‘:MMAllOX ttornryGeneral

Iprm Cowl Bulldlna I-.0. Box125a AUUl%T% m11.2545

‘2l4?52501 lles s1cfs7413s7 :.l.wplw 5lU475-0255

4Jukwn. Sull4700 UalllS, lx. 752a24505 214fl42dou

4524Alberm Ave..SIN. Is0 ElP440,lx. 7wo52792 15f53534w

la01 1*x**, SIllI* 700 ourton. TX.77002.3111 13l225ww

3sBroww~y. SUIN312 umock. l-x. rB4a.3479 w&747.5235

3WN.1011thSulb B ucAll4n. lx. 7Bw~le.s 5lm524547 

# TheAttorney General ofTexas

Dl:c:embcr21. 1984



### nr. ~0-n a; winfrlqr Director andLibrarAm “Opinion Ro. a-256 Texas State Library 6Archivea ” lte: Auihotity **of** the **Texas Comirrion**  State Library and Archives **P.** 0. Box 12927 i Msrion **to**tramfcr federal Austin. Texar 707:.1. funds to other atate agcnejes **for** library remices Deer Hr. Winfrey: Youask whether the Teuo State Library Comisrioo has authority under article 5435,V.T.C.S., to grant federal funds to state cleemosyrury lnstitutiom to use in developing library services for their residents.

. .; Yourfirst querrtion is *s follow:

Is it legal **for the**  Library. end Archive8 Comissiou to make lcash grant fromfedersl funds to enother ltete board or ‘comissfon to inprove library ‘wwices for resident. of that **state** in~titutitnl? i ?. -.>’
. _.i-.,‘~_Z .,.:7. *. Thecomissjon lus **for** uny **years purebased**  **library** uterials for state inetitutionr **fron** federal funds. % V.T.C.S. art. 5436. It ha0not madecash **grants** in the past nndwishes to knovvhether it has such authority under: section 1**of** article 5435, V.T.C.S.

._ (: . . Younext wk vhether such grents vould be subject to the **condl ”**  **.tionr and**  l$mit~tiom **of** an **lnterasency coopera**  tion coutract as provided for in the Interagency Cooperstiou Act, article 4413(32), or vh+ther the COIID~SS~OII

may enter into grant agreement8 vlth other sgencies under article 5435 under its ova authority and vithout approval of the **State** Purehasiql and Cenersl Services Cmrsioa. Contracts entered into under the Interagency Cooperation **Act** are subject **to** spproval by the State purchasing and Genersl Servicer Cotmiesion. V.T.C, !1. art. 441302). i5. If the co~ission has 

### l uthority to make such grant8 under article 5635, V.T.C.S.. you vlshHr. Dorm6nR.Yinfrey - Psgo :I (J?k256)

to knowvhether its dircretioll to **formulate** grant **contract term**  vould be limlted by **the**requirementm of the Interagency Cooperation **Act.** Youfinally **ask:** Wouldsuch a **federnl** grant or interagenry contract to 6nother agency be prohibited by nrticle V. section 58of the 1984-1985 Cenerel Approprlationr Act, Senate Bill No. 179. Sixty-eighth Legis16ture. Regular Session. 1983, unless 

## l pecific6lly 6uthorized in the Approprietioor Act? Sections 2through 5of article 5435. V.T.C.S. cset. **out** various pavers **of** the ,~0118s1on, such as **certlfylni** county librarians. appointing a director and state librarian as vell as other personnel for the State Library and**Archives**, and developing personnel policies and procedures. **Section** 1 of article 5435, V.T.C.S., provides 6s follov6: The Cotiselon 6h611 be responsible for the

adoption of all po:.fleiee, rules 6ndregulationa so

. a6 to ald and encourage the development **of** and

cooper8tioo nmong: all types of lfbreriee, including **but** not limited **to** publlc. ecndeoic. special, and other types of libraries. collect materialr releting to the history **of**Texas and the adjoining 6tate6. preserve. classify and publish the unuscript archives and such other utters as it my deemproper. diffuse luwuledge in **regerd** to the history of Twas, encourage historical **vork** and research. url: historic sites 6nd houses and **secure** their preewvation, and aid those uho are studying the problems to be de6lt **vith by**  legisletlon. &dminietrative 

## l

gencler have only **those** powers 

## l xpreealy granted by statute or necessarily inplied from express powers. Stauffer Q. City **of** San Antonio, 344 !j.W.Zd 158 (Tex. 1961). **Article** 5435, **V.T.C.S.,** does not 

## l rprees:ly authorise the cmi8sion to **mnke**cash grants **to other**  

## etnte l genc!ee for library purposes. Ue do **not** believe this pover is necec:sarlly implied **from**article 5435, section 1. Prior opinion6 of this **clffice** have required express authorization **for** state agencies **to** institute cash grant programs. Sea Attorney General Opinions N-532 (191G!) (Agricultural Extension SeGe may**not** makegrants for reforestation); H-1272 (1978) (Hobile HomePcrfonnanca Certification Board maynof, makegrants for consumer educetion); cf. R-120 (1973) (express statwory authority neceeenry **to** receive fade= grants). The legl6lature has in feet 

## l xpraeely suthorlzed 6omestate agencies to make cash grants to other l ntitiee. See. e.g., V.T.C.S.

p. 1140?
**Mr. Dorun**  **Il. Winfrey**  **- Page** **3** (~~-256)

**art.** 46d-12 (Texas Aeroneutjco Conm~ission); V.T.C.S. err. 4413(201), 14 (Texar Department of Cotmmity Affairs). Seealso Attorney Cenerol Opinions W-423 (1982); H-XL6 (1974); a-l-0; C-673 (1966) (construing statures that upreaely authorize stare **agencies to**  oake granrs). Theconeritution vests :in**the**legislature authority to **direct** how public funds shall be used and ro allocare themamongefate agencies. Tex. Consr. art. III. 135, !i44; art. VIII, 16. SeeAttorney General Opinion H-207 (1974); Letter Advisory lo. 2 (1973) (legislation authorizing governor Lorraaefer funds betveen appropriaLlon items is unconstirutional). The legislature exercises this **paver** by enacting general laws defining the aglcncy ’s powers and duties endbyapproprieting funds to the agency to carry out Its Legislative mandate. The General Appropriations Act lo recent years has included a provision appropriating federal funds to the agencies which receive them. See Acts 1983, **68th**Leg., ch. lC95, art. V. 120. at 6216; Acts 1955, 54th kg.. ch. 519, l

rf. VI, 124, at 1593; Attorney Caner.1 Opinion M-266 (1968). Appropriations not expended or obligated by rhe end of the sppropriation ~perlod lapse .old return to the treasury. Tex, Const

. art. VIII. 56; Attorney Gener.11Opinions O-5266 (1943); O-2941 (1940). Whenthe legislature a~~l:horizee an agency to grant appropriated funds to other state agencj,?:;, It has delegated avey comeof its ovn authority to allocate public funds among state agencies. Wecannot conclude that the legislature intended broad, general language such as that found in article 5435, section 1, to Include power rogrant funds to ocher agencies. The lq~ielature has expressly authorized some agencies, including the State Library Comiseion. romakegrants under statutory guidellnee. SeeV.T.C.S. arts. 5436. 5436e; 5446.. Federal .?rant programs are basrotl express euthorisacion by Congress. See Uaeon, Hi~hlighte. in Fede::al -Grant Lav, l-2 04. l&son -cd. 198x -- Madden, The Conetitucional 2nd Legal Foundations of Pederel Grants. & 10-11; Mason. Grant Rule Making. id. 45. Suchstatutes vould be eurplusage if states and ‘iiederal agencies could establish grant programs in reliance onimplied powers. The Texas courts have not decided whether a state agency must have express statutory authority to make cash grants to other agencies. We cannot, horwver, reasonably adopt a doctrine of Htatutory construction vhich would automaticallv give agencies such paver unless the legislatwr6: expressly denied it. In our opinion, legislative silence on the riubject of cash grants to **other** agencies signifies legislative intent to withhold power EOmakegrants. The State Library and Archives Coaunission iacks authoritv to make cash grants to other state agencies under .secrion I of article 5435. V.T.C.S. Eecause the commission Idcks .lrlchority CPmake a S~dal~grant from federal lends to a stnte iwcitution to improve itbrarv services ior its residents, we need nnt address vour second ?rd third questinns**hr. Uormar:** **Il. Winfray**  **- I** **’ tyu** **0** (J&256)

**which** concern whether **utbcr** ~wn ’lsioor of law vould apply **to** such **trannactions.** If the **lcglol~~ture vinhee**  **to** l **uthorjze the**  **cocaieeion** to make such Srsnts, problms rained by these provisiuns ten be resolved in the legislative **procero.** See **Attorney** Cenerel **Opinions** R-170 (1973); H-601 (1970); W-1120 (t961) (alternative **murce~ of**  **euthor1t.y for**  perticular intcr.mRency contracts).

Article 5435. **V,T.C.S.,** doea **not** authorize the Texas State Libraty **end Archives**  **Comiesion to**  transfer federal funds to state 

### l leemosyarry institutions for library services.

_ -

JIM l4ATTOX **Attorney Ctnerd**  of T~XJS **ToI+ GREEN**  **Hrst Assistant**  **Attorney Cemral** 
**DAVID R.**  **RICHARDS Executive**  **Assistant Attorney**  General RILXGILPIN Chairman. Opinion Comlttee Prepared bySusan L. **Garrlsou** Asulstant **Attorney** General APPuovNo: OPINIONCOl4HlTTEE Rick Cilpin. Chairman Colin **Carl** Susan Gsrriam TonyCuillory JfmNoellinger Jennifer Riggs Nancy Sutton

p. 1142