**OFFICE OF**  **THE AI7ORNEY**  **GENERAL OF**  **TEXAS**
**AUSTIN**

Ronorabla ii, L. Van&burn county 

### &lAltor Barrlscoulit-# Rourtcnr,

Tesus

tear Slrr &A oDlu1onx0. 40Honorable ii. 

### L. Vashbum, Page ?

of tb ?IaYi;ratlon Dfatrlat, it8 buuirrsa8 and faaiutlaa, ana am authorisad 

### to $x-ascriba their duties and flz theiF ocmponaatlon. Pursuant toít hls

l tatutolrJ auth0rixat1om the Xavlgatlan Comm~Loaor~ from tims to tinrs authorized 6ho svvclatnmt aaa emvloymmt of perg0.m oonriaema mc8rsw **to** di0ui-g0 the auto of tb poal8ioss oreatea. SUCh OrdW i5~iY deglfgIS6e the pOSitlO& the
nma of the prrroa anointed. SIUIthe salary to ba paid frca tba fuada of tha Xav2gstloa Dlstriot. wittell coatraotr 

### of ellQlopnont rlth oertdn sxcopblo~ 

### sot iafilnent 

### to tha quastioM 

### hmwnafter to be iwopmnae& havenot been 

### used. TLmDlmotor of the Port, 0~ th8 Supertitetidsot, 6a the cage pay *, has as 

### a general rule crerelq ppcwd oertain sbmtmaa

### t4 ocoug~ ceHaln posltkma ot spec1Plcid ratC)II, 

### purgu.ant to aefinlts orOar of tho Xaoigatloaa Coomlrsloaers sot alt ln tha amAtoll, aaa thla oram ana oe. ~1OyIzm tan8

omstitutea the aontraot of 

### ‘employment.Such cantract dn not embbrurce any C~IIPtiED. other than th0 E1omyfor vhkh a 8~alfio rate ii, ffmd.

"For mm Clue gast Ski0Xwigatloa coptmisu0mr.g have agth0rma the tming **or** mtracto lq Zbo Ulstriat for hospital aerv1~04 for Its 6~lo)ro~. foF drugs, and for
**Etsaifa** ftttmton. tn.10~ hay9 **pmviah** that, unasr the dlmotloa of the phyaiclaa 80 acatraatea vith, the ew&3yee8 &all rooaIv0 hospltalltatlon, m&hU l tt~tio& 8nd mdloinss. and

haYe indladed

6hW Oinl

Wb~- tioas em!areolng x-ray vicfurra, uamlnat1oa 0f O~O, furnbthing 

### of gbg808. **snd** mttfiy slnflar **item.** Ploasa b6a.r in mind that thesa contraotli nre -de d2reotlr beturrn 

### tha Dlatriot

and tho hospital, th8 aoator, the dmq store, 0na a0 forth, but 

### that no OiXSraCt 1s lrad0Vith-th~ emg& maioar attention at thm time 0 tha employ7 008 iOr auoh

mnt of gw-mas to 

### operatetha Dlatriat. Such daployiaent CoatPbOta only IndicateBonorable 8. L. Uaahbaum.?ase 3

the CompmaatItmto bo paid InmmJy.

"19sm ham aw arlsm a oartom uheroby tha mwloyea8 apply ior nsdioal atOe3atlonI hor~1WlaatIon, 00 Aruga, vithout previom
**aim08** 

### armngwmat vttb mch employee, and ouch Ituw am 

### alag furaitid at 

### the roln l xpttnso

### of tha 

### Xarlgrtlom Diatrlot ln nAAlt1an to tha ngre.A oomguuac1oa. Furthrrnom, the &rmag~tl 80 madeaRA tha oxplndItuma onbhurof auahQaQloyeea m?o
**maa0** aad lnourmd ark? tha paPformuloe of rervIoea and u1thotit 1laitat10n of amount. I ha**-anA4avoroAlooaUy to aooertaln ib oomet prlnol9lea of UV to apply 

### to thla **rittlatioll,** it being my caatoatlon that if It be aanoaAul tha Xav&gatIon Dlatrfct bsa authority ta make axplqmonta asl fls tho conqnnsatloa 

### for t&msarvI.oea to be psrformA at a AaoigaatoA salary **0na nnr$**  

### at that tlnie enter **late** a ooatraot vlth **such** elKp1oyoeu

to furnish him in aaditioa them 

### to the psdlcal 

### 'attuntion refermxl

to, 

### cer 'Uialy 

### auah Dlotztet 

### cannotlelf2ly m&s an~mploymiu&tmA later ~amlshbahadAItlcaal Itemmaftor &ho trio-• OF awvIoea. 

### I coatuad 

### tha Oiatrlot 5s~ at lta option eater Into a oontmot vlth 

### ita aaployees but aucb aantrsct 

### muat ttr tha 

### #copsof roch 

### nedha& attentlan mui horpitallratiaaanA&fi.nmJl~ 

### umit~ aRmat, vhIoh llaitation noosaoarIly 

### nxut be reaaanable. Phls pati OS the aaPtmat al tmpby

### tanrat la in addittoa 

### to that fixing tba canpensatIanlnmon8yb

"Claim8 for profaroloml eervioes. medical attentlom, hoapIt8lIze+tloa, ambulance aervioe, amming, aad like 80~11~88 for 

### tha past tvelve 

### moathahare opproxLIlvrtu4 $4,000 **Vith** Dl'WliN3Ot8 **iOll bOZM880.** 
'ma matter hag, thwdom, 

### 888-a pruportlom of lmportanae. and I 

### Aeslrsto pwsont for **your** canold6mtl0n the fcllovlng queat?cm.at

.EonorableH. I.. Vashbwn, Page b

9. aa8 tha Xmrla County Havlgatlon Dlatrlct th 

### right **to** ftwalah p6dioal atteatioa. hospitsllutloa. Axqga. eabulanceaarvice. aaa llko rorvla.8 to 

### It8 tPplO76IIS in l cldltl~ to aalarlso 

### to br pald tn moam7 fop tb 

### p8d0m0 0f that2 authd

"3. Xf tha Harrla CauatrXart6athxa 

### MatHot ham such r:zlit, must the rloa%gxatlcn 0f ~ailrtea aa provl3Imusroe such i+3aicjL and othcw attention (osrvlcsr) be Dids in advance of or at t& tIm3 o? tha aqlo7mnt'P

“3. If both of tha foFugoIugquertlont **am anauerdd**  in the **aEflnmtlve, uuet**  the order or oootraot of -lopent plocc a lfmltatron both upon the acne7 **ooapenratlon and**  Um added sllouanco for asdim dnd other ettt3ntlon?

“4. If tho Rarris County Havliiptlva DlstMot C.wsaI8atoxmro aah an 

### amplopmat and &tmQnato 0 *ala-y 

### oaly for 

### a poaitlvn.
am f mthoritea **thumafter** to approve myzamta for medioal attontfon ena other allaiL%- sexvices abwa deaoribed, vhlch am not au+ 

### thorSteA

until 8rtar thm 

### rmrtormaacf4 of tha atm~cbe and **witha7t** llmitatlonof **aacuntt"**

**As** stated ln **701~ letter,**  it vlll **be** noted that the Harris Count7 mvigatloa Dietrict vaa eotablished **by virtua**  of **3ctSon 53,**  **Artlole XII**  **’ of**  **the 6tote**  Conotltution **end Chapta~**  i3. Tit10 128, Vernon'o AnnotatedCivl$ **Ststutoa.**

We have ctxznaidemd the oplnlonn of Hcumr8bloD. A. SinnnopS,

&tlMUSl cOW3BOl fOF th0 &lFPiB C3UZlt7 -qlLtiOll -airtr?ct; **Eowrablo CoarsJ.** **3. Landram;**  **Azs:stnnt** DlaUMct **Attomoyl** and **Ronomble h**  **’ raest**  **A.** Knapp, Attorney **for** Elarrla Count?, ooplea 

### vi vhlchworn attaohod 

### to pur lnquby. Theme

### 09rnFons have aided us ln rvachlng Qur comlualon ia this o~inifm 8a6 **V8 thaak**  yvu for Curnishiag UBvlth the aallna.

Tha Xarrla 

### Cvuat~Xtnvlgation Disriat is a political ~ubdlrisloa or thr. Stats, aromSsing s part or the aorsmlgxa**H0norabl.e 8.**  L. **Vahk~urn, Fasge**  **5**

poveaw of tba Stak rod Lo sot simply a publia or qruoi pub110 **corporation** lilco 8 COQIQO oarHer m GsDsl and dock aomntions. swtaiaiag this pm~oalfion u4 alto the caaa **or** cuehart f~. Braros alverlbrbor RovigationDLatrlot, 42 3. U. (2d) 96. Aloo **the aeae**  **of Cnrpentm**  **~8.** Arroyo-Colondo Rooi6ation **Dlstrlat** of **Caauma** 0ndWilaon Cwatler, ill 3. U. 922 end t&w authw**1t1eo m4ntlonmd**  in thwe UaMb. oene rJ 2d) ly rpaaking aarlg8tlon dlutrlatolra arnantlelly pklitiaal subdltitiano or tha Skco. They a-0 gov4mamntel 84mnaie0, bodies polltfa and aorgoratowith the **pwar to**  **sxeralor tiw**  fit&to. privil4gra **uul RWI)N**  aonhmd upon them**by** ki.0~. Th4y era mntmklly **tnat4d** a0 murioiwl co* porationa irrt&a 04ns4 thatthoyar4 aaxulzmdto deaafto gaographlCdl I&IWO, CUUi h8V4PO C;OVOtZUMnt~ PWWO tWOid Of t&31 and oubjaot to *%a0 maso d.08 uo apEXled in 0~~1~lng **at t&a**  **pev** 0x-sor oo~tleo sad altl4o. Constttutloa of Taxea, **Article** 16, Seatian 592 Zdmmlar Tn. CIrltoa, 296 3. V. 1'57318alrLqoo vm. Canaroa Caunty **V&tar Immwteat**  **M8tFFct. 25**  **3. Y.**  **(24) 651,**  Baxsr County ~8. lbdfaa-AUoaaaa Countlea Vater Ispmvmaant Dlotr’lotvo. St+& ?l 9. w. (2d) 717.
_.

ft %a'& wll eatabllobad prixmiple of &u that tba **county ccmaisoiafroro~**  **cmztc say**  **axrreisr 0dLy**  **such pm00**  **aa eq3mos4**  OF by nt~aeooary iorpllcatian

gl.ven to aal4 courts by the **Constitutral** OrId atatutos. Thie prlrxlple Lo 80 well eotabllalrsd lrnd time4 ara 60 mny curtharltioo **supporting** the **oaan.** ve &am Ct tmne<tsro~ to c:to any oi auah authcwlttcl8. 2Zmroion. ve think that a **nevlg*tioa** **diotrlct is**  **eahjeat** to tha ml4
that It mm be author:todby atatnt4, **4lth4r** 4xprooo1yOF by lmpllcaticn, to sxomio! 4ny atrthwitf 02 pov4r vhich it do48 eremios.
Articlrs 8227 ead 8245, Vorncn'a Ammtatad Cirll Statutes, au"&rfte tha cuaalaolsumrs of 

### nevfg.atWn clIot~loto **to epsploy** **fnmh** %laostaat **eqgisroem sad**  **other esa&syees**  ***a say**  **b4** neaemtery, **paying ouah**  crni@maatlan **aa they**  **may** dmtexafm, **end** thet aaid aoaiasl~aam an fwthw nuthwtsad to eprolar aounool to 

## njwonantauah dfrtriot ia the preplwtloJIaf w oontmot. **or the**  **canduotiag of**  **an;l pavmediwg**  **in or**  out **oi oowt,**  **en4 to**  &IO Um legal advloer of **the** cem8lsolanem.o~ auoh term and Par such leer ao aaf be agreed upea **by them,**  **and %o** emplot l uoh persona a8 th4y dm3o cmoesoery tw the aano~matlon, wtnt4wnoo snd operatlatr,

and &velo@s8at af the nmigatlaa dlotrlot, It8 bur'aos, Dautlitlsm, ~reoaribe their duties **and fix**  **their tom**  pan5atloa. Ew4v4r. them la no speaif'i4 pmviolan of tha 8tatutes which authorfteo a nmY%gatfQn di8trlat to fncw modfo8lnonorable H. L. Yashbura, Page 6

*It lo a gener81 rule or judIola1 oonatruotlonthat even a normal nunioIpa1 aorPOratiOahaa only ruoh iaplledpavers am are reasonablyneceea~ to make lffeotiro the pzren upr.884 grubted. mat 10 to cry, euch as arm indispeaeable to the tloaland objeats of the aorporatioaand the accom9lish**nwnt of**  the **purposea of**  **its creation.**  **Pavers** vhlch are not expreaaodaad whlah are merely convenientor useful may not be lnoludedand cannot **be** malatalned. Furthermore.vhere povera are granted to a~nmiolpality by apecifla **.provislon,** such **powrs** are not enlarged by general language found elsevhsre ln the **Act.** 4 l 

### l

**

In disoussingthis subjeat,ft was **said** in the **case** of posterYE. City of Uaao, 225 3. W. ll.04, that "any fair!, naoaaabre, substantial

doubt ooaceming tho exerolseof pover ie resolved by the coulrts

against a **aorporatloa,** and the paver. is denied. Of every nttaaicipal aoFpor8tlonthe aharter or otatuto by vhloh it la created is an organlo aat. Xeither the aorporatfonnor It8 officers caa do e.ny aat, or make eny aontraot,or 'incur any Ilability,not authoriaedthereby, or by nome leglolativeact applloablothereto poveragranted are void. ,,.. $1; act8 beyond the saope or the

. There are several seotlonoof the State Coaotltutloa vhlchevidencea desire and intention to give every possible safeguard

**to** the expenditureof public funds and to oom9el **their** application

to be properly expended for the purposes authorized by Isv. (ArtioleIII, Sectiona 44, 49, 51, 52 and 53. Also see thnprovisionsof titio1.e X, 3eotioa 3, 3eotion 161 and titicle XK, Seatloa 6 of the Ooaotltutioa.)

As above stated, the **Harris** County HavlgatlonDistrict is a polltloal subdlvloIoaof the State ~JX¶ certainly lta funds
arepublic funds. Therefore the severalprovisionsof the State constitution

1lmItIng the,uae of public funds by its 9olltical aubdlviaions

do, we think, apply to the Harrle County %avlgatIonSionorable H. L. Yashburn, Page 7

The pension system OS the City of Dallas,vhlch had been adopted some years **before** the LegIslaturs~h‘M~authorized city pensions,vaa upheld in the osae of Byrd vs. City OS Dallas, 6 9. W. (26) ?38, and In oonsIQerl.ng severalOS the oonstitutlonal

provisionsmentioned above, It **var** held that they had no relation to a contractbetveen a municipalcorporation and Its employees, but ve~4 intended to prevent the application OS public Sunds to private purposes. The penalonvas held not to be **a** gratuugtj, **but** a part OS the aompensatlon OS the emplo7ee for servicesrendered. .Subsequentlj, in the ease of City OS Dallasva. Trammel, 101 S. V. (26) 1009, the rule **as** to the pensionsvere reiterated,but it vaa pointed out that the pen**sioner** haa **no** vested **rlg?it** In **future** Installments and that the amountspapbllemay be lnoreased-ordimlnlahed.

The State by general lav authorlzeeboard, lodgw, clothe’s.and

provisions In addition to salariesfor employees of the Texas Prison System. Ch. 163, P. 413). (Acts OS the. 44th Legislature,

It Is stated In the opinion of Mr. Simmons,mentioned above, that “the oonstltutlonal provisionsof Georgia **are** uimIlar to ours, and objectionsagainst **a** pension system for municipal employeesin that state vere overruledIn the case OS Yest vs. Trotzler, 196 S. i3. 930, wherein It vaa held that city funds gol.n&intopensions did not constitute donationsor extra compensation

vhlch vere prohibitedby the Constitution.”

It Is quite CO~OP for the divisions of the State governmentto of the compensationof the employee, automobiles,

etc. We agree vlth the set forth in his opinion,heretofore part as Sollovsr State and the various aubagree to furnish,as part living quarters,grocerlea, statementof Mr. Snlpp as mentioned,vhlch reads In

*+ l *, It Is quite oommon **for** the State and the various aubdivlaionaOS the State Qovemusant to agree to Surnish, se **a** part of the compenaatlon

OS the employee, living quarters, grocerlea,automobiles,and medical services. The HavigatlonDlstrlot may do this also. Rut vhat I tried to make plain In nr~ opinion,vas that neither the Iiavlgatlon District nor any other political subdivisionOS the State may pay to nn7 employee any compensation.regardless of tba form vhioh that oompeneatlon payHonorableH. L. Uaehburn, ?ags 8

take, aStar the renditionOS services called for by **their** oontraatOS employment, unless such oompenaaflon **van** prospeotlvely

provided for by the contraat. The **point** I tried GO stressvaa that the particular Items covered by my opinionvece not part OS any oontraot OS employment. Mr. Simmons' letter does not say, and I am quite wre that he vi11 not nay aside 

### from the letter, that any department OS the State Qovernmentor any polltiaal oorporatlonorganizedae a **part** OS the Btate governmental

machinerymay give, deliver **or** contributeto any agent or 4mploy44medical servicesafter performanceOS the services for vhlch that employ44vae qngaged and vhioh are in ths nature of a donation or boms to the employ44,given or vlthheld **at** the vhIm of the officer or.govem1n.g body OS the polltloal aubdlvlslon. Xt la
one thing to make a oontraotvlth an employee for a Slxed aalary per month or per year plus

a definite amount qf medical attention; but it 1s dlatlnotlyanother thing to make a contraatvith an employ44 for a Slxed salary per month, and then say to that employee that the polltlcal organization vhlch employs you vi11 give you such medical services aa It determinesIn Its discretionto give you, after you have rendered In vhole


### or in part these servlceaand have been paid for them. To make thla clearer, I think that the XavlgstlonDlrrtMot could very reasonably contraotvith Xary Smith to perform stenograph10 8ervlceo in the oSfIo4s OS th4 Port CommlsaIon and agree to pay her a a&lazy OS $100.00per month, and ln addition thereto, to supplyher such medical servloea and hospltallsatlon

as Vera reasonablynecessary during the period OS her employmentnot to exoeed the additionalsum of $25.00 per month. But I **do** not think that It ha8 any authority to contraotvlth &my Smith to perform such ~4rvlc4sat a salary of $100.00 vithout any mention beins made Bem month
o the care or amount of medical aervicea,and then afterHonorableH. L. Uashburn, Page 9

the perSomanoe OS the 8emloes aoveredbr the oantraot,either fos a long oz short period, to grant w Smith extra aompeneatlon in an indetamlnate amount, subjeot alone to the arbitraryvhin OS the 'oommIselonere,rrithout

8ome deflnltsguide or meaawe to be applied. 

### ì0 0 l .=
It is atatedby Ipi 3iaruIram ln his opinion,heretofore mentlonedt

. :

?Zhere

### mat be a &ntraot of emploJaarnt providing Sor These mixtiaal aemlces vith maxImum limit.4

and also deaorlbed, .lS not in-dotall.

vt by aoma reasonable standard by vhlah the CountyAuditor &ad the judlclaTJ may determine the limlts.and 8aom of the obllgatlone. IS suah reasou&Xs standarda
are not preaorlbed,th'.aont~aot.voulddoubtleaa be'vold for lnd4Slniteme4a and un4xtSor44- \* able by the emplo~eo,makbg the expenditure
a gift ror 

### vat or.

P valid 

### ‘ofmtract,

and the CountyAuditor vould~ have no standud w vhlah to determfnefrom time to tlm vhether a oLU.m filed b;r an 

### axeoutive ofthor for em 4mpl0~44 

### or~brthe 4mploy4ehI#.relS roll vithln hi4 oonkraotrith the Mstrlot. Ye must bear in mind that IS medical 0emlaer are a part of the agreed oompe,naatton f&s ekplojee:mq olaia it a8 a matter of 

### rightand tit aS ,graos of ~theDlstriotEaployer, and map, therefore, prerent~,h%a

rm- olalm dlreot, and, therefore, the CountyAudlto~ttuathave a standardprovlouslyasoertalnedby lav to detemlno the validityOS the.oLaiPlc. :Zdo,notmean to say that the deaIslon OS the Cqnty Auditor on the claim la Slnal or'oonalusivoor exempt from judlolalr4vI0v.~

Xt im our opinion that the medical sarvlae and hompltal faoilltleslurnlahed 4mplo~4es.oSthe HavlgatlonDlstrlct am suetainable

as a part OS thel~ earned compensation vhere the

.BonorableH. L. Washbum, Page 10

Board has made generalprovlslonatherefor. In other vords, the HavlgatlonDlstriothas authority to agree, as part of the agreed aompensatlon to be paid 4mploy44m,to furnish atlpulatedaervIoesfor hospltallzation, drugs and mediaal attention. Bovever, these cannotbe unllmltsd in amount or kind, and must, therefore, be for aom reasonablefixed maximum amount.

SpeolSlcally

ansverlngyour questions aa stated above, It la our opinion that the first three questions should be ansvered in the aSSlrmatIveend are so ansvered. The fourth question la anavered in the negative.

Trusting that the foregoingSully ansversyour Inquiry,
ve are .,

*r---,----~..

m-m -J li- __Y. A_i .:...

.'

. I?:,1 Yours very truly

A+++- APTOREEC QEWRAL OF !SEXAR

;. .- .-ii By-b-&yA Ardell liilllama Assistant.

AUlRS

. .