. 

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 8urplru 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&alature. 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 l xldenoe & 

a aurplua rubjaot to the jurladiotion of the Board la 

detershod not b 

apeiolflmliy ftaa i 

rubtnotlng frou the tote1 of the emounta 

te6 by tbe Le&laleture the amount8 and 

Items tha dmpemtment hoad elrota to uae but by l ubtraatloa 

of tha tote1 of the amount8 to be used km the amunt 

aotually ~vailsblo for uae in the l p 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 mmher, exoept those that are a fu a a ified ar l e8aonal 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 folwo 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 afSidevlt 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 unlera thla ertlaetft la riled with him. faoh deprrwent 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¶ t1t1.3 or 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 *AddItional ~ployaea Campensatlon, * wo find the follomlni; language : 

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 dsxrtsent or ag~noy, . ..* 

The uuswtr to your question tux5 up03 the laterprotatloB whioh ir to be placed ~202 ;he ~3ras.e *for xb?iOh 

an agproprlatlon 13 zade bre?5.* =i TV 1s rstsrs to 'hose 

appropHotlons for a partioulor departaunt defialteLy itemiad 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. Tldh.Ls It appeared to ua 

slslature. in the enl5n DeYmSnt MranraDh. 4ma 

Intended to-require the numbering in& 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 

l uah 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 u5 l pproprk tlo It n. tm noted epeolfioally that the 

Lsglelattue rwnd It neoae6ary te oxapt rrab~tbia prolielon *eeeaona1 hrlp.* Thia OowtrUotioq, it appear8 

to UI, rooor48 sore amrly ritb the apparent purpose for 

wbioh l uoh provision i8 Inrertod in the bill. It aeeraa 

that the ~gia&ttU@ h6$ requirrd t&e rmbsring of the 

p o dtio a a t, he l ta tea eaof t the title, of the podtiona 

and the DLOII or tha poraoar cpployed to 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 l pproprlatioa to 

perform a partioular typo of work is being paid ior thet 

typo 0r work an amottat 0r monSy greeter then that authorized by thr IAC;lslaturo to be pald to thoao holding 

similar partloulorly ltcmiead poeltlone. It tha departmoat hoa&nesd not nusib~r ralarled positions in his degertnmnt 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 rpeolfl0~11y ~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 h r a sla e o o mo Bly ua etti o r eirr to M p lo p 3el a 4 mga 6 in 

work exoluaire1~ pePiornr4 at l peoiiio 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 lort quest105 1~ a8 follar~ 

~-May i deputmmt hoad .a@07 an addltloaal 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 & el ppro a t 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 OOnteBplatad, 1s Wr O~hliM, that tb0 QrOViSlOlh iOr 88a8OMl 

h8lQ 18 to be rTal8ble iOr tappQXW7 8saP~O7XRent to take 

oar0 of orurgent 8ituatfeM. Year quortion then, with 

regard to 8mg3107meat out OS ooatinaent l pPro9rlatlonr, 

lnrol~28 Oh8 detmneination OS the meanlag to 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@liIi 8Q8Ut. 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. Sweet Olrrr Couatt, 

208 Fao, 970, 972, 88 Moat, 412. 

on tbo other haad, the term ~oootlngrnt ~pea868,~ 

aa aof other word or phrare or84 b7 the Legi81atur8 la 

a ny l fmo t#ntle , aeorraa*tll7 iaflu*noed and aolorod in 

it8 numnb by the 8OIitaXtr 60 find it urrd b7 thr Logislaturo in thr depa~W~at&l appropriation bill uader tha 

heading *nintoaano8 and E~so~~~~Boou~,~ In tho gen8ral 

rider to tha general approprlatlon bill, un4er th8 headln6 

o ? q u4 ntlsad a g l atlonwy,~ pnnglapb (b), M Sina an 
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’ibltiW Of bIl7 IiOtiOta, gamphlat8, tmOklet8, Nfas, .@@ationa, 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 speolflo salary appraprlatlons lava baoa Dada b7 the Lagl8latUTa 6my be oi6plo7ad 

Ma oald out OS the *oont.*bnt* approprlatloa, pr0riaftig 

that 8uOh M@lO7tt8 8b11 aOt be pIi& a h%l-@Zr Mortnt 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 Sollouins: 

-The amromiatlon8 berein prorieba are to 

be aon8trUt;im~acr-tha 5aIi6Um 8~ml-tO be bpprOprhb& 

to and for the 6458 netted horelo, bad 

tho amwits ar coveEiiiiS shalloovtr 

the tintlrt oost OS tht rta otite .lttme and tht 

ZZtXGlS ZTTbt tumlmen ---F-T----- ef. rota arm other 

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 prarld94 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 &WtfOUlar 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 OYBtar 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(l due r8garU t0 the OOntoXt in vhloh we find 

tho word, and th o l psol.flo l uthorlzstlon ror tke ueo of 

ouoh iona for web pIrpoeo8, w an ImpolleU to the oonolualon that the Legialatare has da 8ubetentlelly thle; 

r We.hel ttwanptul, te 00 r a r a s porr lb ltoo , 

oatioipate er eritam y d exp o nero h lob wy a eee8- 

wrlly be laourrod In the opemthm oli iour dopartment, but wa roalfss tlmt our &ad&moat 81 to rook 

mattora ray bo’ ineuot, iron tbo vr?y nature of 

things, and wo therefore appropriate to your domrtment l SUB of money gonomll~ l vsllablo ior opuatfng 

sx$eneer 0r your dep a ttmol xnta op$ , l8 othwvl,. 

horeln epeoifioall~ United, to take earo ob thoeo 

employasnto an& otbor etponeoe not herela epeoifloally 

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 SUID approprldon tOr ooatlng8nt exponser about with epaolflo rertrlotiono as to 

the ~8s of tho aume, plaalng a 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 l ppropri8tion meads 

herein rorr . . . (b) oontlngent e~xpena~e, . . . 

prorlded that any uaexpondod balsnuos froDl protloue quarter8 my bo expondod during eubsequont 

quarters.* 

fn additloa, a prohibition agafast tho WO oi 8UOh 

runa to l upplamont thr iteae poviaed for mtrrrellng l xpon8o8* 

lo ooatainod %a that provloloa of the g8noral ridor rhloh 

read8 a8 r0mu0t 

-It i$ proolbod that no l xpendlturor 8br11 

br ado for tmeling l xpeneoo by my deportBent of thl8 State la l xoos8 of the -ouOt Of 

money it0b0a herein ror rsld 9urpo808.' 
: 

*. ., 

_‘_.. 

..I, ,,~. ., 

_ ~.., :~ ,i 

Non. Qoorgo N. SMwud, Pa60 8 

Yo u l e themron advised that In oar oplalon, 

uzllee8 the mrtloular aepertmenb ir *p*olelly prnhiblfed 

r r 0iti l ~aglag l ay 8ahri0a ~ploysoe ia addition tqf’ttmae 

providesi epool.Slo~l~y by the appropriation rar that dopartsieat, l dqmrtaoat he06 uy 980 hlo *oontlngoat* l p- 

%O%i&iM ior t&o 8@loyaont ol l ddltlolul Marled 

be% The Uopertmeat heed Is not nqolred to obtaia.tho 

approval ot the Lialktloa of Peyaeate Beard boron rrking euoh aaplopmeat, for thet board baa jurlwliotloa oall 

over the upondltara d aaurpldoo~w la oertaln rpoelal 

faadr, aad sot otu the expeadl$uro or l ooatlagea$ ox-*= 

approprletioae. The ~+artaut bud howovor, will be 

required to number l ueh' l tiaolod Qodtloa8 or-ted and 

pnld out of thle ooatia(lont fond, es provided I, th8 mr8- 

@mph 00 Valu mymen%P in tko #eaerel rldm to the 

geaeral l pprepr 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 l rfidatlt requlrod by the pwegraph 

* ealmm wyaontr’ l pplatinl; la tho (Ieaeral 

rider to the geaonl l pprojmlatloa bill?* 

suoh provlrlon or tho rider ropuiroa that l rom 

noath *tha hea4 or oaoh doper&mat shall 8tt8ob to the 

payroll r0r his brpartment an midam, . ..* 

The phraeo whead of the depertmsnt* ir u8ed la 

asay laskaose in tho-general rlaor to the goaonl l ppro - 

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 dermrttaent*8 annual report. The “bead of any depertaent* $8 

l uthorlrsed to 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. l ro tboa nqoired to &To she 

portu to ooaply with the orders oonoelplsg the imProveaant 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*. 
’ . 

L 579 

I? an umployee cl a dapartaant af tha rtata govemaant 

sngago8 in oortaln 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. #hO t l 8 

Stateiounad l utaWblla la uaod for oartaln Inhibited 

prlvata QurQoaaa, with t&o knowlodge OS -tha.haad of any 

dopartmeat,w the -dapartmaot h8ad” i8 li8blO to punishaont. 

It la mado the duty or every '6qwtment &oa6* 

t0 fPrI%iSh l V8ry ~plOyt10 Or the QOpahOSt With 6 OOpy 

of oortaln provlrlona of tho gomwal rider to the general 

l QQroQrIatIon bill. It i8 provided that UQOn a faiiura 

$f;zedo, ruoh *departmat 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 

Of t2-a VOlil x~0n0.0 r r g 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 l QQly to adapartaiant head6 

and mombarr of 0~g~Ia?iI0n8.* 

An examination of all of the80 prav101050 nveals that the tarn wdapartmant hoad* IS usad In OOBtndirtin6tioa 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 admInIaterIng 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 dlvll Ioa of the State government, In instanoes rbere a vartfoular branoh or dIvI8IOn of thr Stata govsmaant 18 beadrd by a Baa?d Or Colm1801On, it I8 OOntsPlQlatad that the 

l f?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 da9artaaatal aaQloyo*a, ror it rcu8t aaoaaaarIly 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’rtmrnt" head oenaot, have Indlildual personal f Iret-hang knowladge 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 iaqu$rIaa. 

four8 verr tmly 

MmBmY ORRBBAL 01 tlrns 

R. ~I. WirohIl4 

Aaatatant 

ATTORNTCY GENJ!%AL Or’ Tm.S