**OFFICE OF**  **THP: ATTORNEY**  **GENERAL OF**  **TEXAS AUSTIN** 

Honorable 8. A. 61888, DireCtOr 

### Textbook Dlvlrlon Department Of **SducStiOn** hatin, **Texas**

Dear 811'1

- Help In dl8t.Fltextbooks. 

### 21,1940,request-

,the letter being

ary 8tQ,tvo quesyou from this the wthorlty of to rel&mrre bondtextbook8 in looal or expenditure8 lnour

### cdn vlth the distrlbutlon bOOk8 t0 pupils Of the **pub** In your OpiniOD Ilo.o-1837, 

### al'y16thEndrddl’e88edt0

### the f thePertbookDlvl8lon, **both** e88 question8 

### wereumvered in the

~Eovever, Upon prelrentatlonof 

### oerfain ololnm from local bonded tertboolc CiU8tOdlti8,vhlch inrOlve parlB8ntfor 

### labor, theComptroller 

### rejeoted the 

### pawmnt of the alalms and returned them 

### ~lthHonorable **a. A.**  **01a88 -**  **Page 2** 

the letter Thlch 18 co led belov: (Ciplee of clal~ are rttochedP
*. il.A. Glars, Director Textbook Division State Department of Edacstion h8tin, tea8

Dear AU'.

### Gla88:

@*I am returrringthe maoant of BOP

### nerFrlzaell In the amOunt of $29.33 and the account ofJ. C. latoon in the amOunt of $7.eo for the reason Ibelieve they
are in violation of the iollovlng FovlaIon oi the Departmental Bill plsklngaa op~oprlatloa for the Textbook Dlvl8lon ThlCh prohibits the employing oi 

### anyadditlonal employee8 

### for your dlvlelonr

*It 1s f?wther worlded that the anmnte tobe expanded for nev textbook8 and reblndlng shall be a8 fixed 

### bythe State 

### Board of Educations provided, however, that
no employees, In addltlon to those listed and lteadzed above, shall be eEplopeO.*
Very truly 

### yours, Signed; 

### George Ii.Sheppard

Comptroller of'public Accounta Breasler/g

8Slnce It ha8 longbeen the ourrtomof this Dltl8lon to psy such claim, and 8bV2.efu&is are available for the 

### payment of current clalm8, this Dlvlslon feels the need of further Interpretation of this problem. Se therefore respectiully request your opinion on the f0110vlng question*

81. Does the rider to the General 

### Ap proprlatlon Bill 

### tor thebiennium ending &lgU8t,31, ls(l, a8 quoted fn t&3 CODID-tlonorablsAl.**A.** Cl088 - Pa&e 3

troller'8 letter, Obviate the atathorlty 

### of the State

### Boardof SduOatlon to pay **Out** Of **th8 Textbook**  **btld 811**  **nSOeS8ary expenae8**  

### Inconneotlonwith the distributlw of free **textbooks? ’** 

In the general form ofyoaw question **a8** stated, It **haa** 

### been **ana~ered in**  

### formar**opinion lto.**  3091, **of date**  

### liovenherT, lQSQ, addressed to the Honorable Ceor U. Sheppard, and opinion lo. C-lSST1,dated 

### January16, 1940, adJlret3sed

to you, copies ofvhlch opinions you 

### have.

**QbviOU817,** the 8peclflC qtle8tiOIt 71th vhich you are Qormerned la vhetbtr ornot the **rider** quoted in KP. Shoppard~s letter ha8 

### theefreat toforbid the **State** Board of fklucatlonto pay out of the Textbook Fun3 Items of reln&ursement for extra help to llv.Prlzaell aad hr. Watson for 8emloe8 in a88i8tiXIgin the dlstrlbutlon Of **textbooks.** So that, TO ~111 amver your question a8 thus reetated.
The 

### Comptrollerha8

### docllaedtopepthesebills upon the grouwl.that the rider to the Appropriation Bill puOi&d in his letter forbids such imfment.

It 18 the opinion of this departinent the rider ;;;:,zgt have the eifect attributed to It by the Compl We conwend the Comptroller98 vigilance vlth r88pQCt t0 the paying Out of plbl1.omney8, but we hi8- 

### agree Tith hi8 con8tructlon of the

### rider.

The language which has iippelledthe Coieptroller"8 action Is a yvovl80, **as** f0110~8:

8 + * 4 prodded, hoTever, **that no**  employees, In aMltlon to

### those listed and 

### iteaiiized above shall be employed..

The acoepted rule of oonstruetlon with respect t0 prOtisO8 18 thus stated by &i?.Sutherland 011Statutory ConstructionsHonorable tl.A.Gla8a - Page 4

mThhonatural 

### and appropriate office of the prwieo being to **reetraln** ok qualify so126preceding mtter, It should **be** CoDfinod t0 That J8WWie8 it llDb88 It Clearly **appear8 t8**  have been intended to apply to 80~~ 

### other

### matter. It Is to be **COD8tNed** In oooll6atlonTith the eectiOD Of vblch it fOrTI a part* and it 18 8ubetaDtially LO exeaption. If it

### bea pm180 **t0 8**  **PWtiOUlW 8eOtiOll,**  **it** doe8 Dot 

### apply **t0** 

### others **UDle88** 

### plainly interaded. It should be construed Tith 

### reference to

### the lmmedlately preceding part8 Of the elau8e t0 Thich it 18 8ttaehed. In 

### otherTorde, 

### the prWi80 will be 80 restritted ID the abeonce of anything la it8 tel’ms, Ol'

### thesubject itdeal8 **Tith,** erinclng a~ Intention to glre It 

### abroader effect.4 e l
*Story, J., oafflhe **Ta8** led to the general lule of **1aT** which ha8 alvays preveiled and become oonseorated a8 alTio8t
a xnaxlmin the interpretation of statutes, that vhen the enacting clause 18 general in It8 language and objeatr, and a pWV180 18 afterward8 lDtmduce!a, that protlso 18 striotly construed, and take8 DO Case out of the enacting clause which does not fall fully ~lthln it8 term6.m Sutherland on **Statutory** 

### Construefion 223, p. 297) Applying this rule of **COD8tNOtfOD** to the statute, the pm~i80 above quoted is applioable to the enactment contain& ID the section of Thlch it is a part, to-wit, the erlactment that *all **awunta to**  be expmded for new **textbook8** ad **rebinding** books shall be as fired **by** the State Board of &lucation.* It Is In respect to these tro item that the prwiso forbids enployoes ID sddition to thO8e listed and ltamized in the Appropriation Aat. The prOvia has 8very definite a?eani&z**Then** thus applied t0 that part Of the 8eQtlon imnecllatelypreceding it, that la, that 

### noemployee, fn addition 

## to those 118ted a?rlitemized, should be emplged Tith **reapect** to the expense8 for **DeT** textbook8 and **re** blndlng books; ID other words, that thehandllng of there Items should be confided alone to 801~ of those employee8 specially listed and itexkzed in the bill.r ’ klonorabloL. A. GlP80 - Pago S

It could hardly be contemplated that the Act means that in DO WODt EX%ythe Board engage employeee, other than thO8e **listed** a& Itemized, because by item 26, 

### underthe hesd ofgSalarlesv, there **is** epecially prOTided 'Seaeonal Eelpr Clerloal, atenograpbic 

### andlabor, @OOO.OO.mlb18 itrelf 18 express authority for the employment of clerleal, stenograyhlc and labor help beyond tho8e employee8 liartedin item8 1 t0 26.

A&D, it 18 our OpiDiOD those &k3r8OD8alding in thedistribution of free textbooks and psia by &Jr.Prlssell and hr. 18t8OD, 

### the custodians, are not employees ID the 8ense In vhlch that **Tord Is**  **ased In**  the proviso. To think it **18** there **ueed** In the 8en8e of persons or employees vhose tenure of eenlce va8 pernrnent rather than temporary, seaeonal, or.occaslonal. Ua are borne out in this C0DCl~610~ 

### by the further rider declaring #all eaployees in the

### Tertbook Dlvisioa of the Gducatlon 

### Dapartmont shall be appointed orremoved by the State Superintendent of Public Instruction, 8UbjeCt to the approval 

### of the State Board of 2ducation.v This bears out the Idea that 8ooployeesv, within the meaning of the Act and 

### of the prwi80, are such persons as those Those employment Is for a given tenure, and in a sense perwnent ,rather than that occaslonal 8ervlce 

### rendered to Frizsell and Fafsonl It is the fapdllar ejusdam 

### gmeris rule 

### of CODStNCtiOn. Any other CODstruction of the Act vould a;akcIt 1mposslble for the Board to employ amessenger to deliver 

### acon

### signzcint ofbooks hovever 88811, and yet such sivdlar and inc1deDtal expenses in connection Tith the di8tr1bUt1OD of tortbooks Is inevitable. The Leglslature never conterqlated that they

### weretobe forbidden. Such a COD5trUCtiOn would not harawniae v1t.h the recoznisod 8~d declared policy of the State to furnish md Zstributo toxtboolrsfroe of further costs.
lioreover,the rules proscribed by the State Board of XuCatiOn Or11CODtrary t0 8UCh COD8tNOtiOn and lnrlicatothe CODetNCtiOD **Te** are giving the rider. Thcsc rules among other thiDgS provide for reislbursepent for (1) extra help for a short time, (2)reaeonable drayaga thargee, (3) freight or parcel post chargee. ID at least **tT0** of these Item8 the elenrent of personal eertlce enter8, and In all of them the

### rs-Honorably ii.d. Glass - Fcrge8

ldmrecm.nt is of expensetaIncurred in the distrlbution ofWoe text books.

You are therefore advised In the opinion of this department the roimburoemant Items ofMr. **Friz** tell aml Ur. Watson should be paid out of the Taxt Book Furd.

Very truly yours

ATTORNCC!L

G~NERATJ03 TXXM

**OS-KR**