OFFICE OF THE ATTORNEY GENERAL OF TEXAS 

AUSTIN 

Honorable H:. D. Bradflold 

Chairman, Texas Liquor Control Boar& 

Southern Methodist University 

Dallas, Taxes 

puor Control Act 

9 impoeod l&pon 

, ror instanoer 

inspoet* Mb regulate 

8s of manufaoturlng, 

tranrportation, stor0n,'pome~~ion ror the purd posses8lon of all alooholio 

ding thr adrsttlsing and labrlall raspsots aooerrsry 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 elcoholio beverage business, which 
Etmambla W. 1). Bradfisld - psgs I: 

it BE{ door asoo88sry 80 l ooayllsh tha puyy:mor 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 msnufsotura or alaoholio bsrsrsgos or othttr permits in mgerd thonto. 

"(0). To inrostigats and aid in ths promoution or riOlatiOn4 of this Aot and othsr Aots 

rslatlng to elooholio bsvsragss, to maM sef,s~r~s 

or l looholio bsvaraps manuraotuna, sold, kept, 

Imported, .or trensportsd in oontrarsntlon hsrsot, 

end apply ror the oontisoatlon th4m0r uhsmrmr 

=cpliria by this A&, ~4 oo-opsrate in the prsssoution 0r orrsnasrs bororo any Court or oampotsnt jurisdiction. 

"(4). To ueroiss sll other powors, duties, 

and funotions oonforrod b this Aot, and all )o1- 

or4 lnol44at4l, conrenisn i , or n60444ery to snabls It to 04minf.t.r or 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 CoTsamsnt shall provide any plsn or moth.4 whereby ths 

tuss on liquor shall bo oollsotsd at ths souroo 

ths Boar4 shall have ths right to sntsr into any 

and sll oontreote end 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 requfrs by rule and rsgulation thst 

any liquor sold in this Stat8 shall oonior~ in all 

mspaot.8 to the edrortisod quality of such Pro4uotsi 
Honorable W. D. Bredll.14, - Pegs 3 

to promulgate rules and r4guletlon4 governing 

lebellillg end sdrsrtlslng of all liquor4 in 

strlot aocordanos with the lsbslllng and aavortlslng regulations or the Fsdsral Alcohol 

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 sarsguerd th. public health and 

to ineuro eenitery condition. In the manure&Ulng, rerlnlng, blending, mixing, purlrylng,~. 

bottling, end rsbottllng or any eloohollo bsrsr- 

'age end the sale the-or. 

(g). To lloense, regulate, and oontrol 

th. ure or eloohol end liquor ior solentlflo, 

phermeosutloal, ena lnaustrlel purposss, and 

to provia for tbm withdrawal thsreor iron 

warshouess end denaturing plants by regulation, 

snd to prescribe the mannsr fn whioh the .m 

mey be used for solsntlrlo. rsssaroh or in hospitals and in sanatorla, in industrial plants, 

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 important 4utl.s lm osed u on ths 

Boer4 am oonourrently imposed upon both t E a Boer iaLl4 

the A4minlsttator .” 

You further stat&r 

*The Liquor Control Boor4 * * + et its 

msstlng on Ssptembsr 1, 19S7, adopted what 18 

known es Rule and Eeguletion No. 3-A. whioh 

read. as rollowsr 

?*In addition to th. spsolrlo powors and 

dutier a.l.geted to ths AdminiBtrator’by the 

Texas Liquor Control Aot or by any rule8 apd 

rogulatlons or the Board, the Administrator 

of the 'Boar4 1. herabr and 1. herswith g1r.n 

sxolusivo jurisdiotion betha following mettars: 

"'1. Appointing and omplo~ing olerks, 

stenographers, in@motors, ohsmlst., end am- 
Honorable W; 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 designate mmbors or th. Board or 

representatlrss thsrsof to hold h.srlng. as pror14.4 by law. (sea. 12 (a) (a), Art. I.) 

ale. Certifying to the suthsntlolty of sll 

noor4ss notless, orders, 

al.1 other aooumnts 

gub;loatlons, rulrs snd 

rsoor I) and reports in pesoslon 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, winrries, 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 regulatlon8 of 

the Board %x4 msntionsa srs rrrlld and bind.W. 

3. R'lnblng that the prtd810M of th. Act md #LO 
Honorable W. D. Bredf!.eld -page 5 

rulee or regulations are valid, what are the respective 

powers end duties or the Boar4 end the A4minlstrator under the proper construction of Suoh statutes and 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, alteration or repeal of its rules 

end regulations have upon the prior eots or the AdminiStrator under suoh resolutions or r&lee extending exoluslve power? 

We beg to advise: 

1. At the $hrsshold of 

f 

our rirst question llee 

the oonslderatlon of the oonstltut onal power ot tho Leglsleture to delegate its legislntlvs funotion to an adminf~- 

tratlve body. By constitutional mandate no one of the departments of the government msy enoroaoh upon the powers 

rightfully belonging to another drpartmaat. 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 perform purely leglslatlve functions, nor may they perrorm purely exeoutlve f'unotlons. For preolsely the same reasons the exeoutlvs ofil0836 may not perrorm any ru0ti0n that is efther purely 

legisletlvs or purely judlolal. I have us84 in this oonneotion the word mpurrlyW ln defining ths exoluslve powsrs 

of the department, and have done so advisedly. It Is a matter of praotioal lmpossiblllty for either of the departments to funotlon without in scmo mee6ure performing some 

acts that partake, in a measure, of the functions and powers of another department of the government. In this busy 

day of onmplex aftalrs it is preotloally impossible for an 

edminlstretlve.or executive orfioer to perform his neOeSsary duties without at the same time, in some measure, performing some incidental runcrtlons that under other oiroumstances would belong to the judlolel or leglsletlv8 department of the gover.zcent. Such lnol38ntal pow&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 officer void, 854 are 

not forbidden by the constitutional prohibition above refer- 
&mrabls W. 3. Rradfleld - Pa&s g 

_. _ 

red to. 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 pousr to 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 f ala1 in its mturs. 

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 dmlnlstr stlo rvs flo sor r board ths nsas8sary au8 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. tT8 alto 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 r spmrtmsnt that the authority ooplnOlpls8 ws have rererred to, lt 

rerrsd by 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# 

mlnutos to lmmadhtsl~ speolfy the dutibs and 

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 = 

powST8 St&d dUt:bS WhlOh it dSl8 tS8 t0 thb Adednlstrator. All orders, de01 Sk? one* and'Jud6- 
Honorable W. D. Bradiield - page 7 

m4nt4 entered and 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 duties which are Mt 

speoiiloally delegated to the Administrator 

by the Board's order shall be considered as 

retained by the Board ltselt and all orders, 

deci4ions, and judgments rendered 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 functions that have been given 

and 

conauxren t ly 

to the Board and the Administrator by the terms of the 

mt. The delegated authority to the Board itself 1s no 

more binding than is the sub-delegation or the same authority by the Board to the Admlnlstrator. Your question NO. 

2, thererore, should be answered "YBB.~ 

3. The statutes above quoted and the rules or 

resolutions above set forth are, WC, think, suffiolently 

lnrormatire within themselves to answer your inquiry Bo. 

3. 

4. The authority oonierred upon 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 speoliled powers and authority to represeat th4 Board. 

There is nothing ln the statute to indloatb the 

intention that thla power or the Board 1s one ior a mom4nt 

to be exhausted in its initial 4x4rols4. On the contrary, 

there 14 every reason to b4llere th4 leglrlatiP4 intent&on 

was that suoh power is an abiding power to b4 4x4rals4~a"- 

00rdlag to the sound orrlolal dlsoretlon Oi the Board. To 

hold that this 

r 

er or authority oi 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. 
Honorable W. D. Bradfield - pge 8 

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

abwe quoted, thatr 

"All orders, d4olelone end judgments entered and rendered by the Administrator in 

matters upon which he has been empowered to 

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 judgments rendOred 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 ppb efrom l 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 deolslon or 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 deoision mad8 

by hia where rights or other persona have beaome flrsd thereunder, ror no pro~lsion is made ror a rehearing rith~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 1 ring it8 

sat to 

own orders or decls~one where 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$estion No. . 

The foregoing represents the considered Opiaion 
Eonombl4 it. Di'aadfleld - ~4 9 

119. NmJa 

0018 Bpssr 

Adstult 

AImmnD DRC 8, 19a9 

(Elgned) obreld c. Mann 

ATTORRRYOlhTgRALOFTXAS