OFFICE OF THE ATTORNEY GENERAL OF TEXAS **AUSTIN**

HonorableH:.

D. Bradflold Chairman,Texas Liquor Control Boar& SouthernMethodistUniversity Dallas,Taxes

puor ControlAct 9 impoeod l&pon

, ror instanoer inspoet* Mb regulate 8s of manufaoturlng, tranrportation,

stor**0n,'pome~~ion** ror the purd posses8lonof all alooholio ding thr adrsttlsingand labrlall raspsotsaooerrsry to aooaposos of this Aot. TAO Board ir with power and authority to proeoribe all neoemsry rules and regulationa to that endt to m&m the filing of suoh reports and other data by all poreone enga& in any phase of the elcoholiobeverage business,whichEtmambla W. 1). Bradfisld - psgs I:

it 

### BE{ d oor

**asoo88sry** 

### 80

l ooayllsh **tha** puyy:m**or th**  **4 Aott**  **to supervlss**  and rsgulets **a** 1 **BBS** as4 pelritk8s an4 thsir ple088 **or** bu81n848 in ell mttors atisOtin(the goneral pub110 **whothr bnin**  **~p0irh.n~ mOntlono4**  **or noi,**  aad to l uthOrlss its 

### l

gra&b, servants,sn4 em **uudsr** its dlrrotion to oarry out the pr OJ lorcts

**hueor.** '(b). To **went,** rsfusa, suspan4,or **oanosl** pormit4 or liconsss for the **par0h~84,** transportation, kaportstion, sals or msnufsoturaor alaoholio bsrsrsgos or othttr permits in mgerd thonto. "(0). To inrostigatsand aid in ths promoution or riOlatiOn4of this **Aot** and othsr Aots rslatlng to elooholiobsvsragss, **to maM**  **sef,s~r~s** or l looholiobsvaraps **manuraotuna, sold,**  **kept, Imported,**  .or

trensportsd in oontrarsntlon hsrsot, end apply 

### ror the oontisoatlon 

### th4m0r uhsmrmr 

### =cpliria by this A&, 

### ~4 oo-opsratein the prsssoution 0r orrsnasrsbororo any Court or oampotsnt jurisdiction. "(4). To ueroiss sll other powors, duties, and funotionsoonforrod b this Aot, and all )o1- or4 lnol44at4l, i

conrenisn , or n60444ery to snabls It to 04minf.t.ror oarv out any or ths provisions of this kot and to publish all nsoessary rule. and rsguletlons. w(o). In th. wont the Unit.4 Stat08 **CoTsa** msnt shall provide any plsn or moth.4 whereby ths **tuss** on liquor shall bo oollsotsdat ths **souroo** ths Boar4 shall have ths right to sntsr into any and sll oontreoteend oomply with the rsgulatlons, even to the extent or partially or who117 abrogating any provisions hereof whioh mey be In ooailiot dth Fsdsral iew or ngulations to ths snd that th. Bosr4 shkll raoslrs th. portion th8r.ot allo6atod to the Stat. of Tsxss, and to distribute th6 sams as In this i4ot is proviasd+ w(r). To requfrsby rule and rsgulationthst any liquor sold in this Stat8 shall oonior~ in all mspaot.8 to the edrortisodquality of such Pro4uotsiHonorableW. D. Bredll.14, - Pegs 3

to promulgaterules and r4guletlon4governing lebellillg

end sdrsrtlslngof all liquor4 in strlot aocordanoswith the lsbslllngand aavortlslngregulationsor the FsdsralAlcohol Administrations

to adopt and snroroo e standard 0r quality,purity, and identity 

### or aU eloohollc bsverege.,end to prornulget. all suoh rule. end regulation. a6 shall be 4e.m.4 nsoossery to fully sarsguerdth. public health and to **ineuro** eenitery condition.In the manure&Ulng, rerlnlng,blending,mixing, purlrylng,~. bottling, end rsbottllngor any eloohollo**bsrsr-** 'ageend the sale the-or. (g). To lloense, regulate,and oontrol th. ure or eloohol end liquor ior solentlflo, phermeosutloal,

ena lnaustrlelpurposss,**and** to 

### provia for tbm withdrawal thsreor iron warshouessend denaturingplants by regulation, snd to prescribe the mannsr fn whioh the .m mey be used for solsntlrlo. rsssaroh or in hospitals and in sanatorla, in industrialplants, and ror othsr menuraoturlng purposes,tax-INS." Art. 666 600. 6, Tsxes Liquor Control ~r,"iGt. 1, sso: 6).
You point Gut -- oiting ssterel ln4tanoos-- "that perhaps the most important4utl.s lm **osed** u on ths Boer4 am oonourrentlyimposedupon both t E 

### iaLl4 a Boer the A4minlsttator

.”

You further stat&r *The Liquor Control Boor4 * * + et its msstlng on Ssptembsr1, 19S7, adopted what 18 known es Rule and EeguletionNo. **3-A.** whioh read. as rollowsr
?*In additionto th. spsolrlopowors and dutier a.l.getedto **ths** AdminiBtrator’by the Texas Liquor Control Aot or by any rule8 apd rogulatlonsor the Board, the Administrator of the 'Boar4

1. herabr and 1. herswith g1r.n sxolusivo jurisdiotion betha followingmettars: "'1. Appointingand omplo~ing olerks, stenographers,

in@motors, ohsmlst.,end am-HonorableW; D. Braafield - page 4

p10ye.4,an4 fixing their autioe ana selarl.4. ” ‘2. Comde4lon faepeotors,repressntatires, ana enpi0y006. 7(b), Art. I.) ” ‘3. Granting tia'rsntsiag psrmlt. aa llo4n.es,end all other msttsr. in 0onnsotlon with bearing thsrson. ($00. ll, Art. I, Md Sea. 8 and 7 (a), Art. II.)

= ‘4. Csn0ollation-4 suspsnslon

### 0r psrmits -4 U04~es, and all qtters in connsotion with hsaring. thsrson. ($00. 12, Art. I, and 5.0. 19, Art. II.)
W'5. To designatemmbors or th. Board **or** representatlrss

thsrsof to hold h.srlng.as pror14.4 by law. (sea. 12 (a) (a), Art. I.) ale. Certifyingto the suthsntlolty of sll noor4ss notless,orders, al.1 other aooumnts gub;loatlons, rulrs snd rsoor I) **and** reports in **peso** slon or the Board. 1S.a. 12 [a) (61, Art. I.) N’7. **Inre4tigation** 

### or, **and** all mattore in oonneotlonwlth alleg. rlolation.of liiw by out of state wholssalers,browom, distillers,winrr**ies, menufaoturors**  

### -4 agents, sonants -4 employ.o. of the ssme. (5.0. 27 (b), Art. I.) "'8. Edaking

rooomeen4atlons

as to pleas of gul1ty, ($40.26, Art. II.) wr00ti~. this thr lst or septambor, A. D. 1937. (See Seo. zt(a) Art. I.) TEU8 LIQIJCR

CONTROL~BOABD."

Whotbmor 

# not

the provl0ioM ai thO8tate squr Conk01 Aof?.aboie reform4 to are oa%itUtbMlly

.
Whsther or not tbo 1~108 -4 regulatlon8of the Board %x4 msntionsa srs rrrlld and bind.W.

3. R'lnblng

that the prtd810M of th. Act md #LOHonorable**W.** D. Bredf!.eld - page 5

rulee or regulations are valid, what are the respective powers end duties or the Boar4 end the A4minlstratorunder the proper construction of Suoh statutesand resolutions?
4. Whether or not it is within the lawful power of the Board to amend, alter or repeal its rules and regulations theretofore adopted so es to lessen the powers of the Administrator

end increase the powers of the Board,
5. Finding that the Board has the power so es to amend, alter or repeal its 

### rules, then what etfsst would such amendment,alterationor repeal of its rules end regulationshave upon the prior eots or the AdminiStrator under suoh resolutionsor r&lee extendingexoluslve power?

We beg to advise:
1. At the $hrsshold of four rirst question llee the oonslderatlon

of the oonstltutonal power ot tho Leglsleture to delegate its legislntlvsfunotion to an adminf~- tratlve body. By constitutional mandate no one of the departmentsof the government msy enoroaohupon the powers rightfullybelongingto anotherdrpartmaat. That is to sey, the,Leglslatur8,may not perform the purely judlolal f'unstion, nor may It perrorm purely 8ssautlvs tunotlons. Likswise, the courts haven no power to performpurely leglslatlve functions,nor may they perrorm purely exeoutlvef'unotlons. For preolselythe same reasons the exeoutlvsofil0836 may not perrorm any 

### ru0ti0n that is efther purely legisletlvsor purely judlolal. I have us84 in this oonneotion the **word** mpurrlyW ln defining ths exoluslvepowsrs of the department,and have done so advisedly. It Is a matter of praotioal lmpossiblllty for either of the departments to funotlonwithout in scmo mee6ure performingsome acts that partake, in a measure, of the functionsand powers of another departmentof the government. In this busy day of onmplex aftalrs it is preotloallyimpossiblefor an edminlstretlve.or

executiveorfioer to performhis neOeSsary duties without at the same time, in some measure,performing some incidentalruncrtlons that under other oiroumstanceswould belong to the judlolelor leglsletlv8department of the gover.zcent. Such lnol38ntalpow&r6 are trsquently referred to as bei& "quasi judicial,*or "quasi 18gislatlve." The exerolse of suoh quasi powers do not render the a8t of the executive or edmlnlstretlvs officervoid, 854 are not forbiddenby the constitutional prohibitionabove refer-&mrabls W. 3. Rradfleld - Pa&s g

_. _



## redto. It 18 only whore the exeoutivs or admlnSstrntSv8 oftloor psrfoxma 8 funotlon or power th t le purely that belonglng to 

### another dspnrtmut of thq 

### govermbnt, that it 1s iorbibdsn.

**Appr this**  it **fol.lSws** that **th8** bgs8lature **hM** 

### the pousrto delbgste 

### to a n l dqlnl8tratlrs

orflosr any power or ths authority to prrr0zti an r~0tii0a thrt ia not pursly leglslatl?s or 9ursly jud ala1 in 

### its mturs. 

### f Ths 6bnsral

ruls upon this subjsot of delugated **~X ’**  **18 ’** **thStWhS~ #SLSgiShtUXS**  8ufflOilKlt)gdSfliwS

d outllnrs its lntsntloas m as to evldenos k ~f%&~liO~ or d8ohntlon O! th8 law* svon though in genbr tams, lt say thsrsupm dslsgata to sn l dmlnlstrstlvs

o rflosr



### or board ths nsas8saryau8 proper powerto& those thln2&8thsta~l oalmlatsdtoosrry 

### out the loglslatlr* poLioy 

### or plsn. In other werds, it weuthorles 

### anotliorto abk ths lsgislativu aOih

### #a ply thsdstalls to &srwrlciph 18 lslportant

t$mrnaMtel pwstlsn has roodtea unusual 

### n&lo8 

## end oonsldsratloa wlthla th0 last fsw ysars. tT8alto thb 0sL40 or Penaw Iiaflnlns

Co. 

## et al, ve rtJrpn et 81 (U. 8.) 79,Law Pd. 446 and the ~sry full enwtatloee to ths subjsat, round in f& A. & R* l.464,

and 95 A. L, R. lS94.

A p1A.ng the 18 ths 091 x2

on or this spmrtmsnt that the 

### authorityoopr lnOlpls8 ws have rererred to, lt 

### rerrsdby ths Lsglalaturs upon ths Baird 

### In the ssotlon and subssotlon herOlnaboro sot out, lo a valid exsral88 of tha 18glslstlYs powor nad ~ssts in the Board tb8 autharlty to do ths this@ thOrsin mentloaed.



### "yes".

.

Question No. 1, thrraioro, should 

### be 

### ammeroQ

Beotlon

U(a) sub6lvlslon

(6) ot AZ%. 1 of ths 

### Aat (I&, Art. 606) dsolarbsr -

*It shall be the duty of ths **bard by**  its printed **rubs** and 

### mguletlone **entsr86** 

### ~upon lt# mlnutosto lmmadhtsl~ speolfy 

### the dutibsand powore or the **AdminLoWator.** In all in8tein0~8 whamby ptovlrlon8 

### or this 

### Adt, ommurrsnt ,wwers and dutlas are litposod upoa th0 lkmrd and
= Mnrinistrator, tb Ward shall deafgnatu suoh powST8St&d

dUt:bS WhlOh it dSl8 tS8 t0 thb Ad**ednlstrator.** All orders, de01 Sk? one* and'Jud6-HonorableW. D. Bradiield- page 7

m4nt4 enteredand rendered by the Administratar in matters upon whloh he hab been empowered to aot shall not be subject to a Vl4W, or r4.~vision

by the Board. h"&h"' x-eAll0 **or** aoXiOurr4nt

**pOW4rS** and dutieswhich are Mt speoiiloallydelegatedto the Administrator by the Board's order shall be consideredas retained by the Board ltselt and all orders, deci4ions,

and judgmentsrendered and entered by the Board shall not be subjeot to OhaU8, review, or revision by the Administrator." There is thus given express authority to the Board to authorize its Atilstrator to perrorm m all those functionsthat have been given and conauxrenly

t to the Board and the Administrator by the terms of the mt. The delegatedauthority to the Board itself 1s no more binding than is the sub-delegation or the same authority by the Board to the Admlnlstrator. Your questionNO. 2, thererore,should be answered "YBB.~

3. The statutes above quoted and the rules or resolutionsabove set forth are, WC, think, suffiolently lnrormatire

within themselvesto answer your inquiryBo. 3.
4. The authorityoonierredupon the Board to delegate oertain the Administrator Is no more than t ?orations o perform their will. The the Ohlef ofiloer of the Boar0 to whom may be 64lbgstOd the speoliledpowers and authorityto represeat th4 Board.

There is nothing ln the statute to indloatb the intentionthat thla power or the Board 1s one ior a mom4nt to be exhaustedin its initial4x4rols4. On the contrary, there 14 every reason to b4llere th4 leglrlatiP4intent&on was that suoh power is an abiding power to b4 4x4rals4~a"- 00rdlag to the sound orrlolaldlsoretlonOi the Board. To hold that this r er or authorityoi the Board eq!ire*with ita first exerpo

88 would be to give a strlat aommotlon to the etatutes;whereas, the 8tatutorY rule u that 411 statutes are to be given a liberal OnnstruOtionwlth t&e **V~SW 0f**  accomplishing the deeigned purposes thereof. f&estion NO. 4, therefore,should be answered in the affwetive.HonorableW. D. Bradfield - pge 8

5. It id erprbssly protided in @Ub?mOtlon (e), abwe quoted, thatr

"All orders, d4olelone end judgmentsentered and rendered by the Administratorin matters upon which he has been empoweredto sot, shell not be eubjeot to ohaage,review, or revielon by the Board." Compl4m4ntary,

it 1s provided rurthert "Al.1 other conourrent

powers csd duties whloh are not 8peOlfioally delegated to the Admimietrator

by the Board's ardor shall be coAsldbr4d

as retalnsd by **the** Board itselZ, and all orders, doclslons and judgmentsrendOred end entered~by **thb** Board shall not be AdmLstrator.w sub sot to hxnge, rwlsw or rsvlslon by ths

It will bo **soon** that the rrvisw by 

### l ppbe l from ay order **or** d801810n must bs t?onthb 

## deolsio~~ or **the Admlnl8-**  trator, or iromthe Board aoeordlng as the Admlnlstrator or the Boardhas the power or jurlsdlotlon to make the ardor or deolslon in quastlon. Nblthsr the Administrator nor thb Board can amend,mdiry or in any wise art asidb sn order or deolslonor the other in any event. Xorswer, it is Qubtiul if U&4 Adminirrtrator aan hLpyl8l.i emend, SiltOr,

or **in any**  wise **ubt** aside or raeate, an order or deoisionmad8 by hia where rights or 

### otherpersona have beaome flrsd thereunder, ror no pro~lsion is made ror a rehearingrith~respet to eueh motters~ the rem being by's diFbOt appbdl, ss proridbd by the statutes. I, Sea. 14, P.C. Art. 666 **840.** 14). The seme thing may be said with respeotto the Board's power, or rather, laok of power,with res amendlng,modlfylng vacating or In any,-4 lmpa ring it8 1sat to

own orders or decls~onewhere rights o? others h4Yb b40~4 vested or rlxed thereunder. '&Is ls the doctrine of the Suprow Comt announoed in the case of Laidlow BrOS. vs. lddrs,

. State Superintendent of PublloSInstruotlon, 87s 8. W. This answers your q$estionNo.

. The foregoing representsthe consideredOpiaion

### Eonombl4 it. Di'aadfleld - 

### ~4 9

119. NmJa 

### 0018 Bpssr Adstult

AImmnD DRC 8, 19a9 (Elgned)obreld c. Mann ATTORRRYOlhTgRALOFTXAS