Untitled Texas Attorney General Opinion ( 1939 )

.
571
OFFICE OF THE ATTORNEY GENERAL OF TEXAS
AUSTIN
GERiLDC.MANN
x
.~IIuwsus (iKSUCH‘%I.
46 to euoh ewloment.
'A~gurt 24, 1939, wharrin
rtmant In refersaae to such
e ail1 ??o.427, 46th Lo&-
tal General Appropriation 9111.
oard cornpoled or ttie oovernor,
the Board re-allocate and authoriz4 uuab 8ur-
plru or tmlanoe to be used by the department
herd for other purpore#TL
yw are adrimd that the Llattetloa ofPeyment8
ohuse 8~ it appears in tbe ~snaral rider to thr general a*
preprlatlon blll does not purport to eoaie? authoritr U$On
.
7
l%xL G40?@ 8. Sheppard, Pear 2,
‘cho Ooreraoor the Attorney General and the Stata Traaaurer
to re-allQoeia or traaefsr money8 apeoiffoally appropriated
by the Logialaturs for ona purpose to another md different
The authority 0r tb4 Board 18 OOnitBed to euth-
%%& of uae aa the neoeaalty therefor be der$qn(trat-
&, Or anOuSt@ i; 6u0h apeaid funda drdioated snbfde~oted
to such dopertwanta of the Sate govermont, over me
8bove the total required to defray the mounta dad Item8
for uhleh apeoll10 provfaion hua baeo made by the Lo&a-
lature. It mar not tbe intentlon of the ta&iilature in
,tt?e Lisrltatlon of Peyaeata olaune, to permit a depurtment
head to eleot sot to UM fuada~ ior the prrpoae for which
the Lyfu&ture provided thaa, and thereby oonrsrt tbaa
I into l ~UQQO@W~ mrpluo ia a purtlauler item, available
for use, with pomlarloa o? the Beard. The lxldenoe &
a aurplua rubjaot to the jurladiotion of the Board la
detershod not b rubtnotlng frou the tote1 of the emounta
apeiolflmliy ftaa i te6 by tbe Le&laleture the amount8 and
Items tha dmpemtment hoad elrota to uae but by lubtraatloa
of tha tote1 of the amount8 to be used km the amunt
aotually ~vailsblo for uae in the lp so ia fund. l
Tour seoond queatioa -reads aa followa:
wiulll the 3fghway Depurtaient be required
to give eaoh uaployee not budgeted iq tha bill
aad paid froa it8 amera hi hway fund l mm-
her, exoept those that are a fua a ified ar le8aon-
al help'? In thla ccinneotlon it would be help
ful if you would define *seasonal help.*"
The parsgraph in fhe General Rider to the General
:;g;prfqtion Blll styled “Salary PaymentaR r*ads 88 fol-
wo flblafy for whloh an a?proQriation ia
amde herein ahall be paid to any pernon unlesr
auoh \ ~araon aotually dlaohargaa assigned dtatlea.
zvery aoath the head of eaoh department still
atteoh to the payroll for hla department ati af-
Sidevlt under oath, atatlng thet the Persona
listed ia seld payroll rotually wriomed the
duties for whloh they WFO .b*lag galbe The
Ccifiptrollsr ahall not laaue warrants for tb
payopent 0s ~818r1e8 lietea on raid gayroll un-
lera thla ertlaetft la riled with him. faoh de-
prrwent heed shall number OOnaeOutivaly tha
Foa. George !?. rhoppard, F-ge 3.
aalarled poaltiono in MS department for *!llob
roarfatlon la .z.ada here10 (eithTiToiiii
%%kiGFFXnG YiiiiX, tees, rscelpts, SPQOW
lilnu’i or wt of other tutiils amilablr to? use
by raid de;artneatl and oppoalte the wzbcr or
the ?orcltioa he shall fill out th¶ t1t1.3or Ahe
pnl+.lon and the naize or tha 2erson 0==pl0p3a to
ill1 the lmm. .m8 stikt03ent hi1 b rim
with the COa;~troller tiho shall, ahen 16etiag hi8
aarrante to any em3loytte In pa-eat 0r balary due
anld muploys@, numbar the marrant rlth the mme
t%teer thrt iB asrigned to tha pooltioi riibd
by said q>loyse. Every d8gmrtnent hoad 5h5ll
aotlfy the Coruptroller In irritiq, ot an3 ohangaa
in parnormal in bir departaant. Thfr jmovfsion
shall uot apply to seasonal help, and shall not
prevent persons dmdng tkair salary rarraata
a,.rlng authorized vacation perlodr.*
in the paragraph ~imedletel~ tolloting, staled*AddI-
tional ~ployaea Campensatlon, * wo find the follomlni; lan-
guage :
be mid out of oontin&oat a&o&atlons, suoh
5aployess shall not be 25ld a larger amount
than that provldod in tt5 ra@sr a2;rcpriatcd
salaries for 5l:Alar posltlonr in sucll dsxrt-
sent or ag~noy, . ..*
The uuswtr to your question tux5 up03 the laterpro-
tatloB whioh ir to be placed ~202 ;he ~3ras.e *for xb?iOh
an agproprlatlon 13 zade bre?5.* =i TV1s rstsrs to 'hose
appropHotlons for a partioulor departaunt defialteLy item-
iad aa to purpoea and miount, ~the numbering is not required.
cn the other Fand, lr it refers to all salarlod Doritions
a;lthorl.sd ~l$ker by a speofllo a#;rapr!atlon or by a l"?
aup agpropriatlon, t%;e nuaberln(J la required.
Light ii0 thTowD upon this qurrtiO5 by QbseiViM th5t
In the suooosd& para@rph quotsd *bore, we fiad aa aP
parent Ulstlnotion recogalred, nhen tho Leeisleturo ridare
to "additio.?al e~gloyae~, othas than thoao tot whiah swolfio
Ken. Ceorgr R. She~3er-d~ Fees 4.
salar approorlatione~ have bean mede. It appeared to ua
Tldh.Ls slslature.
Intended to-require
in the DeYmSnt MranraDh. 4ma
enl5n
the numberingin& iistie of-ali &-
p107OSS Or the partioulSrdopertaente nbo mrry be- em loysc:
upon 8 ealary beeia out 0r sny Sp~lVQriatiOB aoella l la ror
luah Qurposa to that dopartnient, wheth-r ft be sp&l.fioally
ItoPlfted Se to purpoes end esouQt8, or whether it be a
h M lD a u5lp p r o p r k tlo Itn.tm noted epeolfioally that the
Lsglelattuerwnd It neoae6ary te oxapt rrab~tbiapro-
lielon *eeeaona1 hrlp.* Thia OowtrUotioq, it appear8
to UI, rooor48sore amrly ritbthe apparentpurposefor
wbioh luoh provision i8 Inrertod in the bill. It aeeraa
that the ~gia&ttU@ h6$ requirrd t&e rmbsring of the
, elta tea eaof tthe title,
p o dtio a a th of the podtiona
and the DLOIIor tha poraoar cpployedto rlu th0 ~0 to
bo given br tlu dagwtmat howl ror the oon~eair~oe and
benefit oi the Caaptrollar, in order that the Comptroller
may dStoxalna, from tire to time, uhSthSr a prrtloulSr
eaployeo rqployS4 out ot a tuarp sum lpproprlatioa to
performa partioulartypo of work is being paid ior thet
typo 0r work an amottat 0r monSy greeter then that auth-
orized by thr IAC;lslaturo to be pald to thoao holding
similar partloulorly ltcmiead poeltlone. It tha depart-
moat hoa&nesd not nusib~r ralarled positions in his de-
gertnmnt uhioh era oroated and paid for out or a lump
sum approprietfon, then, by the emta token, tbero ia no
provision la thr bill nquirlng him to eamuniaato to
the Cangtroller the title OS the position areatad an4
the nama of the psrron ~aplo Sd to till tbr SeaS. In
the absenos OS such informat T on, it appears to 08 that
the Comptroller is lsft rftbout any adoquato means tor
detrxminlng whather or not a partioular eaployes paid out
or 8 lump sum appropriation on a salary baa18 la entitled
to ar8w the amaunt 0r oomponeation ror whlah hlr warrant
is requested to br drawn. Xe thSrSfOre are ol tbo
oplaloa th5t the aelary payments 01euaS appllS8 to 811
eSlSrle& poaitiona, Mmther‘sreated by authority of rpeol-
fl0~11y ~Std~od 4hpproptiatlonb OS by 8UtbOritY Of &UP
sum appropriatlona arell.eble for euob purpose*
with n8geOt t0 year reqaa8t for a dOflBitiOa
of the tam Ceeaeenal help," you are edvirrb thet auuoh
p hr a se o o mo B ly
la ua etito r eir to
r M p lo p 3ea l4 m g a 6
in
work exoluaire1~ pePiornr4 at lpeoiiio eeaeona or purioda
of the yeer, whioh, from its nature, oanaot be oontinuoa8
w oarried on throughout the year. FroeNy V'I. T, M.
Eardon Co., 891 F8nB. 197, 189 A,tl. 799.
575
Ron. G4orgo R, ishepprr4, ?eeo 8,
Your lortquest105 1~ a8 follar~
~-May i deputmmt hoad .a@07 an addltloa-
al a~plo7oe l& plaor him on the roeular w7-
roil, m7it`` hi8 8aiW orit OS th8 eOa%ingORt
rp$roprl8tion, or d-8 tha o o ntlq & ea
lp ptr o l
prhtibn oarrpr8hend 8 taawor~r~ or as aurgent
8itU8tiM sUthor12iag t&J 82plOm2t Oi 2dd1-
tiOM1 -9107W8 for 8UOh =9o8*?*
Air indiO4t.d abOW,. the ````8htUX-O ‘h8 OOnteB-
platad, 1s Wr O~hliM, that tb0 QrOViSlOlh iOr 88a8OMl
h8lQ 18 to be rTal8ble iOr tappQXW7 8saP~O7XRentto take
oar0 of orurgent8ituatfeM. Year quortion then,with
regard to 8mg3107meat out OS ooatinaent lpPro9rlatlonr,
lnrol~28 Oh8 detmneination OS the meanlagto be a8Orlbed
to the tam "OOnt12&Wt 2XD8288.'
ti0 tU6I “OOUtiIk.gMt U~II888* 18 SrWWIIitl7
U88d to QoMote 8uOh 68 &r@ UflkaOM Md UaOWtaiIl, whioh
MI or aa7 not be lnourred, 8Ild rhioh de~tL& UpOn 8OI6.
tUtUP UnOcll?t@liIi8Q8Ut. SOOtt T. city Ot hl608tOWa, 217
A.%. 88J3, 078, 56 N. Dsk. 4% It 18 8a;ttItbS U5Od t0
rvisr to rush expenrer a8 are po8sibls or liable but
aot outala to ooour. Braaaln v. SweetOlrrrCouatt,
208 Fao, 970, 972, 88 Moat,412.
on tbo otherhaad,the term~oootlngrnt ~pea868,~
aa aof other
word or phrare or84 b7 the Legi81atur8 la
a nylfmo t#nt, le aeorraa*tll7 iaflu*noedand aolorodin
it8 numnb by the 8OIitaXtr 60 find it urrd b7 thr Logis-
laturo in thr depa~W~at&l appropriation bill uader tha
heading *nintoaano8 and E~so````Boou~,~ In tho gen8ral
rider to tha generalapproprlatlon bill, un4er th8 headln6
o ?q u4 ntla sad glatlonwy,~ pnnglapb (b), M Sinaan
HOa. GtOrgO & Shappard, bg8 6
OXprO I’OOO@tiOtl that OOiltinjicI3t Sunds bppropribted, by
tha Laglslature sib7 b8 U8@3 for WI0 publlcatlon ana dt8tl’i-
bltiW Of bIl7 IiOtiOta, gamphlat8, tmOklet8, Nfas, .@@a-
tiona, ena a- other r;ectara of pub110 lattrtst. @a under
tha haadIng -aaaI?loaal a61plo7oe*a owpansatlon,~ ln the
gmaral rider to the general 8pproprlatlon bill, wa flna
~8 axpnrs reoogaitioa by the Legltlatura that additional
tfsplo~te8 othtr thbn fhorb~ for whloh speolflosalary appra-
prlatlons lava baoa Dada b7 the Lagl8latUTa 6my be oi6plo7ad
Ma oald out OS the *oont.*bnt* approprlatloa, pr0riaftig
that8uOh M@lO7tt8 8b11 aOt be pIi& a h%l-@ZrMortnt than
tht ~rOlhitd 18 tht Ta&ar •JtpFO~i&@d 8bl8riO8 fOF
8idl8r &W8ftlOt28 iLi 6UOh depXbL@nt Or b~4XlOt.
On&or paragraph (b) of the titlt *Sala+ and
other h0~1810es~ in the geaeral rider we ilnd the Sollou-
ins:
-The amromiatlon8 berein prorieba are to
be aon8trUt;im~acr-tha 5aIi6Um 8~ml-tO be bpprOprhb&
to and for the 6458netted horelo, bad
tho amwits ar coveEiiiiS shalloovtr
the tintlrtoost OS tht rta otite .lttme and tht
ZZtXGlS ZTTbt tumlmen ef. rota arm other
---F-T-----
othtr Obfbbtion8 be inourrtd by-may dapartmant
OS this Stats, prOVia howavar that nothin&
hercln ahall prevent any deptrktnt head fro5
poyln& ltte than the saxinupI amount set forth
htreia Sor any 8alarlad posItloae.m
It i8 th8 apperant t?!it where a 6rml 18 prarld-
94 ror a particular itam oi trpen8e, that 6~ Is all that
i8 mandad to bt avallabls tor.that iten of 6xper186, and
may not ba eupplemnted from an Sowoe. The lirnltatlon
applh8 Od7 t0 the pStiOU].sr -3 tCCP; that 18, b &WtfOU-
lar typi8t'8 salary maJ not bt sup~ltmmttd rrom 6U7
eouroe, but, if the zeotttity arises, tht ddprtatnt head
6my (in tha ab8aUaa of mob aXplWSS pX'OhibittOa8 Of tha
t7Do Sound ln the 8peolal rider to the 0~68, ?fsh t OYB-
tar Camd66lon l pproprIatIon8, prohlbIt%ag tht SaplOpWt
of additional salaried 6mplO7Oa8) hire and pay another
t7pi8t OUt Of th.8 "OOntiUg8Qt UPM8t" rIMa.
r
Hon. Oeorgr 3. sheward, Page 7.
fa other wora8,.it appasrs that the Loglslaturo
hd in CO~tW6pl~t;Oi3 th4 U84 Of tb4 t4llll *OOtItingOUt 4XP411s4,*
ia the Een8m of geasrrJ. itemi; of’6tponm not provide6 for
speoitioally, nthor than inoldental or uaforoaeon It&is.
State vr Kurtz, 144 B.E. lPO,,l24, 110 Ohio State 7&E,
lW111(ldue r8garU t0 the OOntoXt in vhloh we find
tho word, and th o lpsol.floluthorlzstlon ror tke ueo of
ouoh iona for web pIrpoeo8, w an ImpolleU to the oonolu-
alon that the Legialatare has da 8ubetentlelly thle;
r We.h e lttwanptul,
te 00 r a ra sp o r r lb lo
to,
oatioipate er er itam
y d e x p o neor h lo wby a eee8-
wrlly be laourrod In the opemthm oli iour dopart-
ment, but wa roalfss tlmt our &ad&moat81 to rook
mattora ray bo’ ineuot, iron tbo vr?y nature of
things, and wo therefore appropriate to your domrt-
ment l SUB of money gonomll~ lvsllablo ior opuatfng
sx$eneer 0r your dep a ttmolx nt,
a o p $l8 othwvl,.
horeln epeoifioall~ United, to take earo ob thoeo
employasnto an& otbor etponeoe not herelaepeoifloally
provided for, but whloh may nooeenrlly bo requlrod to
enable yaw Uogartmnt properly to funotioP.a
It 18 furthu to be observed,houoru that the.
Le~lelntu~o hen hedwl this lung SUIDapproprldon tOr ooa-
tlng8nt exponser about with epaolflo rertrlotiono as to
the ~8s of tho aume, plaalnga l~tatloe upon tho ammat
thoroor that may bs oxpoadod durln any thraq aoathr porfod
by that provision of the general r f dor wbloh road81
*It I8 rurtbsr pr07iaea that, during any
three month8 period, no depertmont Oan expend
more than one-rourth of the lppropri8tion meads
herein rorr . . . (b) oontlngent e~xpena~e,...
prorlded that any uaexpondod balsnuos froDlpro-
tloue quarter8 my bo expondod during eubsequont
quarters.*
fn additloa, a prohibition agafast tho WO oi 8UOh
runa to lupplamont thr iteae poviaed for mtrrrellng lxpon8o8*
lo ooatainod %a that provloloaof the g8noralridor rhloh
read8 a8 r0mu0t
-It i$ proolbodthat no lxpendlturor8br11
br ado for tmeling lxpeneooby my deport-
Bent of thl8 State la lxoos8 of the -ouOt Of
money it0b0a herein ror rsld 9urpo808.'
:
*. ., ..I, ,,~. .,
_‘_.. _ ~.., :~ ,i
Non. Qoorgo N. SMwud, Pa60 8
Yo u le themron advised that In oar oplalon,
uzllee8 the mrtloular aepertmenb ir *p*olelly prnhiblfed
r r 0iti
l~aglag lay 8ahri0a ~ploysoe ia addition tqf’ttmae
providesi epool.Slo~l~y by the appropriation rar that do-
partsieat, l dqmrtaoat he06 uy 980 hlo *oontlngoat* lp-
%O%i&iM ior t&o 8@loyaont ol lddltlolul Marled
be% The Uopertmeat heed Is not nqolred to obtaia.tho
approval ot the Lialktloa of Peyaeate Beard boron rrk-
ing euoh aaplopmeat, for thet board baa jurlwliotloaoall
over the upondltara d aaurpldoo~w la oertaln rpoelal
faadr, aad sot otu the expeadl$uroo r l ooatlagea$ ox-*=
approprletioae. The ~+artaut bud howovor, will be
required to number lueh' ltiaolod Qodtloa8 or-ted and
fond, es provided
pnld out of thle ooatia(lont I, th8 mr8-
@mph 00 Valu mymen%P in tko #eaerel rldm to the
geaeral lpprepr f atIM Btll.,
A&her que8tlaB pro8cmtod, but a& numbered a8
luoh, ill YOU? l.ttU, 18 80 rOibI?8l
"Who la tho propu @raon to ike the
p y r o ll
lrfidatlt requlrod by the pwegraph
*ealmm wyaontr’ lpplatinl;la tho (Ieaeral
rider to the geaonl lpprojmlatloa bill?*
suoh provlrlon or tho rider ropuiroa that lrom
noath *tha hea4 or oaoh doper&mat shall 8tt8ob to the
payroll r0r his brpartment an midam, . ..*
phraeo whead of the depertmsnt*
The ir u8ed la
asay laskaose in tho-general rlaor to the goaonl lp p r o -
priatioo bill. The *head of eaah Uop~rtEoat* 18 required
t.0 keep a reoord 0r the abrat or tho employees 0r hi8
aopubm, end inoorporate t&o lnformatfon in the dermrt-
taent*8annual report. The “bead of any depertaent* $8
luthorlrsedto Ofou80 a part or hio eaployee8 at noon oa
Saturdays. mo State Beard 0r Qoatrol 18 dlfeoted to
notify in wrlti~ *the hoe48 Of the nopeotlre deFwtmontea
0r say 4erollotlon or duty on the part 0r my iwt*r.
The *departmental boedr. lro tboa nqoired to &To she
portu to ooaply with the orders oonoelplsg the imProve-
aant of sanitary oondltlona end the raaotel Of iira h0?X4rd8.
It th0 porter 18 dlrohorgod, the wra Qr the demrtaentr
18 rmquired to eeloot anothu Qorter to ini blo 91*0*.
’ .
579
L
I? an umployee cl a dapartaant af tha rtata govemaant
in oortaln
sngago8 inhibited politioal aotlvltlra, u 00
tha suit of a oartair ntmbar of aualiflad voters aga &*t
8uoh aiaployoa 8Bd *the hsad of the dapartaaat,T,It Is
provided that judgswat shall ?n rondared that the dbtployaa
8hall ba diroharged and the "head af tha depart& zit* ba
TartFaIaad trarP X'a-8iaQloyiin(t 8UOb ttaxQl0y.a. #h Otl 8
Stateiounad lutaWblla la uaod for oartaln Inhibited
prlvata QurQoaaa, with t&o knowlodge OS -tha.haad of any
dopartmeat,w the -dapartmaot h8ad” i8 li8blO to punish-
aont.
It la mado the duty or every '6qwtment &oa6*
t0 fPrI%iSh lV8ry ~plOyt10
Or the QOpahOSt With 6 OOpy
of oortaln provlrlona of tho gomwal rider to the general
lQQroQrIatIon bill. It i8 provided that UQOn a faiiura
ruoh *departmat
$f;zedo, head* shall bo raaotod From
Under the QravIaIoa8 a? thr rldsr to tha goaoral
da*a&aatal approprlatlon bill it i8 provided that 110
monbya appropriated #hall b8 paid for tho rs-Imburmiient
Oft2-a VOlir lx~0n0.0
rg Inaurrsd by 84 8t8t8 aQlOy00
to any type of oonvoation within the State .'r without
tho State, and in a 8ub88qUOnt paragraph it 18,provldad
that auoh vrovIaIoa 8Call alao lQQly to adapartaiant head6
and mombarr of 0~g~Ia?iI0n8.*
An examination of all of the80 prav101050 n-
veals that
the tarn wdapartmant hoad* IS usad In OOBtn-
dirtin6tioa t0 *Stat8 ~19lOyee0,~ and it I8 apparant that
tha term *dbartmnt head* mm usod’ln, the aan8a of those
~offf00r8,w as dIhiaguI8hod fro?8 em9loyesa of th0 State
govcmmant ahargsd with the prisary ra89onaibIlIty of ad-
mInIaterIng tha aff8lra.ot a partiaular branoh of the
state govarment. In Ihosa Instanoes where 8 9aTtIOUl.m
branoh OS thr St8tr govarnaont 18 haadod by 000 IndIvIdu81,
euob as the Comptroller, the Stata Traasurar, and the
Attorney Canoral, It IO requlrod that th8 Qayroll affidavit
be made by the fndlvidual who heOii8 that paX'tIOular dlvl-
lIoa of the State government, In instanoes rbere a vartf-
oular branoh or dIvI8IOn of thr Stata govsmaant 18 bead-
rd by a Baa?d Or Colm1801On, it I8 OOntsPlQlatad that the
lf?IdavIt shall b8 madr by the Qhelnma OS that Board or
CoJppli~8IOIl.
It la, of oouraa, noognized by the Lagialatura
that th rrridavlt so mde by tha dopwtisent head murt be
arrdo b7 hlr upon information fumiahed to hia by hia da-
9artaaatal aaQloyo*a, ror it aaoaaaarIly
rcu8t ha*0 boaa
Ron, .O*orge R. Sbappard, Page 10..
oontmsphted by tbo Leeialaturo that the aotivftf88 of
acme of the drpartmante are 80 far flung that the dege’rt-
mrnt" head oenaot,have Indlildual personal f Iret-hang know-
ladge of the laOts required to be stated In the affidavit,
and that b8 ata8t aeoesaarfly rely upon his dapartpmtal
dlvIaIoa heads to fUrnI8b tb8t InfO~tIOu to a.$& Thi8,
howwrr, dOe8 not reliovs tbo dop8rtrasnt bead frr# tho
re8poa8ibflity of arrk& the affidavit required by the
L0glalaturo.
We tm8t- thst th8 above fully I)Xli)Y4rli YOUr ia-
qu$rIaa.
four8 verr tmly
MmBmY ORRBBAL 01 tlrns
R. ~I. WirohIl4
Aaatatant
ATTORNTCY
GENJ!%AL
Or’Tm.S