of Fletcherv. Peck, decidedby the SupremeCourt of the United States in 1816. (6 Cranch,U.S., 87.) Hon. Allan Shivers,F'age3 (V-1254)
"Hencethis provisionlimitingthelegislative power, hasbeen adoptedinmnyif not most of the Constitutionsof the differentStates of ths Union. djlngsv. San Antonio,47 Tex. 548, 555, ;5i &3;;.-
In 1851 the Texas'Suprene court, in an opinionby Chief JusticeHemphill,held that Section24 of ArticleVII rasmlaatory,notmerelyairectory.
The evils to be avoidedby this constltutionallimi- tation have been discussedin iumerousc&es. Typical of these discussionsis the followingfrom Stons v. Brown, 54 Tex. 330 (188lrat 342, in which the SupremeCourt of Texas said:
"Ths principalobjectof this constitutional pro- vieion la to advisethe lsgislaturstid the people of the naturs of each particularbill, so as to prevent the insertionof obnoxiousclauses,which other@e might be engraftedthereuponand become the law; and aleo $0 preventconibinations,whsrsbyw+dbs concen- ttitedthe votes of the friendsof differsntmeasurk .f nohe of which could pass singly;thus causingeach bill to stand on its own merits.3
In CooleytsConstitutional Ll.mi~at,ions (8thEd. 1927) 295, ths purposeof the constitutional provisionis -ised as follows: n. . . It rcay.therefore be assumedas settled that the purposeof thess provisionswas: first,to :prevsnthedge-podgeor 'log-rolling' .&egisl$$; second,to preventsurpriseor fraud upon the legisla- ture by means of provisionsin bills of which the title,s,
.g .Georgiawas the first State to place this type of limi- tation in its constitution.There are now 41 Statesthat have provisionsof this generalnature. &ly connectic.ut, Maine, Mas- sachusetts,New Bampehire,North Carolina,Rhode Islandand Ver- mont are withoutit. ConstStutional Limitationsupon Statute Tltles.inLouisiana,6 La. LA 72, 78 (Comment1944).
g Cannonv. Hemphill,7 Tex. 184 (1851).
.1/ Similargtatementsare found in the g&era1 treatises,of Freud, Standardsof AmericanLegislation,155, 156; 1 Sutherland Statutoryconstruction(3rdEd. 1943) 287, Sec. 1702; 1 Cool6yle Constitutional Limitations(8thEd. 1927) 294, 295, 296. Hon. Allsn Shivers,Page 4 (V-1254)
gave no Intimation,and which might thereforebe over- lookedand carelesslyandunintentianallyadoptea; and, third,to fairlyapprisethe people,throughsuch publicationof legislativeproceedingsas is usually made, of the subjectsof legislationthat are being considered,in or&r that they may have opportunity of being heard thereon,by petitionor otherwise,if they shall so desire."
In 1 Sutherland,StatutoryConstruction(3rdEd. 1943) 290, it is stated:
". . . It preventsthe surreptitious passageof laws containingprovisionsincongrouswith the subject proclaimedin the title. It militatesagainst 'omnibus,' or multi-subjectlegislation, the practiseof procuring dlves~ anduurelatedmatterstobe passedas one act throughthe consolidated vote of.thcadvocates of each separatemaasure,whenuerhausuo sinalemeasurecould ha& been pasf&~oz.i its-ownmerits. It also prevents the attachmsutof uudeeirable!riders~ kek- passed beeause'oftheir.~lic,~~ taln to 'be' ity oFdesirability." (Emphasisadded throughout:)"'
The last sentenceabove quoted frOm Sutherlandis. partlcula+y applicableto geueralapprop&tion bills..It is c&tAinthattheyare desirableand.iufad necessarylegis- lii+,ion.Asausu&thiug,thist~ ofbill comesup fo+&ui +?T8tion late IIIthe E~SS~OII and mu& bepassed. Ev&;permis- sibli and appropriateridersare often attachedin conference committee,and the entirebill is submittedto the House slidthe Senate on a."takeor leave it" vote. Iu such instances,there is no opportunityfor-publicnotice,full discussion,~amsndment, or eliminationof a particularrider. Legislatorsare called upon to vote for the entirebill as draftedby the conference committeeor vote againstthe entirkbilli
In the sams manner,the entire generalappropriation bill is submittedto the Governor. Ik can veto appropriation items and riders,but he doe6 not have the power to veto non- appropriating riders. AttorneyC+eral's opinionNo..V-llg6 (1951). If an objectionable matter of generallegislationis containedin a non-appropriating rider, the Governormust never- thelessaccept it