XXdE #ÔÔ#†¼¯Ô»XXºCL#ÔÔ‡XºCX»¼¯ÔÔ€13„7„208,€the€Grandfather€Statute.€€Mr.€John€Campbell,€City€Manager€ofÐ À Ðthe€City€of€Johnson€City,€declined€to€issue€the€requested€sign€permits.€€By€letter€of€January€26,€1996,Ð À ÐMr.€Campbell€advised€counsel€for€Lamar:Ð ° ÐÌà8  àà8` Ð Ð àà ¸ àI€am€in€receipt€of€various€applications€which€have€beenÐ à Ðtendered€on€behalf€of€Outdoor€West,€Inc.€for€permits€to€expand€theÐ €Ð Ðbillboards€located€at€each€of€the€above€referenced€locations.€€AfterÐ pÀ Ðcareful€consideration,€I€must€respectfully€deny€Outdoor€WestððsÐ `° Ðrequest€for€those€permits.ÐP ` x` x ÐÌà8  àà8` Ð Ð àà ¸ àIt€is€the€opinion€of€the€City€of€Johnson€City€that€OutdoorÐ 0€ ÐWestððs€proposed€construction€does€not€comply€with€the€Cityððs€signÐ  p Ðordinance,€and€that€Ô‡XdE XXXºCÔÔ#†¼* » XXdE¼#ÔÔ‡XdE X »¼* ÔT.C.A.€Ô#†XºCX XXdE“#ÔÔ#†¼¯Ô»XXºCÕ#ÔÔ‡XºCX»¼¯ÔÔSection€13„7„208€does€not€prevent€the€signÐ ` Ðordinance€from€being€applicable.Ð`` x` x ÐÌÌÌà  àà ` àAt€trial,€Mr.€Campbell€testified€that€the€sole€basis€for€the€Cityððs€denial€of€theÐ Ð"   Ðrequested€sign€permits€was€that€the€current€zoning€ordinance,€enacted€in€1988,€prohibits€additionalÐ À#! Ðbillboards.€€There€has€been€no€finding€that€the€proposed€expansions€constitute€a€nuisance€toÐ °$ " Ðadjoining€landowners€or€exceeds€the€property€lines€on€which€the€signs€are€now€located.€€Mr.Ð  %ð # ÐCampbell€testified€he€doesnððt€know€whether€all€of€the€signs€applied€for€have€State€permits€orÐ &à!$ Ðwhether€the€signs€comply€with€earlier€zoning€ordinances€in€effect€in€the€City€prior€to€the€1988Ð €'Ð"% Ðzoning€ordinance€banning€billboards.€€He€did€not€investigate€these€issues,€and€does€not€think€anyoneÐ p(À#& Ðelse€investigated€them€for€the€City.€€He€testified€that,€from€1981€until€1988,€the€zoning€ordinanceÐ ° Ðpermitted€billboards€not€larger€than€672€sq.€ft.€€€Ô#†¼¯Ô»XXºCA#ÔÔ‡XºCX»¼¯ÔÔÐ  ð ÐÌòòóóÔ#†¼¯Ô»XXºCë#ÔÔ‡XºCX»¼¯ÔÔà  àà ` àMr.€Drummond€testified€that€billboards€are€produced€in€two€standard€sizes,€a€300€sq.Ð €Ð Ðft.€size€for€surface€roads€throughout€a€city,€and€a€672€sq.€ft.€size€for€freeway€systems€and€other€majorÐ pÀ Ðthoroughfares.€€Mr.€Drummond€testified€that€these€requested€eleven€sign€permits,€requestingÐ ` ° Ðupgrades€to€signs€which€have€been€present€in€Johnson€City€since€1981€or€before,€were€necessary€forÐ P   Ðseveral€reasons:Ð @  ÐÌà8  àà8` Ð Ð àOne€reason€is€to€modernize€the€existing€structures€to€1999Ð  p  Ðrequirements€for€the€industry.€€The€industry€is€a€standardized€industryÐ `  Ðwhere€production€has€to€be€produced€that€will€fit€here€and€Nashville,Ð P  Ðand€Dallas,€etc.,€just€like€thirty€second€TV€spots.€€They€need€to€be€30Ð ð@  Ðseconds€no€matter€where€theyððre€at.€€So€sizing€here€needs€to€beÐ à0  Ðconforming€„€„€to€be€conforming€on€a€national€level.ÐÐ ` x` x ÐÌà@uu$ìà*€€€*€€€*€€€ˆÐ ° ÐÌà8  àà8` Ð Ð à[Another€reason€is]€Safety€issues.€€One€of€these€has€been€held€inÐ à Ðabeyance€since€1981.€€There€are€safety€concerns€that€we€need€toÐ €Ð Ðupgrade.€€In€addition,€is€that€weððve€been€frozen€in€time€since€ðð81.€Ð pÀ ÐAnd€as€everybody€knows,€the€City€has€grown€rapidly€since€then,€andÐ `° Ðwe€are€running€out€of€inventory€to€satisfy€the€demand€from€ourÐ P  Ðclients.€€So€we€have€to€maximize€our€existing€inventory€to€acceptÐ @ Ðclients€that€request€coverage€in€Johnson€City.€€And€right€now,€weÐ 0€ Ðcanððt€do€that€in€all€the€times€and€we€are€losing€financial€revenueÐ  p Ðbecause€of€that.Ð`` x` x ÐÌÔ#†¼¯Ô»XXºCI#ÔÔ‡XºCX»¼¯ÔÔà  àà ` àMr.€Drummond€also€testified€that€the€size€of€the€signs€was€to€be€enlarged€so€that,€ð ðasÐ ð@ Ðopposed€to€having€one€advertiser,€we€can€have€two.€€And€thatððs€our€intent,€is€to€be€able€to€offer€ourÐ à0 Ðservices€to€an€additional€advertiser,€which€we€canððt€now€with€the€smaller€sign.ðð€€He€intends€toÐ Ð  Ðupgrade€ð ða€great€numberðð€of€Lamarððs€signs€to€672€feet,€and€he€filed€these€eleven€sign€permitÐ À! Ðapplications€first,€with€ð ðseveral€others€waiting€once€we€know€the€outcome€[of€this€litigation].ðð€€Ð °"  ÐÌà  àà ` àThe€Trial€Court€reviewed€the€eleven€sign€permit€Applications,€€Mr.€Campbellððs€letterÐ $à" Ðdenying€the€eleven€requests€for€sign€permits,€the€Johnson€City€Zoning€Ordinances€for€1963,€1972,Ð €%Ð # Ð1981€and€1988,€and€heard€the€testimony€of€the€two€above„quoted€witnesses.€€The€Trial€Court€thenÐ p&À!$ Ðtook€the€case€under€advisement€and,€on€September€27,€1999,€filed€a€Memorandum€Opinion€and€FinalÐ `'°"% ÐOrder.€€The€Trial€Court€found€that€ð ðÔ‡XdE XXXºCÔÔ#†¼* » XXdE%#ÔÔ‡XdE X »¼* ÔT.C.A.€ððÔ#†XºCX XXdEœ)#ÔÔ#†¼¯Ô»XXºCÞ)#ÔÔ‡XºCX»¼¯ÔÔ€13„7„208(c)€permits,€or€grandfathers,€the€subjectÐ P( #& Ðbillboards€as€a€non„conforming€use.ðð€€The€Trial€Court€then€found€that€ð ð[Ô_Ôt]heÔ_Ô€Defendantððs€CityÐ P) $' ÐOrdinances,€Article€VII,€Signs€Regulations,€7.41,€banning€ððOff„premise€Advertising€Signsðð€isÐ @*%( Ðinapplicable€.€.€.€[because€it]€.€.€.€is€prospective€only;€therefore€the€ban€does€not€apply€to€the€subjectÐ 0+€&) Ðbillboards€that€were€existing€at€the€time€of€the€Defendantððs€ban€of€billboards.ðð€€Accordingly,€theÐ ° ÐTrial€Court€ordered€that€the€City€of€Johnson€City€issue€the€requested€sign€permits.Ð  ð ÐÌÌÌà@))%ìàò òòòDiscussionˆÐ ` ° ÐÌó óóóà  àà ` àÔ‡XdE XXXºCÔÔ#†¼* » XXdEN*#ÔÔ‡XdE X »¼* ÔOur€review€is€òòde€novoóó€upon€the€record,€accompanied€by€a€presumption€of€theÐ @  Ðcorrectness€of€the€findings€of€fact€of€the€Trial€Court,€unless€the€preponderance€of€the€evidence€isÐ , | Ðotherwise.€€Rule€13(d),€T.R.A.P.;òò€Davis€v.€€Ô_ÔInmanÔ_Ô,€óó974€S.W.2d€689,€692€(Tenn.€1998).€€The€TrialÐ  h  ÐCourtððs€conclusions€of€law€are€subject€to€a€òòde€novoóó€review€with€no€presumption€of€correctness.€Ð T  ÐòòÔ_ÔGanzevoortÔ_Ô€v.€€Russell,€óó949€S.W.2d€293€(Tenn.€1997).Ô#†XºCX XXdE„-#ÔÔ#†¼¯Ô»XXºCÆ-#ÔÔ‡XºCX»¼¯ÔÔÐ ð@  ÐÌà  àà ` àThe€City€of€Johnson€City€appeals€and€raises€one€issue:Ð Ì  ÐÌà8  àà8` Ð Ð àWhether€the€Trial€Court€erred€in€holding€that€the€eleven€(11)Ð ¬ü  Ðbillboards€for€which€applications€for€sign€permits€had€been€filed€withÐ œì Ðthe€City€of€Johnson€City,€qualify€for€the€protection€pursuant€[to]Ð ŒÜ ÐTenn.€Code€Ann.€Ô‡XdE XXXºCÔÔ#†¼* » XXdEy0#ÔÔ‡XdE X »¼* ÔððÔ#†XºCX XXdEF2#ÔÔ#†¼¯Ô»XXºCˆ2#ÔÔ‡XºCX»¼¯ÔÔ€13„7„208(d),€thereby€compelling€the€City€ofÐ |Ì ÐJohnson€City€to€issue€the€necessary€building€permits.Ð|Ì` x` x ÐÌÔ#†¼¯Ô»XXºCñ2#ÔÔ‡XºCX»¼¯ÔÔà  àà ` àAs€stated,€the€Trial€Court€based€its€holding€on€Ô‡XdE XXXºCÔÔ#†¼* » XXdEÉ3#ÔÔ‡XdE X »¼* ÔT.C.A.€ððÔ#†XºCX XXdE04#ÔÔ#†¼¯Ô»XXºCr4#ÔÔ‡XºCX»¼¯ÔÔ€13„7„208(c),€which€provides:Ð \¬ ÐÌà8  àà8` Ð Ð àÔ‡XdE XXXºCÔ(c)€Industrial,€commercial€or€other€business€establishments€inÐ Lœ Ðoperation€and€permitted€to€operate€under€zoning€regulations€orÐ 8ˆ Ðexceptions€thereto€in€effect€immediately€preceding€a€change€in€zoningÐ $t Ðshall€be€allowed€to€expand€operations€and€construct€additionalÐ ` Ðfacilities€which€involve€an€actual€continuance€and€expansion€of€theÐ üL Ðactivities€of€the€industry€or€business€which€were€permitted€and€beingÐ è8 Ðconducted€prior€to€the€change€in€zoning;€provided,€that€there€is€aÐ Ô$ Ðreasonable€amount€of€space€for€such€expansion€on€the€propertyÐ À  Ðowned€by€such€industry€or€business€situated€within€the€area€which€isÐ ¬!ü Ðaffected€by€the€change€in€zoning,€so€as€to€avoid€nuisances€toÐ ˜"è  Ðadjoining€landowners.€€No€building€permit€or€like€permission€forÐ „#Ô! Ðconstruction€or€landscaping€shall€be€denied€to€an€industry€or€businessÐ p$À" Ðseeking€to€expand€and€continue€activities€conducted€by€that€industryÐ \%¬ # Ðor€business€which€were€permitted€prior€to€the€change€in€zoning;Ð H&˜!$ Ðprovided,€that€there€is€a€reasonable€amount€of€space€for€suchÐ 4'„"% Ðexpansion€on€the€property€owned€by€such€industry€or€businessÐ  (p#& Ðsituated€within€the€area€which€is€affected€by€the€change€in€zoning,€soÐ  )\$' Ðas€to€avoid€nuisances€to€adjoining€landowners.Ô#†XºCX XXdET5#ÔÔ#†¼¯Ô»XXºCâ4#ÔÐø)H%(` x` x ÐÐ ä*4&) ÐÔ‡¼* »»¼¯ÔÔÔ‡XdE X »¼* Ôà  àà ` àA€grandfather€clause€is€defined€as€ð ðan€exception€to€a€restriction€that€allows€all€thoseÐ ° Ðalready€doing€something€to€continue€doing€it,€even€if€they€would€be€stopped€by€the€new€restriction.ðð€Ð œì ÐBlackððs€Law€Dictionary€629€(5òòthóó€ed.€1979).€€A€grandfather€clause€exception€in€a€statute€must€beÐ ˆØ Ðconstrued€strictly€against€the€party€who€seeks€to€come€within€the€exception.€€òòÔ_ÔTeagueÔ_Ô€v.€CampbellÐ tÄ ÐCounty,óó€920€S.W.2d€219,€221€(Tenn.€Ct.€App.€1995).€€Lamar€as€the€party€seeking€the€protection€ofÐ `° Ðthe€statute€has€the€burden€of€proving€that€its€sign€is€a€pre„existing€non„conforming€use€whichÐ L œ Ðqualifies€for€protection.€€òòLamar€Advertising€of€Tennessee,€Inc.€v.€City€of€Knoxville,€óó905€S.W.2d€175,Ð 8 ˆ Ð176€(Tenn.€Ct.€App.€1995)òòóó.€€In€òòRives€v.€City€of€Clarksville,€óó618€S.W.2d€502€(Tenn.€Ct.€App.€1981),Ð $ t Ðthis€Court€found€that€a€plaintiff€must€make€two€threshold€showings€before€invoking€the€protectionÐ  ` Ðof€T.C.A.€Ô#†XºCX XXdEÏ;#ÔÔ‡XdE XXXºCÔððÔ#†XºCX XXdE·@#ÔÔ‡XdE XXXºCÔ€13„7„208:€(1)€that€there€has€been€a€change€in€zoning€(either€adoption€of€zoning€whereÐ ü L  Ðnone€existed€previously,€or€an€alteration€in€zoning€restrictions),€and€(2)€that€the€use€to€which€theyÐ è 8  Ðput€their€land€was€permitted€prior€to€the€zoning€change.€€There€is€no€dispute€that€the€first€requirement€Ð Ô$  Ðwas€met€as€a€result€of€the€zoning€change€in€1988.€€Likewise,€from€the€record€before€us,€there€appearsÐ À  Ðto€be€no€real€dispute€that€the€second€requirement€has€also€been€met.€€The€initial€thresholdÐ ¬ü  Ðrequirements€necessary€to€trigger€T.C.A.€ðð€13„7„208€are€present.€€Ô#†XºCX XXdEý@#ÔÔ#†¼¯Ô»XXºCî;#ÔÔ‡XºCX»¼¯ÔÔÐ ˜è  ÐÌà  àà ` àThe€City€states€that€the€Trial€Courtððs€judgment€in€this€case€was€ð ðpursuant€to€Tenn.Ð tÄ ÐCode€Ann.€ðð€Ô#†¼¯Ô»XXºCôC#ÔÔ‡XºCX»¼¯ÔÔ13„7„208(d).ðð€€The€judgment,€however,€cites€ð ðT.C.A.€Ô‡XdE XXXºCÔÔ#†¼* » XXdEáD#ÔÔ‡XdE X »¼* ÔððÔ#†XºCX XXdE:E#ÔÔ#†¼¯Ô»XXºC|E#ÔÔ‡XºCX»¼¯ÔÔ13„7„208(c).ðð€€Subsection€(c)Ð d´ Ðof€that€statute€applies€to€situations€in€which€the€business€seeks€to€expand,€and€provides€that€in€suchÐ d´ Ðcases,€the€petitioner€Ð T¤ ÐÌà8  àà8` Ð Ð à.€.€.€shall€be€allowed€to€expand€operation€and€construct€additionalÐ 4„ Ðfacilities€which€involve€an€actual€continuance€and€expansion€of€theÐ $t Ðactivities€of€the€industry€or€business€which€were€permitted€and€beingÐ d Ðconducted€prior€to€the€change€in€zoning€.€.€.€.Ô#†¼¯Ô»XXºCåE#ÔÔ‡XºCX»¼¯ÔÔÐT` x` x ÐÌSubsection€(d)€applies€to€situations€in€which€the€business€seeks€to€demolish€and€rebuild,Ô#†¼¯Ô»XXºC\H#ÔÔ‡XºCX»¼¯ÔÔ€andÐ ä4 Ðprovides€that€in€such€cases,€the€petitioner€Ð Ô$ ÐÌà8  àà8` Ð Ð à.€.€.€shall€be€allowed€to€destroy€present€facilities€and€reconstruct€newÐ ´ Ðfacilities€necessary€to€the€conduct€of€such€industry€or€businessÐ ¤ ô Ðsubsequent€to€the€zoning€change€.€.€.€.€Ð”!ä` x` x ÐÌThe€City€argues€that€subsection€(d)€applies,€that€Lamar€has€failed€to€prove€that€the€destruction€andÐ t#Ä! Ðreconstruction€is€ð ðnecessary€to€the€conduct€of€such€industry€or€business,ðð€and,€€therefore,€theÐ d$´" Ðjudgment€of€the€Trial€Court€must€be€reversed.€€We€agree€with€the€City€that€subsection€(d)€appearsÐ T%¤ # Ðto€require€a€higher€standard€of€proof€by€Lamar,€since€under€that€section,€Lamar€must€show€that€theÐ D&”!$ Ðreconstruction€is€ð ðnecessary€to€the€conduct€of€[the]€industry€or€business.ðð€€Ô#†¼¯Ô»XXºCI#ÔÔ‡XºCX»¼¯ÔÔThe€record€in€this€caseÐ 4'„"% Ðis€not€clear€as€to€whether€Lamar€plans€for€all€of€the€existing€signs€to€be€demolished€and€new€signsÐ $(t#& Ðinstalled,€thus€implicating€subsection€(d),€or€whether,€in€some€cases,€the€existing€sign€is€to€beÐ )d$' Ðretained€but€enlarged,€thus€implicating€subsection€(c).€€Ô#†¼¯Ô»XXºCM#ÔÔ‡XºCX»¼¯ÔÔThe€sign€permit€applications€indicate€thatÐ *T%( Ðeight€300€sq.€ft.€double„face€signs€are€to€be€enlarged€to€672€sq.€ft.€double„face€signs.€€Three€672€sq.Ð ô*D&) Ðft.€single„face€signs€are€to€be€converted€to€double„face€signs.€€Mr.€Richard€Drummond€testified€forÐ ä+4'* ÐLamar€that€the€company€plans€to€ð ðmodernizeðð€the€billboards€to€standardize€the€sizes,€to€ð ðupgradeððÐ ° Ðfor€safety€reasons€and€to€ð ðmaximize€our€existing€inventory€to€accept€clients€that€request€coverageÐ  ð Ðin€Johnson€City.ðð€€He€testified€that,€depending€on€the€location,€and€whether€the€traffic€count€wouldÐ à Ðjustify€the€decision,€some€signs€would€be€taken€down€and€changed€from€multiple€wooden€pole€toÐ €Ð ÐÔ_ÔunipoleÔ_Ô€steel€construction,€which€creates€a€larger€and€safer€billboard,€generates€greater€revenue,€andÐ pÀ Ðis€very€expensive€to€install.€€Since€at€least€òòsomeóó€of€the€billboards€are€intended€for€demolition€andÐ ` ° Ðreplacement,€we€agree€with€the€City€that€Lamar€must€show€that€the€proposed€action€is€ð ðnecessaryÐ P   Ðto€the€conduct€of€the€business.ððÐ @  ÐÌà  àà ` àAmong€the€reasons€justifying€the€destruction€and€reconstruction,€Mr.€DrummondÐ  p  Ðtestified€that€the€company€loses€revenue€when€property€is€sold€and€a€sign€taken€down€by€newÐ `  Ðowners,€because€the€zoning€in€Johnson€City€will€not€permit€the€sign€being€moved€to€anotherÐ P  Ðlocation.€€In€such€cases,€all€of€Lamarððs€revenue€is€permanently€lost.€€Also,€the€company€will€soonÐ ð@  Ðbegin€losing€revenue€due€to€the€State€tobacco€settlement,€which€will€prevent€tobacco€companies,Ð à0  Ðrepresenting€10€to€19%€of€Lamarððs€billboard€clients,€from€advertising€on€billboards.€€Furthermore,Ð Ð  Ðadvertisements€for€billboards€are€no€longer€painted€individually.€€Instead,€they€are€sent€to€theÐ À Ðbillboard€company,€i.e.,€Lamar,€from€the€client€in€the€form€of€plastic€sheets,€of€uniform€size€andÐ ° Ðconstruction,€and€the€billboards€on€which€they€are€to€be€installed€must€be€uniform€to€accept€the€ads.€Ð  ð ЀÔ#†¼¯Ô»XXºC–N#ÔÔ‡XºCX»¼¯ÔÔLamar€owns€most€of€the€billboards€in€Johnson€City,€and€they€must€upgrade€and€maintain€themÐ à Ðaccording€to€prevailing€industry€standards€in€order€to€keep€their€advertising€clients.€Ô#†¼¯Ô»XXºCèW#ÔÔ‡XºCX»¼¯ÔÔ€€We€find€theÐ €Ð Ðpreponderance€of€this€evidence€shows€that€upgrading€and/or€replacing€its€billboards€is€necessary€toÐ pÀ Ðthe€conduct€of€Lamarððs€business€and€reject€the€Cityððs€argument€to€the€contrary.Ð `° ÐÌà  àà ` àWe€hold€that€Lamar€has€satisfied€the€€requirements€of€both€subsection€(d)€andÐ @ Ðsubsection€(c)€of€T.C.A.€ðð€13„7„208.€€This€being€so,€a€determination€of€whether€subsection€(c)€orÐ 0€ Ðsubsection€(d)€is€the€controlling€subsection€is€unnecessary€under€the€facts€of€this€case.Ð  p ÐÌà  àà ` àAn€Amicus€Curiae€Brief€was€filed€by€Scenic€Tennessee,€self„described€as€Ð P ÐÌà8  àà8` Ð Ð àan€association€of€individuals€and€corporations€committed€toÐ à0 Ðprotecting€and€promoting€Tennesseeððs€scenic€heritage€by€workingÐ Ð  Ðwith€government€and€municipal€agencies,€experts€in€planning€andÐ À! Ðzoning,€and€local€communities€to€develop€appropriate€sign€ordinancesÐ °"  Ðto€protect€this€Stateððs€natural€beauty€from€billboard€blight.Р#ð!` x` x ÐÔ#†¼¯Ô»XXºCðX#ÔÔ‡XºCX»¼¯ÔÔÌÌà  àà ` àScenic€America€makes€two€related€public€policy€arguments€in€support€of€the€issueÐ p&À!$ Ðraised€by€the€City€of€Johnson€City.€€The€organization€says€that€the€application€of€Ô‡XdE XXXºCÔÔ#†¼* » XXdEâ]#ÔÔ‡XdE X »¼* ÔT.C.A.€ððÔ#†XºCX XXdEÓ^#ÔÔ#†¼¯Ô»XXºC_#ÔÔ‡XºCX»¼¯ÔÔ€13„7„208,€Ð `'°"% Ðthe€grandfather€statute,€in€this€case€ð ðwould€yield€a€result€contrary€to€the€health,€safety€and€welfareÐ `(°#& Ðof€the€people€of€the€City€of€Johnson€City,ðð€and€that€the€statute€ð ðwas€not€intended€to€allow€theÐ P) $' Ðbillboard€industry€to€circumvent€municipal€ordinances€developed€for€the€protection€and€enhancementÐ @*%( Ðof€communities€throughout€this€State.ðð€€We€recognize€that€the€City€of€Johnson€City,€by€enacting€itsÐ 0+€&) Ð1988€Ordinance€prohibiting€construction€of€new€billboards,€€has€lawfully€determined€that€theÐ ° Ðpresence€of€billboards€in€that€City€is€ð ðcontrary€to€the€health€safety€and€welfare€of€the€people€of€.€.Ð  ð Ð.€Johnson€City.ðð€€However,€T.C.A.€ðð€13„7„208€recognizes€a€competing€interest€which€the€State€ofÐ à ÐTennessee€has€determined€to€protect,€i.e.,€the€right€of€businesses€in€Tennessee€to€continue€thoseÐ €Ð Ðbusinesses,€including€the€rights€to€expand€and€to€demolish€and€rebuild€on€premises€where€they€areÐ pÀ Ðalready€located,€even€though€more€restrictive€zoning€is€enacted.€€We€are€not€at€liberty€to€ignore€theÐ ` ° ÐStateððs€statutorily€declared€legitimate€interests€in€order€to€promote€the€Cityððs€legitimate,€later„Ð P   Ðasserted€€regulatory€interests.€€While€we€do€not€disagree€with€Scenic€Tennesseeððs€argument€that€theÐ @  ÐCity€of€Johnson€City€has€authority€to€regulate€existing€billboards,€that€regulation€cannot€contraveneÐ 0 € Ðthe€provisions€of€€Ô‡XdE XXXºCÔÔ#†¼* » XXdE…_#ÔÔ‡XdE X »¼* ÔT.C.A.€ððÔ#†XºCX XXdEf#ÔÔ#†¼¯Ô»XXºCEf#ÔÔ‡XºCX»¼¯ÔÔ€13„7„208.€€Since€Ô‡XdE XXXºCÔÔ#†¼* » XXdEµf#ÔÔ‡XdE X »¼* ÔT.C.A.€ððÔ#†XºCX XXdEæf#ÔÔ#†¼¯Ô»XXºC(g#ÔÔ‡XºCX»¼¯ÔÔ€13„7„208€clearly€permits€a€business€toÐ  p  Ðdemolish,€rebuild,€and€expand€so€long€as€the€requirements€of€that€statute€are€satisfied,€ScenicÐ  p  ÐAmericaððs€first€argument€must€fail€under€Ô‡XdE XXXºCÔÔ#†¼* » XXdE˜g#ÔÔ‡XdE X »¼* ÔT.C.A.€ððÔ#†XºCX XXdE“h#ÔÔ#†¼¯Ô»XXºCÕh#ÔÔ‡XºCX»¼¯ÔÔ€13„7„208(c)€and€(d).Ð `  ÐÌà  àà ` àScenic€Tennessee€next€states€that€the€grandfather€clause€does€not€apply€to€billboardsÐ P  Ðbecause€ð ðbillboards€are€not€an€ððestablishmentðð€within€the€meaning€of€Tennessee€Code€Annotated€Ô‡XdE XXXºCÔÔ#†¼* » XXdEEi#ÔÔ‡XdE X »¼* ÔððÔ#†XºCX XXdExj#ÔÔ#†¼¯Ô»XXºCºj#ÔÔ‡XºCX»¼¯ÔÔÐ ð@  Ð13„7„208.ðð€€Scenic€Tennessee€contends€that€the€legislature€did€not€intend€to€include€billboards€in€theÐ ð@ Ðclass€of€business€properties€afforded€the€protection€of€the€grandfather€statute.€€We€quote€fromÐ à0 ÐScenicððs€brief:Ð Ð  ÐÌà8  àà8` Ð Ð àThe€statute€does€not€define€the€term€ð ðestablishmentðð;€however,Ð ° ÐBlackððs€Law€Dictionary€defines€an€establishment€as€ð ðan€institution€orÐ  ð Ðplace€of€business,€with€its€fixtures€and€organized€staff.ðð€€Moreover,Ð à Ðwhile€no€Tennessee€court€has€addressed€the€issue€of€whether€aÐ €Ð Ðbillboard€is€an€ð ðestablishment,ðð€the€Court€of€Appeals€for€NewÐ pÀ ÐMexico,€in€construing€similar€language€contained€in€a€zoningÐ `° Ðordinance,€has€held€that€it€is€not.€.€.€.€The€business€ð ðestablishmentðð€ofÐ P  ÐLamar€Advertising€with€its€fixtures€and€organized€staff€is€located€atÐ @ ÐTri„City€Airport€Station,€Ô_ÔBlountvilleÔ_Ô,€Tennessee.€€Lamar€AdvertisingÐ 0€ Ðis€not€seeking€to€expand€its€establishment€as€a€result€of€changes€inÐ  p Ðzoning,€instead,€it€seeks€to€expand€its€billboards,€a€product€of€theÐ  ` Ðestablishment.Ð!P` x` x ÐÌà  àà ` àWe€have€reviewed€the€legislative€history€of€the€grandfather€statute€and€find€nothingÐ à"0  Ðwhich€supports€such€an€existential€Ô_Ôview.Ô_Ô€€The€goal€of€the€legislature€was€to€protect€establishedÐ Ð# ! Ðbusinesses€from€later„enacted€municipal€zoning€which€would€exclude€them.€€The€billboards€in€thisÐ À$ " Ðcase€òòóóare€the€business€establishments€of€Lamar€just€as€a€parcel€of€land€with€folding€tables€set€out€onÐ °%!# Ðit€may€be€the€business€establishment€of€a€flea€market.€€The€home€office€is€not€the€only,€or€even€theÐ  &ð!$ Ðprimary,€income„producing€ð ðbusiness€establishment.ðð€€Additionally,€Lamarððs€employees€are€on€siteÐ 'à"% Ðat€the€billboards€from€time€to€time€working€on€and€at€the€billboards.€€These€employees€are€workingÐ €(Ð#& Ðin€furtherance€of€Lamarððs€business€at€that€site.€€€Ð p)À$' ÐÌà  àà ` àIt€is€not€for€this€Court€to€re„write€the€grandfather€statute€so€as€to€exclude€one€type€ofÐ P+ &) Ðbusiness€from€its€protection€while€affording€the€protection€to€others.€€It€is€an€impermissible€stretchÐ ° Ðfor€this€Court€to€suppose€that€the€legislature€intended€to€protect€business€warehouses€and€otherÐ  ð Ðbusiness€buildings€from€later„enacted€zoning€while€excluding€business€signs,€as€ð ð[Ô_Ôt]heÔ_Ô€most€basicÐ à Ðprinciple€of€statutory€construction€is€to€ascertain€and€give€effect€to€the€Legislative€intent€withoutÐ €Ð Ðunduly€restricting€or€expanding€a€statuteððs€coverage€beyond€its€intended€scope.ðð€€€€òòSee,€Ô_ÔWorleyÔ_Ô€v.Ð pÀ ÐÔ_ÔWeigelsÔ_Ô,€Inc.,€óó919€Ô‡XdE XXXºCÔÔ#†¼* » XXdE#k#ÔÔ‡XdE X »¼* ÔS.W.2dÔ#†XºCX XXdEÝw#ÔÔ#†¼¯Ô»XXºCx#ÔÔ‡XºCX»¼¯ÔÔ€589,€593€(Tenn.€1996).€€Each€billboard€is€one€of€Lamarððs€places€ofÐ ` ° Ðbusiness.€€While€Scenic€Americaððs€argument€on€the€issue€raised€by€the€City€of€Johnson€City€is€wellÐ ` ° Ðmade,€it€is€unsupported€by€the€law€of€this€State€and€€unpersuasive.€€Ð P   ÐÌÔ‡XdE XXXºCÔÔ#†¼* » XXdEŠx#ÔÔ‡XdE X »¼* ÔÌÌà@  %ìàò òòòConclusionóóó óˆÐ X  ÐÌà  àà ` àThe€judgment€of€the€Trial€Court€is€affirmed€and€this€cause€is€remanded€to€the€TrialÐ à0  ÐCourt€for€such€further€proceedings€as€may€be€required,€if€any,€consistent€with€this€Opinion,€and€forÐ Ì  Ðcollection€of€the€costs€below.€€The€costs€on€appeal€are€assessed€against€the€Ô_ÔtheÔ_Ô€City€of€Johnson€City.Ô#†XºCX XXdEÙy#ÔÔ#†¼¯Ô»XXºCz#ÔÔ‡XºCX»¼¯ÔÔò òòòóóó óÐ ¸ Ðà  àà ` à