338 

OFFICE OF THE ATTORNEY GENERAL OF TEXAS 

AUSTIN 

Ednoreble Bhelburne FI. Olotsr 

Oounty Attornoy 

Marion Ooqaty 

Jefferson, Teres 

Daar SIrI 

TOUS oommunl 

a legal'opinion rmm t 

1137i of tin F'enal Ood 

44th Leglrlat 

ek?!, 1940, requesta 

ioh war eneoted by the 

grorfdss as r0li0w;llt 

aption ot title oi this Aot, whloh I8 Chapter 

86 oPthe @moral and &moial Lawr of tha 44th Legi8latura 

( p. eO7) ( 1996) ,roada: 

“An Aot providing that it shall be unlawful 

for any por80n, firm or oorporatlon to 8011 or to 

ortar r0r 8a10, within tha stats of Tmca8, any good8 

wer88 and/ok nsrohandiro, manufactured out of the 

State or Texed, wholly or 'in part, by oontlots or 

pri8OJlOr8 ill PSllEil end/or rdOIVUXtOq ill8titUtiOM 
. . ^ 

339 

Honor'ablo ahlburne H. Olovor, Faer 8 

.X88pt OOllViOt8 OP Qp18bn8p8 Oa mPOl8 OP QPObation, providing 8XMptiOn8, end protiding penalti881 end d8OhPill& 8II GilOPgIllO~." (hapha OUP8.) 

888tiOll 'a, .tp8 l m*Pg8llbr OhU8a, 8t8tr8: 

"The hot that prlron Mdr good8, WPPM, and/or 

r8POhZidiSe maaufaotured out of th8 State OS T8xa8, 

are now being orforrd for 88lo~wlthln the State oi 

Taxa and that ther8 18 no law to prohibit their 

8alr oroatas &n l mmgenoy'rnd an lmperatiro pub110 

llOOO88it~ that th8 CoMtitUtiOZIal Rulr requiring that 

bfll8 br raad on thrre 8rraral day8 1n eeoh Hour8 br 

8U8pallded and that thlr Aot take erieat and b8 in 

fOPO8 rPO#I and artaP it8 p(LIIIa@, and it i8 80 Onaotbd.” 

An examination of the oaption end the body of this 

Aot in the light of Seotion 38, Art1018 III, of the Con<ution of *8xa8, Omp618 U8 t0 ths OOnO&tl8iOn that this hW 18 

Invalid, wherefore, an opinion oon5tPuing it8 provi8lon8 would 

88PVe II0 U8eiti pUP~O8.. 

saotion 38, Artlol~JII,oi the Conrtitution or 

'fox88 pPOVld.8: 

'No bill . . . 8b8li OOntahI more than one rub18Ot, whioh shell b8 8rpnssed ln it8 t1tl4. But ii 

any eubjoot rhall bm embraoed in an Aot, whioh rb811 

not br 8XpP8888d in the title, ruoh Aot 8hall bo raid 

Only 88 t0 80 muoh th.POOi a8 8ha11 not bo 80 8f~c)ll.d.’ 

Th8 &NlPposO Oi this OOn8ti8UtfOM~ PqUiP8BXint W88’ 

08~1~ rooognissd and daooribmd by ths Supreme Oourt of T8xa8, 

8Jb88kiw ahPOU& e. rU8tiO8 Chin88 iXl th8 -80 Of Ad8mr k 

WlOk*8 1. water oompany, 86 'pox. 486, as 8. w. 605, Wh8P8llh it 

w68 raid: 

“The inquiry 18 not what tha Leg18latuP8 intrndrd to embraom in the tltlr, but what, by the tom8 

employed, it bid ln faot mbraoe. 

“The pup088 of tha oon8t1tut1onal P8quiPeEont 

ir to glre notioe thro h the tit10 of th8 bill+Mt 

Otis to Umber8 of the Ya glrlature, but to the oiti- 
Honorable ShOlbruna lf. f31Ot8F, E&g* 3 

SO08 at laPg8, Of the 8PbjOOt-Ia8ttar of th. 9?0- 

j8Ot8d l&W, and thercbbr t0 pTrV8nt th8 8UPf@itiOU8 

p8M&8 Of 8 1aV UROll On8 8UbjeOt Und4P the @l18e 

of a title whloh 8rJu.88898 another . , ,* 

Xn ward bbttl8 81 FartuPr Co. ‘I. CePpsnt8P, a00 8. R. 

5f?1, th8 Bu&Il'8art, Court again dsolrrrd, 

"The JRUpO8. Of th8 OOn8titutiOnel pZ'Ori&U4 

inh@rmOt t0 th8 title Ot l8JJitlatitO AOt8 18 V.11 

understood. Xt 18 that by mean8 of thr title the 

hgirlator may bo Pra8onably apprired ot th8 800 

of the bill 80 that 8urpri8e end fraud in T3-E .g 8 

tiOn Q&y bo ~OVOtlt4d." (hpha8i8 OtlP8). 

The Court ot Cri8.inalAppulr or Toxa8 ha8 announoed 

th 8aiW prinOipl88 in mEI7 Oa888 ilh3tretrd by D8 Siltia V. 

S&b, 289 8. VI. 542, end Rx part4 Haartrtill, 38 S. 19. (26) 

l . 

In the tlret m8ntionrd cam the oourt mid, through 

Judge YorPowl 

"One object of tha oon8tltutionel,pmtl8ion 

BOlbtiOMd 18 '80 taiPlr 8pLU18@ tb p80&'18, through 

8UOh pvblloetlon Ot li@8llhti+4 ~P00.061~8 a8 18 

mad., Of thr 8UbjOOt8 Of logir~tion th8t 

aon8idrnd, in order that they my heir8 

ty ot being keard f&soon, br petition or 

oth4Pti84, if they 8ha11. 80 dorir..’ Oool*;l* 8 Con8titUtiOMl Limitation8 (7th Ea.) pa go5 . . . 

wm oourta in oonrtpuing the prorl8lonr in 

oonneotion with i4gi8ktir4 aot8 hare throughout 

th8 hirtorp ot tbr rtatr, be8n librral'toward thr 

raIidlty 0r the Aot. Rotrithrtandint, thir praotlao, 

they rroognlzed that the protlrlon Of bho CQn8tltUtlon is nandatorp and that, when viewing th8 Aot fn 

the lkht of the libsrel pallay mentioned, it it oannot bo fairly iaid that the oeption ir not airl8a&- 

it@, the law or thr part of the law whiah 18 Tarlent 

from tha title of th8 Aat W8t &To way , . . .* 

Xn tha rroond oa80 mentioned, the oourt raid, through 

Judge Lattimores 
, , 

Bonorablr S!mlburne E. Olov~r, P8gr 4 

*All law8 Qarwd by th* I&8latuPe of thir 

Stat. OPi&$hkt. in billr, UpOQ @aOh Of aloh MU88 

appear a oaption or title, and motion Sb, Artiolo 

III, ot 01)s Oomtltutioa tOPbid that any bill, 

with oePtala~oxo~9tioa8 rhall oOakin more than 

OM rUbj.Ot, Vhiah 8hd be l gPrO88.6 ill it8 tith 

It haa b8ua hrld b 

r8rbiagr Ot 8uOh~t I 

the oourt that when the expr88$ 

tie lid88 alld ~88tPiOt8 tha plupO8e ot the bill, any attoRpt to legi8l8tr oth8Pui8a 

in 8Ubh bill, Tariallt iPar tha &NWp088 prO8OPib8d, 18 

in l xa.88 or the le~i8lativo povor, and that a law 

8UbbjOOt 80 thi8 OOEQhillt 18 UBOO~8titrrt~OlUI~.' 

A 8tUdf ot the Mptloa and bodr ot Sonato Bill 46t 

(Artialo 11s7i) roren~r that the Oaptioa OS tit10 dr8oriber 

the Aat a8 on0 making it unlawful to 8W vithin the State oi 

Taa8 any goodr, rarer, ador arrohandlmr aunuraoturod out 

ot tha State oi Toxar by aonviotr~ whoP8ar 8ootion 1 ot the 

Aot und8Ptakmr to Bakr 8UOh a 8alO Uakwfui it laanufeotUP~6 

by aonviot8 whothrr la or out of th8 State of Taa8. The axoeption appearing in mation l of th8 AOt d@NUOU8trate8 beyond 

f 

aredv8ntuPo that it apQliO8 to good8 manufaoturrd bg oonvlot8 

II TO-8, whioh i8 not aXIpO888d in the OtkptiOZl. 

Olaarl~, thenton, the provlrlonr la t&r body ot 

thr A08 as0 broador than there in the tltlo, 8nd the differ81100 18 OQ* Ot &PM8 rt8PialitJ. ObviOU8, to0 18 th8 t&Ot 

that the tit10 in it8 ~88tP1OtiO~ Ot the mhib~tioa to mod8 

raaufaoturrd b,~ oonriot8 out ol thr Stat8 ot Tsar, aa oonpred with the laok ot thir rr8~riotioa in the bo&y ot the 

bill, 18 0alOUbt.d 80 Bi8bad th8 ~.@:8htOP Of My OitiX8il 

intWm888d in 8Uoh lOgi8&tiOlr. Tb title or! aagtioa at the 

Aat do.8 not dir01080 OS inthUt0 that th. Mb Ot good8 BUAufaotuPr6 by OOEViOt8 in 'Ion& 18 to be udO Unlawful. 

Tha rulr applioablo to 8uOh a rituatioa 18 rtated 

a8 tOlbW8 ill suthorland On StatUtOP~ COn8tr\lOtiOl! (188 xd.), 

paragraph 67, p. 94: 

'The rubjeot ia an Aot aan ba no broadrr than 

thr rtataaent ot it in the title. -*- It 18 trqtirrd 

not only Mat. an Act rhall aontaln but 0110 rubjrot, 

but that that 8UbjOO8 bo l Xp Pe88in a the d title. 

The title, thU8 mad. a pat8 Of r&oh AOt, EU8t agr8@ 
342 

Iionorablo 8hrlburnv 8. blot8r, Age S 

with it by l xpr888ix14 it8 8uBjoati th8 tit18 vill 

fir bound8 to the pur~lew, for it oannot exorod the 

8fth-8Ubj8Ot nor be oontrary to it. An lot will 

not be 80 con8truoa a8 to oxtend it8 oparation beyond 

the prrporr ~:oxpP888ed in thr titlr. It 18 no t l no~&h 

that the Aot euitkaamr but a 8lnglr subjoot or objaot, 

aad that rll it8 -St8 as8 6U’#iaaO~ ‘&he tith 8U8t 

OXpPO8a that subjeat and OWQPrh.tAriVdy raough to 

InaUidr all the pror~riolu in the body ot tlw Aot. 

The unity and oom~rr ot the mbjrot must, thoseion 

agLi[;pe ooa816erd with rriuonoa to both title ad 

Thr tit18 aannot be 0nla~5ed By eon8tr\tObi~n’&~ 800 narrow to 00101 all tha pPWb%Oaa 

in the lndtlng part, nor oaa the p~trvlrw bm oontraoted 

by oonrtrootion to tit the fitlot but the title, ii not 

d,lUriVOly &8nual, may bo 8UtrfOf8Xt thowh BOF~ OXtenalto than the ~u~~law.~ 

Those prinOlpla8 era l XpPe888d fn Taxer JUPi8pPUdOnO0, 

Vol. JO’, p8ragr8ph 46, 47, pages 99, 100,101: 

“On tha othor hand, when the titlr 18 too n8PPow 

or PO8trfOtiVO to ooV'dr thr body of th8 Aot, th8 Aat 

18 ?oid, 8t 1888t 88 t0 any PRPt that ii3 llOt MbP808d 

in the 81810. . . , Whather a title 18 OOtRpPOh8n8iV~ 

OS P88triatOd, l XJWO88.d ia &WOE31 tern8 OS with MPtioularity, it mu88 bo in l greataeat and oonformlty and not 

at rarlrnor with the mbjrot Of th8 18gi818tiOU. In 

other WOPb8, the title 8ad th8 body ot th8 Aot aU8t doal 

with the 8am. subjeat-m8ttOP and manifest thr 8-e 18&rlatlra intent end purpose. , . . 

~Obviour~y a 8irloadinrJ title door not oolrply vlth 

the oonrtltutional re ulramant8, and the Aot oi vhioh it 

18 a p8Pt OS the pror 4 8iOM thmia with whiah it f# l t 

V(ViaaOo, 18 invalid oa the ground that it8 rubjrat 18 

not rxpnrred in thr titl8.' 

rho 0888 of gutherland 1. Board of %?Ult888, 261 8. 1. 

4889 (OrPeP P8fU88d) d8l0Oll8tP8888 the rba8Onillg Ot the OOUPt pagardla( a rimlead- tit101 

WTho tPua tart 80 bq applied in oa888 Of thfr 

OhUaOt~P i8t D0e8 tha ti 818 f&iPly giV8 IlOt;- 

by it8 rooitalr to all paPron OOOaePn8d, Of thr rubjaat+8ttU ot th8 Aot? It by it8 tit18 it aQpOU5 

to air808 only the re8idmntr 0r prtloularlv darlmatod 

looalltier, vhlle the PPOVi8iOIl8 in th8 body Of bh@ 
” ‘-’ 343 

Honorable Shelburno H. Glorer, Page 6 

bill affrot other localitis8 or territory, then the 

title is mialmding and unoonstitutional, insofar aa 

it arre0ta the urmmd plaoea . . . ,* 

It ir o>.paremt, also, that there can be no asgrrgation or atriking out o$ any proiiaion of Artiols 11371 whereby 

It may be upheld In part. Moreovar ware the body of the Act 

narrowed to make unlswrul the sale in Texas or goods mmracturad by. ocnv~ots out or Texae, in 00nr0dty with the caption, the Act so limited would be discriminatory legislation 

and violatloa Or the Constitution of the United States. whitridd i. State, s13 sup. ct. 532, 297 u. s. 431, 00 L. Ed. 770. 

Aooor4lngly you am advised that It is the opinion 

ot thin department that Artiole 11371 or the Penal Code of Texan 

1s unoonatltutional, whereupon a oonstruotfon or ite provlrlorie become unnecessary. 

Yours very truly 

ATTWNZY GEN-ERAL GF TEXAS 

ZCS I BBB 

VECSEP 9, $940 

*u 

ATTORNEY GENERAL OF TEXAS