-. ,” 

OFFICE OF THE ATTORNEY GENERAL OF TEXAS 

AUSTIN 

opted Ralmta Ro8olu- 

-alnth am&ate 0r 

ruPwaRt’to wah &rut* Ro8olutlon aad mtioo, ard 

~mlout .hlt7 wll rra tha oouartwr, th@ 8watolw mat 1R th 

but. ohmbar on tha 8th da7 of satwary, 1946. Aftar a 

Quomm URI obtalaod, l r a q wr t mm ma6. oi tin Oovornor that 
jioaor*bl. (km@ H. Shepprb, paBe 2 

b penat to thea his aoPllIastioas for vmrioum off~ose fillmd 

br hW after ths sdjourmat of ths Iaglrlature in Juas 1945. 

fhereupoQ the group “stood et vesv” vat11 Jsaw7 21, d46. 

The ooveraor iailed to present say aon1ast1wr. p 

1 1 or r t h lr w0e.l ~ ppoIatws vns obt.1ae4 rro m the kor stuJ 

0s 8tste, a Qa la M attempted l watin eeuIon, at 5845 ?.Y. 

on ~aapul 2L 1946, the name OS mm 

sad chdrun of ths Texas uasmplo)wa f 

knga urosler es a wmtmr 

for the tom 0 

0apsaut1oa Oalsrllnl 

the 4eontu7 3 

irIQ& monmber 26, 1946 vss rojestsd, &ad 

the 8eMt. h 8 pw&d fou vlth l wr tlfloats to thlr sffsot. All othvr aens VSCS OOarIrmd. 

Y6u~rdrIr uut the T8us uaomp107msat oovpsasstIoa 

comlssloa w7roll for the math of Jsnvsr7 he been prswatl d to you for vursats to Issue la payment thereof. This psyroll our108 ths a8ms of ths Oh4lmsa, 8srr7 Bsagp Crozlor, 

for thv fall month of Jsauu7. You her, sakod the oplaloa 

OS thlr &opmtmat oa ths follovlag quoStIoas: 

ths mtloa bf the Esaati as sortlS1.d b7 ths 

8eoretu7 oi the kastot 

2. Are JOU prohibited by law Sra aooeptlty 

the wtlo a o f the knete o n I& . Or o slsr gl s ppolatuat es v8lltl oa Ifs fmot 

UhIlo ths lnedlato quostloa proseated la this rswut is vhather tha Oomptroller 18 required to lssus b VWr a nt in p ep eaot f uu l ppo la tewlnr7, o s lt p0a.r tb ultint0 question 0r th8 loylitt of th0 retilrg oi thi kastors 

l t whloh ths l g p a 1 ntvas .rs o wtod. 

nlld ths l olatss, bwirrg a 

Ii sash wstl~ -8 Ialegeli untl P 

uly qrulIiIu& holds his oiiloe 

rsjsoted by ths 8enste et 4 valid sssL&oa. If 

tlw wssloa vas mild, then t&n l ppolatoe~s rojoatloa operato 

to moat* the ofiloe sad OS eouree no sslsr~ thuofor 18 suthOrI8ed. 

This wtlag or tha &Mtow vsa velld ualoss it 

Plslnly ooatravvaes ths Coastltutloa of ths 8tsto of lW88 

l M rerogalsiag that It VW l slnoor e attempt by mhosma roPr*rmatmtlns of the pooplo to dlsaharge th0l.r ooantltutloasl 
Bonorsble Oeorge B. Sheppard, psge 3 

duties, Its rslidltr her baea ooa8Idorod la the light of the 

Veu-SSttiS6 pmbOip~# VhiOh ~SVS gUld*d thr Courta la their 

gusrdisashlp of the orgsaio lsv. 

P.uuouat of rush plaolples la thst the paver of 

the bgI@l.StWo of TuM, OS vhlsh ths Ssasto Is sa Iatagrsl 

psrt, la vIrtusll7 sbsoluto sad Is nstrlotod oa17 br express 

or aooesssrll~ Impllod prohibitions of thm Coastitutioa. It 

IS m8Id thSt thS dtSto OoastItutloa la Sa Iastrunat of rules 

sad msxlms In ssoordsaso vith vhIoh tha othorvlso absolute 

povrrs 0r soverui(prt7 must ba l xeroiad. Psre~athrtloslly, it 

me7 lw noted that the Coagress of the Wltod atstem dlfrws in 

Its fUQOtlOQ from the Wiats LogIslAta?e Ia thst tha Fodersl 

Coimtltutloa Is oas of sas8orstod povors. 

Hoosuss of this broad paver sad slso becsuw the 

Isgislrtao Is S brmwh OS tha Oovoramsat oo-ordinate vlth 

the judlolor~, the oourts vlll ladulgs the prasuaptioa thst 

ths kglslstum iatmadad no vlolstioa OS ths OoastItutIoa sad 

~111 uphold l ay oi Its rots vhero thorn Is S teaSUS basis ror 

so doing. ml. 

tE 

Ssmptloa, hovovvr, Is aot ooaslaslve sad 

uhma na Aot of XagIslatvrS, or of either tbu &rut* or the 

Rouse oil Roprrssat8tlves, plaLal ooatravoaes the CoastItatIoa, 

there IS a 0ompmll1ag dut7 to ho Ia that Aot invalid. There is, 

then, to ooasIder this meotlag of the kastors In tba light of 

the portiaant provIslcas of the Ooa8tItutIaa of Texss. 

The psople era roverslga aad In the l xer o la of 

th0i.r labmoot powrti hsvs orutml S Oovvramsat saa dlvldwl 

the pavers thonoi Into thme dlstlact dSpsrtmsat8, aSoh of 

vhloh 18 ooafIdS6 to l SspSrSto bod7 of lu(lstrac~ -- thorn 

vhloh are &gIslatIvm to oa.8 thosa vhioh sre Rxaoutlrs to 

roothej ud thoss vhlah S~S JvdIoISl to mothor. Artlolr 2, 

SSotLoa 1, of tbm Qoastltutloa, rftor deilalag suoh wpuste 

dapsrtmsats, provldesr 

%ad ac person, or oollootloa of persons, betlag of oao of then deput88at8, till l erolu 

any powr proper17 l ttaohod Lo either of the 

others, oxwpt la the Iastwoes heroin oxpromsly parUtted. 

This masge Is sa IahIbItloa. It I8 Stroag l@agasge, Iateaded to prevent ou OS the uld brsaohos OS the 

State Oovvranat iron tuabrtrkiag to do vhSt tha orgsala law 

of the State direotr shill or’msr bs doa~ only by sucther. 
A... ii 

goaorsbls borga H. %epprd, psge 4 

Relstlog to the ooarealog of the lagirlature, aSa 

ths order o? busIaess of its regular SeSSiOS, Artiole 3, s00- 

tIca 5, of the CoastItutioa pPOtidO8: 

-7s thereof siisll k dew&d to the Introd& 

lag of bills rod reso~utI6a8, wtlng upon emsrmm87 l pprop l*tlo pa es, ssla i ur na th io o a ?lr mstl9a o f the reoeu smo la tws o f thm Uonrnor a a d 

sueh emerceasY utters as msf be submitted bt the 

Oonraor in sieolslwsuges~to the IaglslatLre~ 

pro+Ided thst emlag the sucoeedlag thIrt7 ds7s 

of the regular seuloa of tas Lagislat ure the 

varlou8 ocsmIttees a? l sch House sballhold hebrlogs to ooa8Ider sll bills sad reso1utIoas sad 

otherrttersthenpeadlagyl and suchewrdeao7 

matters 8s mar be submitted by the Oovernpr~ provided further that aura the r0u0mg 8ixtr 

d 

ds.8 the Iagiehture shsll not \~gon mush bills 

rosolutloas-as -7 be then pondlag and upon 

sssh~enageas~ matters Sm ru7 bo eubmltted b7 the 

t&VOPQOr iQ 89OOiti ~888~8 t0 t&O ~~i#~tUW; 

prorlded h&ever, either House u7 otherrln determlam Its order OS busIaess b7 aa s??Irutlte 

vote of ?ou,-flithe of Its wmbershlp.” (maphe.18 saaed) 

It vo ula l 

r 

u fra the uaderllaed portion of the 

bbore that ths Log18 tune u7 aot bs ooaveaed after sa sdjouranat #lawdls except by the clovernor. Uhea the Coastltutioa spesks, the Le~islsture osa sot on17 la~the meaner 8ad 

í to the l xteaa 

r 

orlded sad the rule thmt %a l xpresnd lateatloa la sa Imp ied l xclusIoan la held to be se sp llcsble 

s 

to 

Doa8titutLoas as to 8trtutes (Araold v. Lsosmrd, 7% 8.Y. 

799). It la @Ia that ‘the sr?lmatlve presorIptIoas sad 

general srrsagemeats o? the Ooastitutloa sre . . . ?rult?ul o? 

restrrIats upoa thm t~Islstae,* sad that “ever7 positive 

$aw$oa aoataiar sa Upllortloa sgslast sa7thio(l ooatrux 

(C00le~‘. a~8tituthi8i Llm1tst10a.; 8th ml., p. 

177) l Oa deslmllsr r ooastItutloPu‘l prorlsIons it hss been 

held that rhea the Legislstur~ he sdjouraed et the sxpirstIoa 

of Its term, It osaaot sgsla be lsv?ull oslled to&her exOSpt bx the Ooreraor. (Dyer v. f3h~w, 28 1 PSO. 776, 139 0kI.s. 
Honorable Oeorgs 8. 8heppsrd, psge 5 

_.. 

1651 8%mpsoa tr Hill, 263 F+ss. 6% 126 okls. Sgr &eash v. 

stat. 8amstc, 80 pao. 1031, 146 cai. 604) 

Rowevor, the ridat 0s t& Lsglslature to ooaveae itnlr 

is a& atrIOt 

da 

the qwstloa, but rhothor sac ~oase Osa Ooavane Vlthwt other Is aoatrolll 

IadIrnkr bey’otd any doubt that the '3. 

kotloa 5, above, 

l gIelUlvbrrooh s of the 

Oorrrammnt is aapossd 0s tvo ilrtogrnl put8 -- tha ERUH 0s 

Rsp~natatlvosmd the k-t* -- aad thatthetvoOombiMd 

err't&LesUlatu?r~ thd6olthsr Ibasoambsvs uyv~IdIt~ 

or b elal x8ept # whoa oornud aad o~~lsad as tba or-o 

lsv of the 8tnk pr0l1&8. Astloa on the rvwd mtters oaa 

be taba oal7 vhoa the 8mto 18 d la sessloa l M dul7 

org8aleod, a there 18 mothlag la Ooast1tat1oa authorislag muoh o r gea lsstll oraept a rhea t&e Hour 0s Reprvnatmtires ooavo~s also aad Is oJlpa.lsod as the OoastItutIoa prodAe8. fhis prorisioa a8ptiv08 th8 id08 that, for say 0s 

the purposes awed thenIa, 01th~ Xoun oaa hsve sa ladapeadant nssIoa. 

,.__- -. 

. . 

The rutho?ltJ of the aobmaor to ooovsna the Lo,glo 

no t l p p eu to 

4, aeat1oa a,- -+Fwl&.;. 

Wn Cio vo r a or ma r a o n l x tr io r dlueef o so ssio a s, o o a vo a ts he 

o o vo r ma t, or 8t 

th a t should be la pos.sessloa 0s the pabl3.s l aea7, 

or lnorse of the wovskase a? dlsesnthsreat. 

33m mtamtim th0we hu stat0 -0iri0- 

%ho Le&lslat& la hero truatod (&it la In l lmost 

sll 0s tbs Qoastltutloa~s nveateoa utlales) as l ua lt ld 

sIderat1oa to sabjssts designated b7 the OonrMr. 

Another ooastltutIoasl prorIsIoa vhioh rlevs ths 

bglslsture am s unit sad 01~1'17 lateads thst both Xouses 
: . 

Bonorrble George B. shopper&, pega 6 

~~11 b0 IQ n88iOQ OOMUWeQtlJ IS 8sotIoa 17 of Artio~ J, 

vhlsh &wovldest 

"N0lth0r Eouu shdl, without ths ooassat 0s 

the other, adjoara for more than three da78, nor 

to 8a7 other plea* then that vhuo the la~lslature u7 k l ltt1ry.* 

. 

Ooavvrself, there 18s olesr Ia?eresse thstaelther 

Boun w ooavoae vlthout the other under the prorIsloas 0s 

Awlslo f , 

provlslos 

relntlug to ths Lsglslstln Dspsrtqa~~ao~s~hIs 

qaal:~~ 

joura r= Joti 

b7 w suah~exprossIoa l s 

VS DWDO~. 2hs pruhIbltIoasgsIast 

sushw our~~atvlthot 

li 

the oamnat 0s the other Xoan la 

uaqud lob. m8 n&r 8suloa 0s tb0 nvtpninth tigielstare vss terdruted by alas die sd ornament rosolrdloa vhloh 

vss adopted b7 ths Roun of Re f ena Llns 011 Jw Sl, 1945, 

sad b7 the BeMto on June 1, 1 45. There vere no nssrvstloas Ia this resolutloa so s&opted, se la seea ?rsa its 

~ne-m 1 

This resolutIoa l xhsuste 

or- the 7ert7-nlath Ls 

uatll It should bs 8s maaau dIot8tad by the OoastltutIoa -- 4hat is, by the ull0r the Ooveraor. 

It 0-t k h0ld that the mental nrrv0tlooe 0s th0 kast0rs 

as l xhIblt.4 b7 their sdmsquont .rwolutIom 011 JUM 2, 1945, 

vhlsh rosolutloa ~88 aot ooasurred la b7 ths llouse of Repro- 8mdi~08, t0 -0t OS a~ 8, 1916, h4 tbi .0rr~0t 0s 

a&flag hide and tmgetItI~ the pl~la dtilnktoe o?~ the ConstItutloa. 

ths po+lsloas 0s Art;010 15 0s fhr ooa8titutioa, 

rolatl 

T 

to th0 irprO0huat povars 0s b0thbraaOh08 0s ths 

Ls@sla ms aronot@mmaetothIs oglaIolr,~ lstheo~w 

of ?orgu8oa v. Maddox, (263 8.U. 888) iebtlap to rush pavers. 

f0 qwatloa 0s the 

?- 

OF Of th0 kgi#utUW t0 cOOWEO itSOl? 

ves Iavolved la ths osss aad sert*laly ao qaestioa 0s the 

~se~s~?~ae brsash only of the Le~l@lrtwe to ooaveae Itnl? 

. 
gonorsbls Oeorgs H. shrppsrd, pge 7 

Artiole 4, aeatioo 12, of the OOllStitUtiOU 0s Texas, 

s~~ios117 pro+ldes for the Oonraor~s mskiug sppolatmeats 

t0 fill rsssasles ssa r0r the ooa?lrmstioa 0s his sppolatmsat8 

by the 8OMtO a8 ?OiiOVS~ 

%ll vassasles In 8tste f aIstrIot o??Ioes, 

exsept members 0s the LeglslUvre, shsll be fin84 

aaless othervln poritled br lav, W sppslatunt 

or the Oowmsr, vhloh sppdatmsat, If msds durlag Its nssloa, sin11 be vlth the adrlee sad ooaSMt Of tUO-third8 O? thy ‘Ihut p?OSS& I? ISSdO 

rsea to fill suoh wuae~, 

aoml4aod to Beute aw* tb first toa a~~8 

-0s it8 8088i0b I? rejeated, wld offlOe shsll 

Iwdi8to1rbaoau tuant. ad tha oom,roor shsll. 

vithout dvby# rrbr rathir wuaatioas, until l - 

0osfIrmstloa t&se plsse 

rest 

In the natjar llasd pprtbas o? the shove, lt Is uaitbst M QOOtia SOSSiOQ 0s the 8SMtO r0r the purpon 0s 

o o ur lmla g l 

8 reoess 0s i!Iz 

Ia tr a ts vu over latoaded. UhIle a sssslsa sad 

Ikamte me watioaad, It omaot possibly be 

Iu?orred that this usul r0r0r0m0 vu lateaded to rathorlse 

8 upsrate ud ladepeadaat nssloa. On thm l O(Ltrary, It does 

sotsaptemp&te tbs 8SMt0’8 oomtlnalngio nssloa aattitb 

Oovsraor~r l ppaiatmeats hers been ooa?lrmad. By Its terms, 

if there la 00 00m.mtion “during the sss8ioa 0s the 8ea8te” 

the Oonraor %s~ amslat ssm othar mmrsoa to fill ths vsosass 

or ustll thfr next reru+robvious thst the tZ”% 1a%tT~@ 

aoxt nssloa 0s tha +gIslstawe aad tit tbs term “the aext 

wssIoa o? the knate vu und oalr beorss ths pO~i8iSS 

VS8 d~ditig Vith a pS?tiOU~r ?UMtiWk Of tht aO(IM. 
: ’ 

Eonorsble Oeorge R. Sheppsrd, page 8 

Further, it should be noted thst In the srrsngemant of the 

~onrtltutloa this provision la found la ths article relating 

to the Exeoutlve Dspsrtaeat, rod oertslal~, InoIdsnt8l refer- 

~nces to the bgi8lStUW, or either of its HOMea, ~111 not 

operste to modify or l nlsrgs the speoiflc protIsIons of the 

preocdlng Article 3, relstlng to the LegIslstlre Depsrtment. 

IQ the OSU of 8lffpSOK4 v. Bill (SuprS), the Supremo 

Court of Okleho8s quoted vlth spprovsl frown the holding of 

the Court of App8sls of #au York (Court of 188t resort in 

that stste) thst “the Asuably” (oarpsrsble tom our Hour0 of 

~sprsseatatIve8) hs8 110 oonstitutioasl entity exoept ma 8 

brsnoh of the IagIslsture, se follovsr 

“We here shovn thst ever7 referenoe In the 

CoastltutIoa to ‘the Aswably f8 s de?InIte sad 

8~01?10 refereaoe to it 88 one of the @houses1 

.0r the Legislsturs. The CoastltutIoa dOO8 aot 

reoogalre say l atlty under the asms of *the Assembly, ( exoept thst body vhloh exist8 88 8 oonstltueat brsuch of the Leglslsture. Taere Is but 

one ASUabl~. It Is ‘the Assembly. * It Is not 

one orgSQ.ln la respeot to srtlole 3, (the legIslstive povIsIoa -- ours , sad Mother rhea refarrod to l.n article 6, I the iapssohaeat prool- 

*ion -- ours), of the Coaitltutlon. 

‘Ths msre fsat thst srtlolo 6 ooaferred upon 

the Assembly the powr of lapeschment . . . does 

not o rate se l mo tsmorp h o sls of the nature of 

that r oay. It Is still *the Asseably’ sad nothing 

more. It reaslas s ooastltuent brsach of the 

Leg1.lsture. It Is not trsamfoxmed Into safthlng 

other or dl??ereat then sa Integral psrt of the 

Iaglslature; a bruxoh of; 01u o? Its houras~ eaamed, if you plea se, vlth the qussl judlolsl paver 

of lmpe&ohment, but still sotlag Prrely vlthla the 

orbit vhloh the Conrtltutlon has 888igWd to it, 88 s 

psrt of th8 IagIslsture, end governed by the llritstIoas tipowe upon the bgi8lsture. . . . 

“Ilovhere in the State Constitution Is the body 

which ve kaow 88 ‘the Asseablyf referred to b T l w 

o ther ohsrsoterlrstlon thsn 88 8the AS8Smbl7. . . . 
: ’ 

Bonormble Oaorge H. stmppua, pgm s, 

mowhere in mrtiolo 6 of the aoaatitution (the tipmeobmnt prorl8lonr -- oura) vhlah aoarmrm muoh 

l lleged jud10lel paver, nor In 

of the ConStltutlon, IS there to Te 

other ertic1e 

r o w4 l uo r d 

or l 8llIable permitti~ttb Woreaoo tbavhea 

thm Ammerbl.~ acts em en ecaumlw beaT, It IS abrolvod fra 0brafew0 to the berutlalent iiritatIOa8 8~3 reSt?elats of the COnmtltutlon, which 

l peOlflorll~ l P4 la ale* end ammbigoou8 l8~uag8 

r 0r 0r to ti a d w1 0 A88di~, 1 . . . l 

Icr the l b0to (kctlon 12 of lrtlak 4, the Corhmtitutlon olaul~ o a ntemp letheto m lt ppo lmtwa are tm ~co8mu~ 

vhllo the Ia 

pointmom m r 

l letmre Is not in w8mlo~. It pO~iCb8 iOr l Q1al.J hold- th4.r re#peotire orflems until thr 

nmxt.me88lotl or next l leotion, en4 there IS no tl.88 liritietion 8xpre8w6. It 18 eBphe*188u that uaau this po*l8loll 

thm lmgimleture oould djoora vlthout hnlag aonfir8ed en eppoint88 ud the Ooveraor oould laadIate1.f after l ljournmmnt 

l ppoilit “mm8 other perron’ rho uould hold oftloe %atll the 

twxt u881 0& l bumh ui 8ppolatee’m eat8 we 88 velld end 

blndlng on the 8tete before aonflrmetlon l o they ere thereefter. 

:Thm roregalagoou8ldered, itrumtbe oonaludedthet 

ea r lepuete 8ad 0pe0leluetlllgof the 8enetormIm note 

velid me8Oloo of the Texem Stete &lute under the prorlmlo~m 

-of the 0onstltatlon and every attempted 0rfi6sd rat of tha 

Smnetor8 thu8 amwaled I8 a aulllt7. It is not wathorlted 

by Artlale 4, 8eatioa 121 it ocatravewm ktl0l.e 3, Seatlon 

51 end It 18 repugaeat to Article 3, &otloam 17 aad 40, aad 

&tlc& 5, Ikation 8, end there ue other propomitioar supporti- l wh 8 aonclwlon. m •~L~~~;~~~ Eta. 

Zhamtm to ooavetim itself aould bob 

pouerm OS the Sxeautive Department- in tlolatloa oi Artlo& 2, 

aect10o 1. Xven if a 81~ die ad ourameat 

(rhiah IS boubtiul), It k oertal Ri 

rfbe qumllflmd 

J aat pommible for oak one 

Eoam~ to quallry It l rter ,lt 18 pemmed by both of them. 

FiiiWar, It Is aootrary to the pmctloe aad eaqulemceac8 of 

the hgiml&are fa r l lwmt onm hundred mrrn* 

It la tha oplnlon of this oifiae, thenfore, that 

(1) the Comptroller Is required to lmmue a rurwtto pY tlm 
ATTo- GEm-tAL 03 ms 

_ - .___.-_-. .-‘-a -, .~ -. ._.__ _-.,.. .- ,.,._. _ ,-___ ,_I__. _._..... -- .._- -, . . ..--. - -~.-. _..I. I__ .-