## 161

**OFFICE OF**  **THE ATTORNEY**  **GENERAL OF**  **TEXAS AUSTIN**  **GROVER**

**SELLERS AT-rORHPI** 

**GLNCRAL**

**.**

***** **‘ :**  **Honorable n.**  **E. oak.8**  **county Attorney**  **Walker County** **” [~j-,m** 

**lfuntsville,** Tpxaa

Dear Mr. bates: OpinionRo."wY-"1~ O-7241

*AS County Attorney been requested by Dr. Joe

678, Ret RllgiI iLowpresent to Tou is re8lly 813 your statementthat 'Speoi81 atrtutboee **rhieh 8re**  **mtrttly gener**  **the spaOi81**  **PrOTisiOn Ot** 
over tbe~

goner81 eliglbiYit~ ot Artiole 1, seotion 1, **8nQ espeai8lly**  **8s** it rel8t8s to paragraph 4 Ot section 1.

'The Runtsrille Independent Bohoo'l blatriot.doe8 oonform to the countyunit sph3m~of transportation and it reoeiren ao otber tms of aid, either tuition

**or** sal8ry. **and it**  does oompriae three or more oonsolldated districts and it OO?Itains tittJ squ8re miles Or
**more ot**  **terrlt.orf,** and **it is**  **applying tor**  **transport8- I**  **1**.,. . 

## 162

Bonorable XI.E. lk8tes- pa& 2

tibn 8'id'onlron **8** transportation**bPdgct** wbioh shows a aeeQ therefor on tbe **b8dr** 8nQ **8t** the r8te provided in this **Aof- Wader**  these oircumnt8ncesr is the-Hantsvll1e IndepcnQent Sohool Distrlot ellgibje **td** reoeire such **tr8nspert8-** tion aid only, irrerpcotire ot my proridan Of 8cotiOu 1, with the apprOr81at the Direotcr of Equrl'itatiou **and** the Legisl8tircAOOountaut?'

**At** ihc **time** 

### your **request dame**  iu thi8 Department W8s oouJ&ring tbe propriety O? a re-ooncidcr8tionO? Opinion No. O-23678, toaohiug the question involved, and the result ot 

### our ooutercnoes i8 **the b8eis**  tor thir reply.

Tour question 0811s for 8 ooustruotionot 8mrte Dill No. 167, Chapter 361 of the **RcgUl8r Ses8ibn**  **ef the**  **48th Legislrture,**  particulrrl~Artioles I aad 

### V thereof.

S&otioa 1 of **Artiole** 1 deils **with the**  general subjcot of Eligibility tor AiQr **8nd is**  **8~** folloTsr

l Sohol88tio

Popul+tion of theDietriot. State 8id uuder the prcVicionc o? thisAat **C?b811**be Qirtributed in such **8 MJ**  **8s t0**  **8S si8t**  **8'11 sOhO0~**  districts *hioh h81e **not** terer th8a treaty (20) nor more th8a twelTehundred fittr (1260) o rigin8l **exnmer8ted** l

**OhOl8stioc** within the **gr8de8** olrrsificd to **be** taagbt

### remaining **in** 

### the dletriot riter **transier8** out, **8ad** aomcliQ8ted **aaa/or** rIar81 **high cOhoo~**  dlo**triotr** 

### whlsbharem **8VCr8gC** Of act more thaa two htmdred (200) **sohol88tiOe O?**  **C8Cb Or:&81**  dietriot **aoapccing** the oontelid8ted. **8Qa/Or ..~** 

**.** 

### rumI high sohool dietriot unit; prorided th8t **the MXimur**  littiktiOn8 **88 t0**  l OhOl8Ct~Opopu18tiou **for** ellgibilit~ **herein** set forth **rb811 not**  8pply for 8ny tp Of 8id **t0 my**  school Qictriot rbioh ir nine (0)miles or more iu lcugtb or OCllt8ill8 fort*-ci@lt (48) squ8re' miles ot territory 

### ormore1proriQeQ there is not looated in suobdistriot 8n iuoorporrted oity or torn b8Tiag **8 PO** v"**18tiCn** Ot **POM** thaa thirty-eixhundred (3600 iuh8bitants, leoorQing to the Irst preoeding Feder81 Ccnsust provided further, tb8t themaximum limitations 8s to the sOhOl8stio pOpuL8tiou iOr eligibility, herein set forth, **shsll not**  **8ppfy to**  any sohool

## 163

Roaor8ble W. l!,ater - p8gC 3

QistriOtwhioh h8s forty-tits

### pcroeat (46$)or more 

### of itm we8 nuhmergcQ. DictriCtc lmintaining 8 **cohool** 8t **home** uld h8rinC:lcsr **than** 8n’ 8vCr8gC at one CWis4r8tCd l

ohol8stio per **square** ails 8rc cxeapt from said aiuinqm sOhol8stiorcquircmcnt 8nd **8rc** cli**giblc for**  8id **for i&y**  **one teaoher**  **un~css** 8 **gcogr8phi** 4al barrier ncoessit8te8 th4 opcrati0u o? two **8OhOOls** Sor the mme r8oe in s8id Qistriot, suoh geogr8phio81 bwricr to **be** determined by the 8trti Depsrtaent at EQnaaficn 8rQ **eubjcot** to **the** 8pprov81 **ot the**  Legisl8- tire Aoocuuteat. If they aan sbor lmdgetary

### need **therotor,** 811 **other** distriOt8hC7ing **less** than naid minimum 8Ohol8stiO rcquiremcnt shrll **be** eligible 

### for onlr tuition aad transport8tioaaid to 

### thenerrest 80- oredited 6OhOOl Oa cnnmer8ted sObOl8stiO8**who80** grades 8rc **not** tbught in **8uOh** distriot.

*All **8OhOOl** distriots in this staterbioh hire rcocired trrrncportrtiou8iQ.Only on 8 transportatioubudget, during **the** bicnniuntending 'August31, 1946, **not** withstanding 8nr of **the** prOTisiOns **of any**  **preoeding or**  6Ub6CqUCutproricion of thisAot, **shhall** be rnthorirred to reoei?e **the** s8me type ot 8iQ whioh It tormerly rcoeirod to the ertant Oi ho Dollir8 (M.00) **per** month per pupil on 5"

pi18 COtU81ly trausportedrho **Ii?6 two**  8fid **one-hrlt** 2 1/S? nil08 ormore from **the** school to .rhiohthey 8rc trrnsported~ pMIlded it 48n show transportationbuQget8ry need tbcrcfor.

*Provided **th8t** sohooldistriOt8 in ooWIttO8 h8ving 8 SOhOl8StiOpOpul8tiOn 

### l quiV8lCut t0 one-h8lt Ot olIC pupil **per** squrrcmile **or** 1686 in 

### the CCtirO CCtXuty m8y be exempt **trOm the**  87Cr8g4 daily 8ttCudanOC **rCquiremCat** 8nd the te8oher?pupil quOt8 FCqUircmCnt of this Abt, i?...~ It is so reoommcndeQ by the State **Supcrlntendeat of**  **Pub** 110 Instruotion 8nd **8pprorcd bl**  **the LC~C~8tivC**  **Aooouat** 8tlt, iOr the pclrlMMCOf m8int8ining 8 hi@ sohO .O?sir**teen** 8ffili8t4d units, with SCVCn te8Oh4r8Jbut in **no** instanoe **may the**  **oost tC**  **tbC CqU81.iC8tiO~**  fund **uoced Twenty-fire**  Dollars ($26.00)per pupil in **suoh** distrlot.

*Do cohool distriot 8ill be c1igible ior **any** type ot aid, uoept **tuition** 8idr under **the** pro~idons at this Act, sbioh pays 8ny sal8ry 8bOtC **tho~.speOifiCd** in this Aot trom **8ay state,**  **10081)** or. Fed&al :funds **WhatsOeTer**

.**croept** Federal tunds, .useQ5 tc.sapplemcate8l8ricsat **Vo** cations1Agioulturer Boa14 Eo~nomio~~

and Trade and Indus- \ **tries tcaohers,**  **and funds**  **irom** the Feder81 **b8nh8m** Aot.

## 164

UouOr8blO Y. 8. G8tcs - page **4**

l Pm+ided **th8t the**  **sal8rics ot**  **rthlctio** direotors, band

dir4OtOr8 Or lunch room rupcnisors mry be supplcmuteQr **tron!** fund8 derived tram souroes~ **other th8n**  taxes4 ritbout making **the school**  iucligi**blc under**  **tbic &IOtiqnJ**  **8nd** provided **further, thrt**  tC8OhCrSwho **81~0 sCt** **’ V8**  **SS bus**  drivers, butrbo POP form n0 8dministr8tiTCduties, III8Y **be** paid au rddltlonil **saJ8rT** 88 bus drivers **Out Of**  **an7** f'unds Ot **the** Qlstriot t**erired** from **8 10081**  **m8intensnoe tax**  **in cx**  00~s at t 6 10081m8lntenanoe tar Ot ?itt Oeintr (aOf) on **the Chw** Hundred Dollars (@CO.00 T talnation rcquircd tobe levied **br** Scotion 2 Of Artiolc I hareo?; proridcd tarther, that the rdditionrl 88lrrypaid **for** servingas bU8 driver sh8ll OCntorm to **the** salaiy’ co8lcpaid otherbns **drivers** ot the distriot, 8nd am itemised list Ot **811** cuoh sUpplCnCnt8 **Sh811 he**  turnishcd the 7t8teDcF4rtucnt Of 8duOPtiOh and **the** Legis18tircAooount8ntwith **the general**  budget **Of the**  distriot*'

Arti8lc **V,** dealing with the spc~itlo cubjeotot **Trme** portatioa A,id,is 8~ tollousr

.The CoUnty Supcrintcudentand County Sohool Bo8rQs.Of tbc 8OV4r81 OOUntiC8 Of this State **nub** jeat to the rpproral of **the** State Snpcrlntendcnt of PubYiO.InstraOfionS 8re hereby 8uthorired to an**ny8llT S4t**  **Up the**  R!OSt**COOliOlEiO81** SJStCu Ot tX’8nr portatiou **pOS8iblO for**  **the purpOs0**  **Ot transporting**  **”** both **grade and**  high sOhO pupils **from** theirdirtriotc, l

aQ within their distriots~ The oo~nty sh8ll.bC **mgar#ed** 8s the unit 8nd **the** wrrrant **made pry8bl4**  tC.thc~

COUutJ Board %ranSport8ticnPund, on **the** tot81 tmnspartation **errnird Within**  **the.cotmtq not**  **to** cxcccd the tot81 **8pProtcd** cost tbcrcotl**8nd** the countyEoard,Of EdUO8tion sh811 distributethe 

### fundscquit8bl~to **the** dietriots opcratin(! l uob tr8n8pOrt8tioXl

@CtCSlnot t0 SSOCCQ **the** aOtU818pproved ocst Of 8ny one (1)bus 80 oper8ted. The expenses ot 

### nuohtranSpOrtrtio0 **shall** be paidon thc.b88isot **bodgOt8rJ need**  **88** indioated **br 8p**  proved Bt8te

### Aid

l pplio8tionl out ot the fuods herein 81iCOatcdand 8pprOpri8tCd tor transportation aid, **not** to cxoeed Thhwc Dollars (kl*OO)per month per pupil tor high cohool pu ils and Two **Dol 18rs**  and Scrcnty-five**Cents (@.76**  P per monthper pupil for elementary sohool pupils for those attending themost oontcnlcntaocreQiteQ school fprovided

## :' 165

BonOr8ble If.E* Geten - Page 2

**that** it there **be** no ooarcnientaoorediteQ sohool that mob pupil may **obtain** like 8id under **the** pro**rlsions** ot this Art1816 **when** 8ttcnding 8ny **near** sohool of higher 8lassifiO8tion **thri** the sending distriOtt **when design8$Cd**  by **the** County Board on thebasis **of Three**  Dollars **($3.00) per**  **month per**  pupil.tor high schoolpupils l d Two Doll8is and 8cTcnty-tiTc gents ($2.76)per month per pupil tor

oboe1 pupil8rho reside tT0 Md onesilCs ormore tram the **ne8rest eohaol**  fu such distriotf proTided further, that 811 sohool distriofs oontainlng on4 hundred (100) squaremiles of territory **or more**  **or mhieh**  **h8Te** 1eSS **than one**  (1) **enumer8ted** sOhOl88tiOPCr **SqUarC** mile **may rc**  oeiT4 **Three** Doll8rs and l%mtpfive Cents ($3.28) **per** month per pupil; proTided **turther, th8t**  **811** oounties h8Ting less than thraS.'(S) ~UuiCr8t4d sobolact~osper **SqU8rC** nils ln the entire oounty nhal3 rcociT8 Three hllars 8nd **Piit &mts**  **(&-no)** per month per pupil an transportation 8id **when** there is a **need shorn**  theretor 8S provided herein.

~TInno **ln8tanOc** m87 8id be gr8nted tar pupils **transportqd** uho 8ttend 8 gr8de in another s4hoo1, which grade is taught in suoh pupil's home district. No transporkfian 8iQ shallbe granted tor a pupil **being** tr8ncportcd out of his home 8OhOOl Qistriot if two or **more** reoeiring sohools 8rc 8pplying ior transport8tion aid from suoh pupil's **home Qistriot**  unless the bU8 routes through suoh dlstriot h8T6 been rpproted bp the 2t8tc **Dc~rtmcnt** of gduoaticu 8nd ooniirmcd b7 **the** LCgi8~8tiTCAooouatant. Aid **8h811** not be grantedunder 8x17proTicions ot thic.~ Artiole un1686 **the** pupil H) transported 84tu8llp .~. reside8 WCC **thaa k0**  8nd **one-h8lf (8**  **l/2) milC8**  

### trcm the sohcol 8ttcnded and 18 transported in 8n 8pproTed **bus** OTCC 911**8pprOTOd** rOUt4. ProriQed that **the** Count7 2upcrintendcntc shall ~008te 8 point on **CrOh btr8**  rout0 ts0 and One-h8.lt(2 1/2) miles f’ rOl6 the re4ciTing **sOhoo1,** 8nQ 8ftCr suoh **point** is CP tablisbed hc chhrll p4rsoncl17Qctwmine **thethcr the**  **8OhOOl 16**  **rCqUCsting transportation**  aid OU 11 residingwithin the fro and **one-h8lt (2**  limit. **No tr8nsportatiOn**  8id nh811 be-8llorcd on'

v"pile firing within the 88id two **8nd** one-hilf 2 l/2)mile liavit



## l adn~~'distriot rcqucsf3nR aid
ou such pupil shallbeoome incliglbl4 for **tranapor t8tion**  aid on **eeoh** bus transporting suchpupils;

## 166

Bonorablo Y. f3:Gates - page 6

provided bowever, all sohooldiatri eta oonforming to County IhIt Qatsm of Transport8tion and reoeitingno other type at aid, eftbor tuition oc aslary,and oopprieing three **or** more oonaolidated diatriota oontrin~ag **fi?tJ** (6C) squareEilOa 

### or more of territory,‘ may 

### reoeiretransportationaid only on a transportationbudget ahorlngneed therefor onc

the baaie and 8t the ra to provided in this Aat. f ‘County Boards of Trueteea are hereby authorired fo employ bus drivers for one yew, annbthe aalery oi no baa drivermay **be** paid out of the County Board Traneportatlon **Fund** areafed **herein** mleas suah bus 

### driverle so emplaTed* Proridbd further, that enlr pupils or personadlreatty oow aeeted ritb the **uohool** ayeternshallbe transported
en eohoolbuaev while in the prooeas of tranaporfiagpupile to end Srcimthe aahool,and any bua driver violating the foregoing protidona shall forfeit hia coatraot sad shall **be** immediatol~ diachargedby the County Board of Truateea~ Horeverr -bleat to the provi~ionaberein* bus drivers rho
own their own busee, 8nd **are** eo employed,mw **be** @iron a boatrabt for not to eroeed two (2)yesrar oondltioned that saidbus dritbra agree t.0 make inprovemeats on theirbu.aeabao as tomore adeqmfoly lneure ufor transportationfor **the** aoholaatiaa, and the routa 6t euoh bus is not ahanged for tho sooOnd year of .thoaontmof~

The arux at your inquiry is rhether or net thors fs a ao&llat between Beetion1 end Artidle V of thebet 9th reapeot ~m;h;,tem at transportationaid, and if 80~ rbioh pro~ieion

. The task, tbereiore, beaomea one purely of atetutory oonatmbtioa.

The Intentionof tbe Leg%alaturer as dlacOte~d from thoAat, is the one untailin~ TWlb tor construing any sktd.orf' sat* **That** Intention **is** tobe gathered from the four Ooruera of the instrument as 

### a whole, when **read** in 

### tho light of the purpoab
as aontalned in the **titlb,** and in the light of eaah and over? part o? the Abt oonaiderodoolleotirbl~ and •eparatbl~rOonatrulng tho parts, **where** possible, $a aala8-ray tbat eaoh sad every part may stand aa +aliU, and thatno part thereof 88~ be **afrlakeu** Out or Ignored.

## 167'

Honorable **I(. HO**  **Oat08 -**  **page 7** 

When thisAct is thus OOnaideredrue reaah the aonolusion **there** is no oontliat between itr parta, and that all parts may atand and be given a moaning consistentwith all the other parts.

.

S~eelfioall;~we think there lm no oonflidtbetween tbe abovequoted portions,but on the OontrarJr Seefion 1 o? Artiele I oonatitutes the enacting olauae **oorerlng** the **whole** m&feat of **aid, and**  Artiole T deals with **the apealiio**  aubjeot of transportationaid.

**Lt** Is a raamiar rulo of OOnatruCtiOn oi a ltatuto **that the**  **oifloa dr**  **funotioa of**  **a** proviao~ exoeption,or **saving** olau~~e

16 to **take** out **of** tbe general **bnaoting** olanae **something that**  **okherriae** would bo inoluded therein. **It is**  **not** required **that tbb**  @xaeption, proviso 

### or saving olauae **be** in the same aeotion, artlalo or part of **the Aot**  -- its mochanloal ***lace in**  the oonatruotion **bein~g** of.no controlling im~rtanae. Sutherland
on Statut'ory

Conatruotlon thus epitoniaea the genera3rules, se tollorsr

.'It**is the**  tifficeof the proviso to restrict the 'moral operation of **the enaoting**  **part ‘** **of the**  **iot f2eo;**  **4932)** ***** ***** ***.** Although originally the **proriao** was **to** remtrlcf only **the aeation**  **to** ahloh **It was**  attached, the modem rule 8ppliba the proviso to all aeotiona of the aat, if it oan be determined **that** was the legialatire **intention.** Althouih **thb ions**  and the leaation of the provisomay be some indication of tbe legisl8tiro intent, fOrI alone will not oontrol. **No preawnption**  **ahould** arise **frost the**  **mere** locatiom OS **the proriao**  **that it**  **is** applloable only to the sootion in rhiah it appearwor .~. **to** preoeding l

eofiona. (800. 4931) l l l* Protlaoa and exoeptiwa both operate **to** rbstrfot thb generalit7 of leglalatlre language. Xormally 8 prorieoooours within **the** body of **the aeofim,**  **while an**  **ax** aeptlon is drafted **aa** an indiridual seation.

*The older rule atriotly Interpreted both oxeeptions and provisos. Today exaeptiona and to some extent proriaoa are interpretedprinaipallJ in TieT of the leglalatti~eintent and no presumption arises boomute **of the**  **form of**  **the** Act **that the**  **interpreta tion**  **muat** be **atriot.** Generally an exoeptioa is **oon** sidered am a llmitatlon only upon the aaitter ahioh preaedes jt,but if It Is alear from the Yegialati~e intent t%at it 1s considered a peneral limitaticx~ Cm

## 168

Xonorable II.2. Gates - Page 6

the entire sot it will operate to restriot all pro- ~idone or the **sat*****’ (Sea.**  **4938)**

Thle rule of aonatraation la akin to, If not identioal with **ths** further rule.(hat’an sot dealing with a apeoifio mbjeot rill control another sot dealing with **a** general subject that would otherrisb lnolude the 

### l **peoiti0 one.**  ipplfing theeb well-reoognlted rufaa oi **WlImtNOtiOtI~** we fiad that Seation 1 at **ArtiOlb** I deals with **the** general aubjeot of ellglbllity for aid. Thfa wouldb of @oursed inalude transportation 

### l idb should that meatton atand alone in the statute. It makes oertain apeoiflerequirements 

### invery strongand mpbatio terma, **am** 8131 be readll~ seem from the moat oasua’l reading **thereof.**
ArticleV deal8 with thonarrowb apeciti0 w%Jeat Of franc

.portatiun aid. It 

### l **$eaka** with reapeef to transportationnot only to and from eohool a eligible iOr aid **wder** seation1, but **oontaina** more. It oorerb fully the 

### entire l ubjeot of transportation,among other things aaylngt

‘Provided **further that**  all **sohool** diatriata Oontainlng one hundred (100) u&are mller of territory
or maorob

or whioh hare less than one. enumerated sobolaatio per 

### aquaro nilo may reoelre throedollara and twenty-five oents ($2.26)per month 

### perpupil; provided further, that all 

### oounfiemhaving leas tban three (3) enumerated aoholaaticeper **aqaare tile~ln**  **the** entire oounty shall rbceire threedollars and fifty aents ($33r60) pormonth per ptipil **as** tranopor**ktion** aid when **tbero** is 

### a **need** shorn thbreforas providedherein*’

The obvious ‘Purpose,6s **thinkb of**  **the Legiilature**  tram**to** make prorlalon~ **as** it did In Arffalo Yb **for fransportatlon**  aid, ir**respeoti~re of**  **thb qUb#tiOn**  **O? general**  **Oli(Cibility iOr**  **aid, 88**  

### required in Seatioa 1 of Artiole 1.

Our Opjnlon Ilo.0-2367s mentioned by you, after **quoting** Seation 10 of theAotb 88 it **thea** existed, heldt



### l SpaoSa1 statutoryprovisions **control those**  **rhioh or0**  **merely general.**  In our opinionr the apeaial prori*lons of Seofion 10 relating **to tranaportatlan**  **aid,** and **with** reapeat to d%atriota larger than **one** hundred **aqclare** mllos, oontrol and must be giveneffeot. **H+oe,** if the Graham QSrtrlot aontaina more thanOnb hundred

## 169

Honorable X. IS.Oatem - page 9

squaremiles, **and** need for transportation**aid** la shorn, **it** amy reoeire 

### such l ldb If reoomended **by** the Direator of Equalirationand approvedby **the** joint legislative aclvisorf committee.*

lo **think** tbat~opinionannowoed a oorreat a~~olueion under sound priaoiplea of 

### l tatutor~ OonatNOtioa~ aad we here
nor t-e-attim itb **the** present statutes **belnle;** in all aubatantial reapeats the’same as those exlstlnp when that opinionwas written. Any and all subsequentopinions in oonfllotwith thin opinion are hereby **OTOrN~Od.**

It tollora, OS oouraeb that **any** diatriat entitled to transportation aid, under **the** terms of Artlole VI la entitled **thbrOt0,** whether suohdiatriot oomplles with any of the general requirements for eligibility,under geation 1 o? Artiole I or **not.**
Jdkeriee **any** dietriot that **oontorma** to the Comfy &It **System** of transportationr and reco2res no other type of old, either tuition or **aa ’** **lary, and**  **rhiah ootipriaea**  three or more in**do ’** **$endent** dietHater **and** contains **fifty (60)**  square**miles of**  **ter** ritory, and which la applying for transportationaid only on a tratiaporkflon budgetr and rhioh shows a need **therefor** On the basis and at **the rate**  prorlded torn In **the** dot, as does Iiunta+ille Independent Sohool DletrlOtb la entitled **to much** **transportation** aid.
**Very** truly yours

ATTORRET GENERAL 09 **TEXAS,/**



# &.L

**0020 f--**  **8p e**  **Asaista t**