**‘**

**. OFFICE**  **OF ‘** **PHE A?TORNEY**  **GENERAL OF**  **TEXAS AUcrIN** 

Boaorable Julian bZontgom.rj State Hi!I

hwa$Engineer **Auafin, “OXa** 

1940, Sor a supplemental opl eartin, Ina. Yourefer UQt ton on this olalm, which or1 questionl

h **W,**B. Pope, Aaefstant 6 above request adrlsed the Hon. lnear, that the Stats of Texas

**1937,** the shove opinion was reoonsiderfiid hoEonorabld W.B, Pope, and he again

ua that you have oonsidorable data **and in**  formation in your files relative to this claim, but in view of the raot that we cannot detonnlne quostions of faot wowill not be oonoerned in this opinion with that Information andwill ~oonfine this opinion to the iaots ea set out in the original request and the tinding of the Board ot Arbltratlonr8011. JUliaIt ~Ollt~Ollhy, &‘fl&O 8

Tho~usstloa to be dsternlncd 4s whathar **tho** Stnto of T:oxne1s liable for the ootli of fto aeento vrt:onactlnC outaide
the eoope of thalr outhorlty, such autb@rity bQ,ingconferred elthor by law or by acntreot: Thora it ncthlnc in the etntutoe that t&o fort& tho powero aridduties eEte.i?.iG:)oot en&-Inearor inspootor. h nlll, thefoforo, disouoo tbo Guoeti,cn only me It porialna to tho outhorlty and ymor oqnforrod by oontrcot. It ;a ths genorul rulo thst whena Stats .ts aparby to a eontreot withe altlton, it la subjoot to al.]. and svory ooadltlon eovsrclag oontraots with ladividuale. Uortlok WJ.U. E., 94 D. 2. K5; hsadlne &ml Co. ts. **U. 9.,**  **ZM3**U. 6. 185, 69 L. L,d.9071 CrookVB*u. s., 91 U. S. i%l9,E3L. Rd. 037. But thicr rulo is subject to oartain oxcaptlono, Sor if the State undertcok to guaruntoe tha tldollty of lta agent6, it .would Boonbcocm in~ol~.pobin tha ondleoe o~barraoonent, diftloulty cm4 100808, which would bo oubvorniro to pub110 Intorest. ztory on kcpaoy, GPO.319. In tho oaeo of Clodselter Vn. Ztota, 00 f!. Carolina 64, 41 m. Rep. 440, Chloi Zuatloe &ith tiuotos with approval the,folloutlna :

Whet the dootrine of rospondaat OUpQriOr, applloablo to tho relotlon of prlnclpnl ond ny;cnt oreatod betwoen other pmnona, does .po,! pravall acalnat the oovorelgn in tho noosus~;ry omployznnt of pub110 aeonto, 1s too well oat end praotlce to n4dt ‘0s oontrom k * lnd iqzo~authority djY”‘^’
Vo govcmnont hcs aver held iteolf 11.eble to individuaia for tbo mlformnoo, leohso, or umuthorlzod oxeraisc **of** powar **by** ito otfioere **md 8~oa~8.~** **’ -**  **~~~~~~~-**

**16**ours) **I** Ae rovcolcd by the r’o6uaot, the con-plaint18 for noto oomlttod wcutaldo of a‘oontrectia It 10 ~ioll sottl.od let; ttnt statea onn be bound only by nuohoots meore oonr”crrsd by lclw ’ orby tha contmot. Thezest reosnt oaso that bears on the quoo-. tiou 10 that of Com?boll Eulldlna CO. VU. Stete iioed CODZI~SS~O~, **70**FCC.,(Zd) 057. 

### ‘~ht3r0110d3g quotction0 

### 818tak00 

### mffi WITmotions indicated:

*Gothank that the enginoor hodno outhorlty to h-elva on behalf of the atato the roCuirbaonto in the witton aotitroot., iio undoubtedly **hod** no euthority to enter into e nowor dlfforcnt oontmot, end it would follow that he bed no authority to nelvo the provision8 inthlr, one* Tha oontraot aptt0iri.0a whatlion*Julian iontgomery, Qogs S

hfs dutlco nnd3owar8 wore nrd this we0 viol1 known to the ccntrnctor. At 18 @clsro y hl!L d mat 1m architoot or an&vasr In oharce OPconstruotlon work Qooanot have outhorlty to waive a prov,Islon 

### rspulrlng written extra work ordam.” ;3ubooatIon E2.
*Uo otata o¬ be’h&l ior **tho cota**  **or its**  qngfacor boyorldtho powers ccnCorrc4 by laaror 4he wrlttfs corGraot2 ~ub8octIon i!2.

Vhe **etate** cannot be hold for any auoh aotlonn **by** Ito cniployees, even If true, for the rooooa that It OUT. bo **hold** only on the ccntrnct end for tho cots

or ito a~3nts end ot~fioinle purnutrnt to th* cc-.ntracfL end not Caruny unauthorized cr ~:;a.liciouo ccnciuct, vhlch my have resultod ,in domge.” **tiulmootron** 50. (UnCcraoorIng ours)
In tha 0088 of Clark County **Stats** Iilahway Cocmisslon, B88. c’

. Ccnstrtiotlon Companyvs. the Court said: (q!Aa3qk,, .(ct. of pppa. iip.)

#ti

. . 50 f%ktthero IP ‘agroat oontrarffy and confusion of oplnlons reapootin~ som **phoma** of the pueotlon prssontod, howover, **thore** iD yructloal acre+ tent of authority that nnrono whodoale or ooutracto sltb tiubllc officials or with sub110 b&loo :zuet at h1s ok p>rIl take notice of th,ir cutborlty nlnce they W&O; only vrithln tha limits of ‘~-sF~~)owY~ or nooi y irqG.iod poiioro cu:)r’errod up2n ttiw by Icw.~

c iihnre it Is required by atntuta that ouch cont%‘sholl be in wrLt:ag andthe controot Itnelf provldoa that any modIliontIon of its tormn shall be in writing, ouch provInIon8 am cmCet.ory andcl1 ohangoa findultcrotione aro lnotfectual and void. Ckppollont In dsalinc nIth the Cor&soioner oi Yubllo bonds rzaonot only o!larcc& tilth knaxb%l~nof the law end of any and all lleltotlccs plaood upon his pco;or to makeor r.odffy the contrect, but the guotod provisions or tho contraot 1tqol.C brought notIoe to It that all aodlfloatione, altorotlono end chansoa ohould beIn nritlng. rhoGO **provfafons,uro** In lancuaee 80 olmplo, olenr and orplloit that QVQI~a.laymanby cursory sxomlnatlon would be sblo to fully understand and appreolata tho ooneoquoaaeo or a dlrrrdggrd 

### or vlolatlon therOof@Bon. Julian L:oontgomery,page 4

“The foroeoinp rules to which .&&all adhere
are nelthor harsh or .inoqultablo since nnyono doal- -innwith public ofl’lcinlo or publio bodlca ma y ovofd the oonsequsncos by strict com.pllnnce with them.
‘hey are moundad in a somd pub110 policy antitheir abrogation would invite fmud, collusion anduniiarranted expcndlture of pub110 funds.” (Underscoring

Aoomprehonslro dlecuaalon of tne effect or an.ageat aotlng out&da the eoopa of his authority la found Inthe oaaa OS hbum vs. State, 141 Pac. 314; the SuPreme.Court of tho State of Washington hold aa iollovve,

“Their (the englneer’a) powere are only such aa ara usually possessed by mere supcrvlaing engineare and archltects;.tbat la,, to 8ee that the contract entered into by the ownor with the contractor la Droperly carried out. agents of the state. They are In no sense contracting heading the, allegations of annellont*s comolaint andthe provlolono of the cont%ot and speol?lcatlona together, we think that appellants olalm nahero pleadod amounts to nothing more than that the engineer, andposelbly the highway commlssloner, verblally requlred,the pcrfonnnnce of this alleged extra work. Clearly, this would not bind the state to-pay for suoh work, even concoding that It Is extra work wblcb the contract contemplated might be paid for if ordered In the mannortherein expresaly provided, .ln view of the fact that neither the highway com~lasloner nor tho cn&m?n possessed the Dower to blnd the state In any other mannerthan that-which the contraot Droscrlb?~ +.G:Xt.I.3also plain from the aliegaqEiona of the complaint that the work wa8not direated to be done aa extra stork, but was directed to be done by the engineer and claimed to be. work within the contraot nhlch was to be compensated for by the payment.of the lumpBurn bid. If, a8 a matter of fadt, the work ma extk”nork vflthln the. terms oi the oontraot which would call for extra oomp9nsatlon, and the, engineer or highway commlssloner arbitrarily decided that appolianta should perform such work aa a part ‘ot his oontraot, such Saot night bo oause for appellant retualng ,to aoperform It wlth- :out forfeiting ~hla rights under,the oontraot; but.it ~uoultinot foll6w that appellant could reoover.

**ROD.**Julian 'Pontgomary, pace 8

eompaneatlon for such work sftor#performlag 8m.e whenit wee not directed by the i\l~h.r;cy oozmioelonor in the manner prbeoribod **bp**the oontreot. ;i,edo not

_ think the alleeatlcns of the oonplaint show that the atate hlshway board, the atate’s oontraoting agent, in any manner dlreotcd 

### or suthorlzed the performnco of any uork othor than by the express terms of the 6ontreot .w (Undersoorlng oure) 1
It 18, theraforre, our oplnlon that the Stoto of Texas 1s not liable for the sots of lte agents which are ooaslltted

.outalda the sgope of loontraot nhlohtsete~S+h their butler endauthoflty.

Trusting thet'the io’regolng i@ly answer@your inquiry, ~urari’

**Youre rery**  trily

t. .I **Assiotant**