This document summarizes a presentation about desalination and groundwater regulation in Texas. It discusses the current regulatory framework for groundwater conservation districts (GCDs) and recent legislation regarding brackish groundwater desalination. Key points include: 1) GCDs currently regulate brackish groundwater production but definitions of brackish water vary; 2) Recent bills proposed exempting "brackish production zones" from GCD rules but many argued this could impact freshwater; 3) Stakeholders agree more data and coordination is needed between GCDs, users, and state agencies on desalination and groundwater protection.

1. Desalination: Regulatory
Issues and Perspectives
Stacey A. Steinbach
Texas Alliance of Groundwater Districts
Texas Desal 2013
September 13, 2013
Texas Alliance Of
Groundwater Districts
Texas Alliance Of
Groundwater Districts
texasgroundwater.orgtexasgroundwater.org

2. Texas Alliance Of
Groundwater Districts
Texas Alliance Of
Groundwater Districts
texasgroundwater.orgtexasgroundwater.org
GCD Snapshot
Current Regulatory Framework
Session Wrap Up and Beyond

3. Starting Point: Rule of Capture
• Adopted as Texas law in 1904 East decision
• Landowners have right to capture an unlimited
amount of groundwater beneath their property
• Called “law of non-liability” and “law of the
biggest pump”
• Provides little certainty and protection
Texas Alliance Of
Groundwater Districts
Texas Alliance Of
Groundwater Districts
texasgroundwater.orgtexasgroundwater.org

4. GCD Balancing Test
Texas Alliance Of
Groundwater Districts
Texas Alliance Of
Groundwater Districts
texasgroundwater.orgtexasgroundwater.org
Conservation, preservation,
protection, recharging and
prevention of waste of
groundwater and control of
subsidence
Highest practicable
level of groundwater
production

5. History of GCDs
• 1917: Conservation Amendment to Texas
Constitution (Article XVI, Section 59)
• 1949: Statutory framework for creation of GCDs
• 1997: GCDs are the “State’s preferred method of
groundwater management” (SB 1)
• 2013: 97 confirmed GCDs; 4 awaiting
confirmation; 2 subsidence districts
Texas Alliance Of
Groundwater Districts
Texas Alliance Of
Groundwater Districts
texasgroundwater.orgtexasgroundwater.org

6. Source: John Dupnik, BSEACD

7. New GCDs (83rd Lege)
• Revived GCD: Calhoun County GCD
• New GCDs:
– Reeves County GCD
– Deep East Texas GCD (Shelby, San
Augustine, and Sabine Counties)
Texas Alliance Of
Groundwater Districts
Texas Alliance Of
Groundwater Districts
texasgroundwater.orgtexasgroundwater.org

8. Texas Alliance Of
Groundwater Districts
Texas Alliance Of
Groundwater Districts
texasgroundwater.orgtexasgroundwater.org
GCD Snapshot
Current Regulatory Framework
Session Wrap Up and Beyond

9. “Groundwater”
• Current definition: water percolating below
surface of the earth
• 1994 definition (Chapter 52): water
percolating below the surface of the earth
and that is suitable for agricultural,
gardening, domestic, or stock raising
purposes...
Texas Alliance Of
Groundwater Districts
Texas Alliance Of
Groundwater Districts
texasgroundwater.orgtexasgroundwater.org

10. GCDs and Brackish Groundwater
• GCDs are currently issuing permits for
brackish groundwater production
• Distinction of groundwater based specifically
on TDS level not common (but may be
appropriate in some GCDs)
• DFC-based groundwater models generally do
not distinguish groundwater based on TDS
level (but can)
Texas Alliance Of
Groundwater Districts
Texas Alliance Of
Groundwater Districts
texasgroundwater.orgtexasgroundwater.org

11. GCDs and Brackish Groundwater
GCDs can still incentivize production of high-TDS
or unutilized groundwater through rules
1. Adopt different DFCs for distinct brackish
groundwater zones and work with TWDB to
develop a MAG for those zones
2. Develop, through rulemaking, management
zones for these areas and authorize greater
production than in freshwater areas
Example: BSEACD
Texas Alliance Of
Groundwater Districts
Texas Alliance Of
Groundwater Districts
texasgroundwater.orgtexasgroundwater.org

12. 36.117(d) – Management Zones
For better management of the groundwater resources
located in a GCD or if a GCD determines that conditions
in or use of an aquifer differ substantially from one
geographic area of the GCD to another, the GCD may
adopt different rules for:
1. each aquifer, subdivision of an aquifer, or geologic
strata located in whole or in part within the
boundaries of the GCD; or
2. each geographic area overlying an aquifer or
subdivision of an aquifer located in whole or in part
within the boundaries of the GCD.
Texas Alliance Of
Groundwater Districts
Texas Alliance Of
Groundwater Districts
texasgroundwater.orgtexasgroundwater.org

13. Texas Alliance Of
Groundwater Districts
Texas Alliance Of
Groundwater Districts
texasgroundwater.orgtexasgroundwater.org
GCD Snapshot
Current Regulatory Framework
Session Wrap Up and Beyond

14. Common Goals
• Provide more certainty
• Encourage use of currently
unutilized/undesirable groundwater
• Ensure protection of current and
future sources of groundwater
Texas Alliance Of
Groundwater Districts
Texas Alliance Of
Groundwater Districts
texasgroundwater.orgtexasgroundwater.org

15. TAGD’s Additional Goals
• No one-size-fits-all approach
• Ensure groundwater ownership
implications are considered
• Focus on hydrological connection
to currently utilized groundwater,
not TDS level
Texas Alliance Of
Groundwater Districts
Texas Alliance Of
Groundwater Districts
texasgroundwater.orgtexasgroundwater.org

16. Desalination Legislation
• All or most water in
some GCDs considered
brackish
• Groundwater salinity
falls on a continuum
• Implies brackish
groundwater not
worthy of protection
• Most MAGs do not
distinguish based on TDS
• How to determine TDS?
• Who determines TDS?
• What if the TDS changes?
• “Desirability” or “usability”
of water is not based
solely on TDS
Texas Alliance Of
Groundwater Districts
Texas Alliance Of
Groundwater Districts
texasgroundwater.orgtexasgroundwater.org
Brackish Groundwater ≠ TDS Level

17. 469.5
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´0 100 20050
Miles
Median Recorded TDS
Values in Groundwater Wells
Data Source:
Texas Water Development Board (TWDB) Groundwater Database,
using non-plugged/destroyed wells with a "Withdrawal of Water" well type.
Median TDS (mg/L) by County
500 - 1000
< 500
1000 - 3000
> 3000

18. CSHB 2578
• “Brackish Groundwater Production Zones”
– Identified by TWDB with GCD/stakeholder input
– Must be “sufficiently separated” from groundwater
currently used for water supply
• 30-year permit terms
• Unlimited production unless evidence of
impacts; must get report from TWDB first
Texas Alliance Of
Groundwater Districts
Texas Alliance Of
Groundwater Districts
texasgroundwater.orgtexasgroundwater.org

19. What Next?
• Science, Education, and Science
• GCDs: conduct water quality sampling
and address desal in rules, where
applicable
• Users: talk to your GCD
• Desal stakeholder groups (TWCA, Texas
Desal Association)
• Interim Studies
Texas Alliance Of
Groundwater Districts
Texas Alliance Of
Groundwater Districts
texasgroundwater.orgtexasgroundwater.org

20. Texas Alliance Of
Groundwater Districts
Texas Alliance Of
Groundwater Districts
texasgroundwater.orgtexasgroundwater.org
Questions?
Stacey A. Steinbach
stacey@texasgroundwater.org