### Honorable Jamer E. xilday amator, Motor Ttinrrportation mvision Railroad ctommisd~nOP TOZWI Austin, Texas

Dear Sir: opinion No. 0445 Be: Ths vulidity of the anti-pa88 provisions of senate Bill 427, 46th Iwgishtum,'~andthe applicability of the anti-@&S8 statutesto QIp1Oy888 ,ofth.8 Railroad Ceamission of Texas.

We hpvu your letter of A&.ast 26, 1939, inwhich yoUaSk our opinion with rsfemnoe~toths Pati+88 provisions of the depvtmental appropriatio8 bill, beiag Senate Bill No* 427, passed by the 46th Legislatum,and also with r8fsmno8 to the a~lioab$lity'of the-anti-pass 8tatIA88~ in g8nsral to anploy of the Railroad oommi8sioa of Texas. Your,eighth and ninth qu88tions relate to the oon+itutionslity of the prOviSiOn of the deprtm8wtal appmpriatiom bill prohibiting 8xy state anployee fraanraoeiving 8my psees 

### or uther ftinklag pritilages fnm ay transportation ~omp8ny. You a8k ia substancewhether this provisioa of the appropriationId11 is valid in visaof the caption of the bill and in viarr of the constitutionalprovision that no bill shall oonWn more than on8 subject,which shall be expressed in its title. The88 qusstioan .tillb8 answwed first, baoausaw8 believe that the angvws tothese questionswill x&e it uaneoessaryto aasm8r other questionswhich you hav8 asked in your latter.
The a&-pass provisions of Ssllat8 Bill 427 arcfound in Se&ion 2(f) (5),tiioh mads a8 follow8a.
"Exoeptas otherwise author&tad by statute,no State enploy shall :, r808ive or us8 any pa8888 or other frankingprivlleg88 from 8mytraasport& tier agtioy, slid

8ny spaploy offending shall b8 inrmediatsly disoharg9,di' The f8ot that any tnnsport&io% agwoy kntiingly 8xtsIads pas888 or oth8r franl&ng privilegss to any State ~ployss sh8ll o~onstitute sufficiwt grounds upoawhioh the right of paid tmnsportation oompuyto do business iathin *'State OPII

bs forfeifsd,and the Attorney General is hereby directed to instituts proper pn308Oding8to opncsl said right of NY transportation ag8noy so offending."
The oap&on to S8aata Bill No. 427 reads as,follows:Hon. James E.I[ildny-Page 2 (C-445)

*An Act making appropriationsfor the support aadmaintenanoe'of the exsoutive cmd adndniptrativedepartnWmt8 aad agenoiss.ofthe State COVW?Ament for the two year period beginriing Septmkr 1, 1939, and smdingAugust 31, 1941, and for oth8r purposes; and declaring it unlawful for p8rso~i 8mplooyed in themvsral departmentsto srgage in political oa81p&gas relating to elsctionor r88leoticmof any mdidate oi candidatesfor the head of suoh departmrt and any pulaio offioe and pmsoribing prooedum for maoval of suoh amployees:andmplcingit lulawful to us8 any State-omd autamoMle in oonneotionwith say 08mlmiga relating to pay m8asur88 iawhiohthe particular deprtm8nt bywhioh the smploy88 is dir8atly inter88ted sad/or ia behalf of ths eleotioa or reelection of say persoa a8 th8 head of suohdepartmats; and prescribing prooedur8and penalties for violation of this &t; and pmsoribing oertainother lagulatioasaad restricfions in raspeat; tothe appropriations mad8 herein,and deolariag an emsrgmay.*

It is plalr from a mading of the &ion &at it makes no rsferenoe to the fast ihat ths Ml1 oontniur q prohildtionagahst the r&aipt or us8 of aqp ~888s or franking priv%legesbgrany stati ~pploy88~ W noti is piv8a in the captionthat th.8 bill 00~~8 any Suoh subjeat. U8 belieoa therefore that this portion ofthe~bill is clearly in +iiol&titi of th8 provisions of Artiole S, Section 35 of the Con8titutionof Texas which reads as follow8r

'&so. 35. No bill, (except general appropriationMlls,rhioh may 8e bra88 the vnriou8 s~bjeots cud aooourrts, for and on aooount of whiohmonsys ax-8 approptiat8d) shall oontaimmore than om subjeot,whioh shall 'be expressed ia it8 title. But if 8xy subjeot shall- Qnbraoed in an a&t,whioh shallnot be expressed in the title, such act shall. be void only a8 to 80much thereof, as sftallnotbe 80 expresssd,8
Sims the title or oaptioa of th8 bill faila to giv8 rea8onablsnotioe that it ooxkims provision8 relating to the Rlbjsot of the prqhibition of free pesses to 8tat8 amploy808,the,Mll is void ia 80 far a8 it relates to th8 8Ubjeat not Ow98Sed in the title. De Silti) V. State, 06 Tex. Cr. B. 634, 229 S.H. 542; Arnold v. Leonard, 114 T8xe 635, 273 S.W. 799.
The anti-p888 provQioa8 Ofti appropriationbill do not ooastitutsa rqgnlationof the manner im whioh the 8101~8 appropriated thereia shall b8 8xpen&d. If oonstru6d a8 am implied tiendmslf of the'gkerP1 statutes prohibiting th8 issu~ce of free passes %y tr8xaportatio8sigenoies, said provisions would bs invalid sinne a g8;ewral lawmay8otlm Pmsrdedby~provisions of a general appropriationbill. See State v. Steels, 57 T8x. 200; Linda v. Findley; 92 Tew. 451.

You are thW8for8 advised that it i8 our OpitiiOi that th8 NtiLppSS protisions of Ssnat8 Bill Noor 427 am unColl8titutional oad of no fores and sffset.
Siace your qu88tions nmbers three Pnd fivu ?elate to a oomstauotionof 'The anti-pass provisions of S8nat8 Bill No. 427, on the aosw8ption of their validity, and sin88 the88 provisions ar8 in our opinion invalid, it till not be necessary for us to answer these questions.

Theremetiing questions in your letter relate to the constructionof the anti-pass statutes in general, and oall for a oonstruotionof the oivilHoit James E. Kilday - Page 3 (O-445)

and penal statutes,aside from the provisionsof Senate Sill 427* Ia your first questionyou a8k in substancewhether the anti-pass statutesdsaouxos the giving Of PpSSOS by bu8 line, whethsr opsrated ‘trJr indivdualn, partnerships, or corporations.
The 01~11 statutes relating to the givixg of free passes ar8 articles 4005 through 4015; ilWhSiW, of the Rsvissd Civil Statutss. The pexal statutes covering this subjeotare Articles 1651 through 1666s of the Porn1 Cods*
Artiole 4005 of the Revised Civil Statutes provides in pm-t as follows:

"No steam or elsotrio railway compauy, street railway oompany, imterurbaa raI1wsy oompany or other charteredtrsusportationoompaxy, express compauy, sleepixg oar oompauy,telegraph oompauy,telephoue oompauy, or person or &ssociatica of persons operating **the** 8am8, nor aqr reoeiver or ler8se thereof, nor any officer,agent, or smployes or reoeiwr of may suoh aompuy in this State shallhowingly haul or oarry auy propsrty free of charge, or give or grant to any person, firm or corporation of prsoms a free pass, .frank,privilege or substitutefor pay or a subterfuge*ioh is used or which is given to bs used instead of the regular fare or rate of transportationor any authorityor permit &atsoever to travel or to pass 

### or oonwy or tramsport any person or prop arty free, nor sell any transportationfor anything exceptmoney, or for any greater or less rate than in ohsrgedall persons under the ssxm conditions, over an7 railway ortraasportatlon lines or part of lines inthis State; s

Your question xnusber oasmay be subdivided'intotm questicmsc Pi&, whether &tiole 4006 applies to a motor bus liners and seoond;whether said Artiole applies to ~dividuals and partnarshipsa8well.as to oorporations.
Artiole 4005 expre8sly prohibits the giving of sny free psl'to be used instead of the regular far8 or rate of trak%spoI%atiO8 soYe+ say rail- 

### or transportation lines or part of line in this State*' It is our opinion that this provision alearlymeans that free passes shall.aotbe graated by any traaspertationagenoy, inoludingmotor bus line8 as well as railways.
Artiole 4005 provides in part that "no steam or eleotrio railwsy ouupany, strest railway oompsny, interurban railway compsnyor other chartered transportationcanpsny . . . or person or assooiationof persoas operating the sax&s"

shall give free passes. Ia. our opinion this lsnguagewas intended to aovsr.alltransportation agenoies operatingunder oertifioatssor psrmit8 of authority of any kiad frau ths State of Texas,whether suohtranspcrtation agsnoies are owned and opsratedby individual8,assboiations,partnerships, or oorporations. The word soompanysdoss not necessarilymean "oorporation." .;n thecase of Rills v. State, 23 Tax. 295, the Suprcone Court said:

"Theword oompany,isens of various and very ac#aprshensivs signification, and, standingalone, conveys no very definite idsa. It applies to persons acting together for the,prosecutionof small or great enterprisas."Hon. James E. gilday - Page 4 (O-445)

In 16 C.J. 5. 647 it is saidwith reference totthe word "oomponysthat, 'khilefrequently and properlyused to deaota a oorporation,or.an inoorporat- .edassociation, it does not neoessarily involve that idea either in common speech or at law;".
The uss of the word "chartered"does not requirs a constructionthat ths statute applies only to corporations. Ths word soharter" is properlyused to describe any osrtifioatesof authority issusd l.y.a governingbody* See 14 C. J. S. 560. It is thsreforsour opinion thatArtiole 4005 of the Revised Civil Statutes shouldba interpretedto apply to any trsnsportationagsnoy operating under permit oroertifioats of authority framthe Stats of Texas or any gcvenmeatal department or OOmsLiSSiOn, 8nd that it shouldnot be limitedmerely to oorporations.
Inyour question mmbsr tws, you askwhether it 3s necessary as a oondition for one of the asployees ofthe Railroad Canmission to ride on a free pass on a bus that he be protested by a speoifio statutoryauthorizationor whether he may rids on a bus pass if ths existing s&i-pP86 statutesars silenta8 to him.
Article 4006, supra quotedabove, oontainsa genersl prohibitionagainst the grantingof free passes. Article 1661 of thd Fenal Cods prohibits in geaOral the issusncs of sny frss PpsS by sny offioer.or agent of a trsnsportation agenay. Article 1655 of the Penal Code provides as follows:
@Any person, other than the persons excepted by law,who uses such free ticket, free pass, or free transportation,frsnk or privilege over any railway or other trsnsportationline or sleepdngor express oar, telegraph or telephone linementioned 3n the pmoediag articles of this ohapter, for any distsnoe under the watrol and operation of either of said ouinpanias or under their authorify, or shall knowingly orwilfully by any msms or d%sisswhatsoewr obtaia,use, or enjoy frcan

any such oompany

### a less fars 

### or ratethan is chargad,dsmanded, oolleotedor reoaivedby any suoh mmpsny from 8ny other persoa, fins, lsscoiation of persons or corporationsfor doing for him, them or it, a like servioa, if the trprsportationor sexvies is of a like kind oftraffio or service under substwrtially similar oiroumstanoesand conditions, such parsan or such offdoer 

### oragent who acts for such oorporttioror oamppqr thus favored, shallbs Pined not less than one huudred normars than one thousand dollars."
Article 4006 of the Bevised Civil Statutes sets forth a long list of persons to whom free passesmay be granted. It is cur opinion that it nas the intention of the Lsgislatureto prohibit ths granting or use of free passes exoept astto oertain specified olasses of persons, and that unless there is ,speoial statutoryauthoriaatiomallowing a person to ride on a frse pass, the granting of a frse pass to suoh person or ths use of a free pass by himwould be a violation of ths law.

Your fourth and sixth question8may be grouped together. In these gusstions you ask in substsuoswhether the Railroad Cmumissionmay designate its smployses as %mspeotorss in orderthat th~maytske advantage of the exoep tions provided la Article 4OC6, supra,which provides, in part, is follows:l . .y.

Hun. James E. Kilday - Page 5 (O-445)

"The pmoeding artiols Shall not bs held to prevent any stesmor elsetriot interurban railway,telegraph oanpa~ 

### or charteredtransportation oompany or sleeping oar ocssm or the receivera or lessees thereof or persons operating sams or the offioers, or agents a~ emnloyees thereof from granting or exohauging free passes or free transportation,

### franks,privileges, substitute* for pay, or other thing prohibitedby the various provisionsof the preceding artiolato uy of the following nsmed perSOa81 . a . State Railroad Cavnissioaers~Seoretary of the Railroad Commls8ion;Engineer of the Railroad Ccemni*sion:

Inspsotorof fhs Railroad cammission;Auditor of the Railroad Ccunsissioa;

. . .s

Tb find no statutory definition of the word "inspeotor.* DiderArticle 10, Section 1, of the Revised Civil Statutes, the ?ordinary significations should bs applied to ti*word "iaspsotor." WCJfurtherbelieve that itwas not the intentionof the legislature tc'limit.theright to rsoeivsfree psses to on iaspsotor, sinoe under Article 10, Seotion 4 of the Rsvised Civil Statutes, "The singular snd plural nwnber shall each include the other, unless otherwise expresslyprovided.' It is our opinion that the ccllrnis8ion may by its order designate smploy*e*.toperfonsths duties usually perfolmu'ble by an iaspeotor, in the ordinary signifioationof that mrd, and that such psrsons,while in the aotual exercise of their offioialduties as such~wouldbe -titled to some under the exoeptioa stated in Artiole 4006, supra. It is our further opinion that personswho do not 

### l otuallypsrform the duties of 

### an inspector, could mot claimto comewithin the said exoeptioain Article 4006. Referring speoifioally to your sixth question,w8 do not think that the Ccmmdssior,merely ly designating exmniwrs, mpi%er*, the direotor, or others as inspeotor* and assigningto them duties usually performableby an inspsotor, could

### overocmm the PrOViSiollS Of the anti-pI8* StatIltOS.Wb think that before a person so appointed could oonewithin the exoeption~iaArt1018 4006, such appointmat and assignmsatmust be mad* by the Railroad Conssissioa for the aotual purpose of having suoh 

### personpsrfons the dutibs of an'inspeotor,and suchpersonmumt 

### reallyperform suoh dutiss. In othertwords, the appointment and assignment mu¬ be a subterfuge,mad* forth* purpoee of 

### overcomiag the provi*ions 

### of the anti-pass statutes,but must bs made for the real purpose of having the appointee perform the duties of u inspeotor*

In your 

### awe&h question, you a8k whether it is a penal offense for an smployee or offioer of the Rotor TrsnsportationDivision of the Railroad Cusmission of Texas, other than those speoifioallynamsd 

### in the anti-pass statute as being 

### persons

who may ride on passes, to ride on a pass andths extent of the pe=lty* &tiole 1655 of the Penal Qde, quoted above, provides that any peraoa, .sth*r than those exseptedby law,who us*8 aw free pass, shall bs fined 

### aot less than #lOC nor mom than $1000. It is our opinion that this otatuto rl.oarly provides that personswho uss passsswithout coming under the exceptions provided for in Article 4006 of the Revised Civil Statutes, shall be guilty of a criminaloffense and fined in the smount stated.I. - . -

Hcm.Jams E.ICilday -Page 6 (0445)



### very trulyyours

ATTORNEY QENERAL OF TEXA6
By /s/Jams P. Em-t

James P. Hart A6SISTmT
JFHtAUbegw

AFPROVED SEP 2, 1939 /s/Gerald C. Mann ATTORNEY GEIWAL OF TEXA6 APPROVED Opl.nion

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