The Attorney General of Texas
April 25, 1978
JOHN L. HILL
Attorney General
Honorable James M. Windham Opinion No. Ii- 1158
Chairman
Board of Corrections Re: Acquisition of land for a
Livingston, Texas 77351 prison farm.
Dear Mr. Windham:
You have asked three questions relating to the acquisition of land on
which to construct a new prison unit. The questions involve a rider to the
General Appropriations Act for then 1978-79 fiscal years. That rider provides:
The Department of Corrections is authorized to
squire from the proceeds of the sale or exchange of
the Blue Ridge Farm, and from the appropriation for
prison construction, sufficient acreage in West Texas,
not to exceed a valuation of $8,000,000 upon which to
construct a prison unit. Appropriated funds provided
herein shall be expended only when authorized by the
approval board, as provided under Sanate Bill No. 449,
Fifty-fourth Legislature, Regular Session, consisting of
the Governor, the Commissioner of the General Land
Office and the Chairman of the Board of Corrections.
Acts 1977, 85th Leg., ch. 872, at 2870.
Your questions are:
(1) Can the acreage referred to in the rider be
purchased by the Texas Department of
Corrections solely from appropriated money,
without the inclusion of any money from the sale
of the Blue Ridge Farm?
(2) Is the language in the rider indicating’that the
acreage in question is to be located in “West
Texas” directory or mandatory?
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Honorable James M. Windham - Page 2 (H-1159)
(3) If, and only if such language is determined to be
mandatory, does West Texas include Iiidalgo County?
The first question is of primary importance since a 1955 statute limits use of
funds from the &le of the Blue Ridge Farm. That statute provides in part:
Sec. 3. The proceeds from the sale of [the Blue Ridge
Farm1 shall be placed in a special fund in the State Treasury
for use by the Texas Prison Board in purchasing other lands
for the Texas Prison System within a radius of seventy five
(75) miles of Huntsville, Texas. . . .
Acts 1955, 54th Leg., ch. 457, at l178. An appropriation act rider cannot amend a
statute. Attorney General Opinion V-1254 (1951). Thus, unless the property can be
purchased with funds other than the proceeds of the sale of Blue Ridge Farm, the
new acreage must be within seventy-five miles of Huntsville.
The rider authorizes the Department ‘*to acquire [acreage in West Texas]
from the proceeds of ,the sale or exchan e of the Blue Ridge Farm, and from the
appropriation for prison construction” ‘femphasis added). Your fZZ question
requires us to decide whether the “and” can be construed in the disjunctive rather
than the more usual conjunctive form. The Texas Supreme Court has said:
Ordinarily the words ‘and’ and ‘or,’ are in no sense inter-
changeable terms, but, on the contrary, are used in the
structure of language for purposes entirely variant, the
,former being strictly of a conjunctive, the latter, of a
disjunctive, nature. Nevertheless, in order to effectuate the
intention of the parties to an instrument, a testator, or a
legislature, as the case may be, the word ‘and’ is sometimes
construed to mean ‘or.’ This construction, however, is never
resorted to except for strong reasons and the words should
never be so construed unless the context favors the
conversion; as where it must be done in order to effectuate
the manifest intention of the user; and where not to do so
would render the meaning ambiguous, or result in an
absurdity; or would be tantamount to a refusal to~correct a
mistake.
Board of Insurance Commissioners of Texas v. Guardian Life Ins. Co. of Texas, 180
S.W.2d 908, 908 (Tex. 1944) (quoting 3 C.J.S., And, 1088).
Here we cannot say that the context and language of the rider requires the
conversion. In fact, we believe the statutory language suggests that the
conjunctive use is required. General statutes and appropriations act riders on the
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Honorable James M. Windham - Page 3 (H-1158)
same subject are & pari materia and must be read together. Jessen Associates,
Inc., v. Bullock, 531 S.W.2d 593, 800 (Tex. 1975). The 1955 statute specifically
provides that the proceeds from the sale of Blue, Ridge Farm will be used for the
purchase of new land. The rider to the Appropriation Act aecifically refers to this
statute and makes the purchase of the new farm conditional on the concurrence of
the Approval Board which is established in the 1955 statute. The Approval Board’s
sole functions are set out in the 1955 legislation and are to approve the sale of the
Blue Ridge Farm and to approve the purchase of new acreage with the proceeds.
When the rider and the 1955 statute are construed together, as they are required to
be, the utilization of the Blue Ridge proceeds is mandated. Additionally, the
budget request submitted by the Texas Department of Corrections to the
Legislature does not indicate that any general revenue appropriation was requested
for purchase of land. Compare pages 358 and 358 with pages 2 through 5, Texas
Department of Corrections Budget Estimates, fiscal years 1978 and 1979 (October,
1978) . We are thus compelled to conclude that the language of the rider requires
that the acreage for a new prison farm be purchased with the~proceeds ,from the
sale of the Blue Ridge Farm and with sufficient general revenue funds to qua1 the
difference between the cost of the new acreage end the receipts from the Blue
Ridge property.
Although the rider refers to purchase of land in West Texas while the statute
limits the purchase to a seventy-five mile radius of Huntsville, this anomalous
result does not indicate that the Legislature intended that the purchase was to be
made solely from general revenue funds. The rider apparently was drafted in the
anticipation that H.B. 1387 would pass the 85th Legislature. That bill would have
amended the 1955 legislation ‘relating to the Blue Ridge, Farm to remove the
seventy-five mile limitation and to alter other provisions relating to the sale of
Blue Ridge Farm and the purchase of a new farm. That bill was passed by the
House on May 23, and was passed by the Senate on second reading on May 30,1977;
however, it was never considered by the Senate on third ‘and final reading. The
Appropriation Bill, on the other hand, was passed by both houses on May 26, 1977.
Thus, it is our conclusions that the language of the appropriation riders
requires that the acreage for a new prison ferm be purchased at least in part with
proceeds from the sale of the Blue Ridge Farm. Since themuse of proceeds from the
sale of Blue Ridge Farm is limited by statute to the purchase of other lands within
the seventy-five mile radius of Huntsville, it is unnecessary to address your second
and third questions.
SUMMARY
A rider to the Texas Department of Corrections eppropri-
ation in the Appropriations Act for fiscal years 1978 and 1979
provides the purchase of acreage for a new prison farm is to
be made primarily with funds from the sale of the Blue
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Rldge Farm. Such funds may be used only for the purchase
ofland in a seventy-five milt radius of Huntsville.
Attcmey General of Texas
APPROVED:
Opinion Commiitee
M