ifotmrrbla A. C. Spencer

Executive Directo$ OpLlon No. WW-97 Texas State Soil Caimbrvrtion Board Ro: Jrthe State Board ofWater Temple, Texas, Engineers, under the State Iawr rcguitrd tn approve wawrahed

Dear Mr. 8pePcrr: plans and the,dcstgn and speci**flcatioar** for individwl structures in the pbn 7

With respect to your letter dated March 20. 1957, which wa quota ill part as followa:

“1. If:@Water Control sad Improvement District, organized under Texas Law is co-sponsor and contracting agency. for a,Watershed Protection and Flooklkavkatlon Project 8s rathbkized under Put&c Law ’.564, Ack dftba 83rd Congiebs. es amended under Public Law 1018, Acts of the 

### 84th C,ongrecln, and

*a. &art ofeasements and rights-of-way, contract rdminirtrrtioa at&doperations ’ and matntenance is financid by bonds issued by the district,, or *b, Above costs are financed by contributions to the $istricf by individuals, groups, municipel)ties or counties, or %i Chat of e~semeate akd rights-of-way arid ebntract, administration are d$atcd to the dirrtrki and (ljbonds are issued, or (3) annual kx revenue is used to finance operation ind maintenance costs,

. is tsu State Brprrd ofWater Engineers, under State Laws required to,appk&e watershed plans rnd the design and rpeciNcations for indlviduai structures in the plan?*a. Ifa county serves es co-sponsor and con3tecting agency and

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“a. The county gine’r& funds are used tp pry, : _ coots of easements end rights-of-way, contrnct ad-. minirtratien and operations and maintenance, or “b., &+a1 ad valorem taXfunda ore used for 8bOWcolh, or

“c.. All easemente and rights-of-way ere donM&, wi& the county paying costs ofcontract adminlrtr~tha and apardoa end maintenance, 18the State Board ofWater Engineers, under State Lrr* t*~ulmd to gtp@ve wderrhod plans and the dkei@i ra8 IS(rctficaiions for individua,l structures in the plan? -3. Ifa soil conservation district is sponsor and comtr8etlng l

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‘e.. All costs of easements and rtghts-of-way ~6: donatdd, wid chtrac% .adininistratton and operations and maintenance are financed out of distrtct fundr (notaxes or bonds), or “b, All ofabove costs are donated to the di&rlct, is the Stets Board ofWater Engineers, under State J+we r.eqoired to approve watershed plans and the design and 

### l pecificationo for individual, structures in the plan?

‘Pnbllc Lew 566 as amended by Public Law 1018 #es- &tr thh

’addttlon of~wrter storage apece to flood prrveatten ikroctures, provided, however, that no structures shall &ore more then 25,000 acre-feet and provided that in such casen the Fedare Government will pey the full cost of the structiurr a&lo-d for flood prevention with a muntcipality, individual or 8~~8 peying the additionel coat (including engineering eerytees) ofm$er conservatton capecity. The water user **woutd** secure nec~eoeery weter storage.rights through the $tMr Btprd ofWater Engineers.Jlonorable A. C. Spencer, Page 3(~~-97)

*The above being true:

‘4. What effect would w **&ddWm** of mwatriprrl or irripdion,watw stor88e capreity to a flood wrt~retaxd- I ,. ing structure bavs onthe qua&on ofState Board of **Water** “

. **Engineers ’**  approval of,the over all watershed plan and darfgn ofindividual stiuctusea? 9. Ia,tbs State Board **of**Water gnginesri, requjrad b9 

### lawto **approve** the plan ad drrign of e d,rrtnrgr **project** plmn~d and conatructod by (1) #woktx control and impr@vW mat dlrtrfct, (8) aotl coneerv*ti@n dirtrict, or (3) county, with the technic&l **and**financial **irrirtmtc** oftha Soil Contirva$ton &rvisr furnlrhrd uad8.r Public Law 566, an **anwaded,** when tba eubdivieloa ofStatb Oavernmant furnisher the e8or meats and rights-of-way, contract rdminirtrtitior, l $8rt of construction coats and operatie and mrint*inr %s p*ojecrt?“

. .w,etandrr $& following opinion:

The beata **inquiry** psrtitning to **the**puerthq **pugkd htnw**  **Is --**  what ere~the dutia.i of the Board of **Wadr** 

### Engineerr, h aqsrfairad **by** the Constitution ofTanas end ~Teuas Statutes, relative **to the**  typea **of ntructures**  **compraheaded by**  Public Lawr 568an,d 1018* ?

The title **and**enacting clause of Public kw 566, as amended, * a@pra, la quoted as follow&:

**“ To**  rdthortle the Scerekry ofAgriculture to cooperate with dM.ee and local agencier inthe plannfng and carrying out ofworks ai improvement for roil conBervatide, and for other **purporbs.** “Be it enactad by the Senate andHouse **of Rapre**  aenbtives~ of **the** United States ofAmeric@ in Congrfsa .asremblcd, That erosion, flood water, and sediment **dim** ager in th+ retersbedr ofthe rivers end **streams of** the United States, causing lose of lifa and **damrpo td**  **propartp,** coutitute e menoce to **the** n8ttonal welfare; and that it is tlu **WXASQ** of Congress that the Federal **GOvQrnment should** 

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. ..Honorable A, C. Spencer, Page 4 (WW-97)

, @operate with status and their political subdivisions,

soil or water conservation districts, flood prevention orcontrol districts, and other local public agencies for the purpose ofpreventing such damages and of,furthc7;; tn&the conservation, development,, utilization, a~nddisposal ofwater and thereby ofpreserving and protecting the Batton

’s land and water resources.” (Emphasis supplied) Article 7472t, V.C.S., places certain duttes upon tbe Board of Water Engineers with re,spect to federal projects affecting public waters in Texas. This article provides that the Board shall hold hearings in the same manner as Inthe case ofhearings held on applications for permits to appropriate $tate waters. Indetermining the feasibility ofthe federal project, the Byrd fs required by stat&s to consider the following: (a) Effect ‘ofsuch federal project onwakr users onthe stream: (b) the public intersst to be served;. (c) development of dam sites to the optimum potention for water conservation; (d) integration of such federal project with other water conservatton acttvtties; (e) pro&&ion ofthe State’s interest in the Texas water resources; (f),engiqeer.ing, practicality ’of the f&era1 project, including cost of construction and maintenance.

Tka provtstoas ofArticle 7472e are cumulativa ofother ~statutes relating to public waters tn Texas and provides a particular type of hearing before the Board ofWater Engineers for federal projects affecting such public wators. It does not repeal or modify other statutes placing mandatory duties upen the Board ofWater Engineers. While it is clear that under Subdiviston 6 of the!Ac$ the specific type ofhearing provi,ded inArticle 7472e is not required ofprojsets dev$opad in cooperation with the Secretary ofAgriculture under. the watershed pttikction and flood prevention acts, the subdiviston clearly provides **no** examptfon ofany federal project from the Board.8 jurtsdiction conferred by other akkks. Therefore, an examination ofthe.ae staG rites is ahcasrary to a determination ofyour questions. I BOND ISSUES Except in cases where preliminary bonds are authorized, (Article 7880-~31.;V.C.S..), before bonds are issued, the Board ofWater Engtneera has a statutory duty ofpassing upon plans by (a) water improvement dktrick (Arttcle 7799, V.C.S.); (b)water control and improvement districts (Article 7880-139); and (c) fresh water supply districts (Articles 7936 and 7799). These sktuteolplace a definite responsibility upon the Board to make a thorough.

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Honorable A. C. Spencer, page 5 (WW-97)
iawstigetton ofproposed improvements before apprWk# .baMis. Thk 1s trw wbetbsr the bond proceeds are **used**only **for purchase**  of right-of-way or **fiood** eesements, or for such purports as well as for payment fOr the structures involved. See Hopkins County Levee Improvement District Nc: 1, et al., v. Smith, et al., 266 S.W. 800, error ref. ‘&therefore, except for proper expenditures of preliminary bond funds, in each situstion described in your questions involving the issuance ofbonds by such water districts, coarpliance with statutes requiring Board approval ofplana is **required.**

Counties are giwn statutory ruthorlty to isme bonds for the creation of drainage districts. Article 8097, et seq., V.C.S., **and**the Attorney General is required **to**approve these bonda, Articles Bl32, 6136a, **V.C.S.** Howewr, there is no statutory requtrement that **the** Board **of**Water Engineers approve plans of such districts. APPROPRIATiONS OF WATER Artlclr 7492, V.C.S., providea:

**“ Every**  psraon, association ofpersons, publtc or priwtc corporation, politics1 su~iviston of the Skk, agency ofthe Strte **or** of tlk United States, whmshall, after this Act ,ehail kke effect, desire to acquire the right to appropriate, for the **purposes** skted in this chapter unappropriated **waters of**  **the** Stzta, rhsll, before commencing the construction, enlargement **or** extension of any dam, lake, reservoir or other storage work, or any ditch, canal, intake, head gate, pumping plant or **other** distributing works, or performing any work in connection with t&s storage, taking or diversion ofwater, make an application in writing to the Board for a permit to make such appropriation, #torage or diwraioa.” Article 7500a, V.C.S., provides:

**‘ Anyone**  may construct on his own property a **&m** or reservoir to impound ‘orcontain not to exceed two hundred (800) acre-feet ofwater for domestic end liwstock purposes without the necessity of securing a permit therefor,” Under these statutes a permit from the Boerd of Wakr Engtneeis **b required**  before commencing construction of any itructure to ba utilized in tbs 

## l ppropriatton ofpublic waters for any ofthe beneficial uses outlined in “,;~ t:

.~Rrmarable A. C. Spencer, Page 6 (WW-97)

Arttcie 7470, **V.C.S.,** except for 200 acre-feet **reservoirs** for livestock and * domestic purposes constructed on privats **property. Therefore,**  a determinetion ofwhether the structures contemplated by Public Laws 566 and 1018 aft& an appropriation ofwater is required.

**Even** though these structures are designed to utilize **water** under c.trcumstances which **would** constitute an appropriation of **water** wit&in ths **mean&g** ofthe Texas statute, no appropriative permit is required unless the structure is located on a **“watercourse ”**  as that term is defined by the courts. Turner v. Big Lake Oil Co., 128Ter. 155, 96S.W.2d 221 (1936); Hwfs v. Short, 273 S.W. 785, fer.Ctv.App. (1925). The Supreme Court **of** Texas in the Hadfs v. Short case defiwd a **watercourse ae**  follows:

‘When it is said that a **stream** in order to be e natural **watercourse** towkkh **water** rights attach **must** have bed. banks, a **current of** water, and a **permawnt source**  ofwater snppl7, we have only described in detail such physiographic and meteorolog-1 characteristics as make the use of the stream for irrigatton practicable. When it ts once shown that the **waters** of a **stream** are so confined and persistent intheir **course,** and flow with such freqwncy and volume ,&at it is both practicable and valueble to irrigate therefrom, it is a **stream** to which **w+r** rtgbts attach.”
**As** to the meaning of ***source of**  supply ”, tbe Court atited: “All authorities agree that a current ofwater is necessary, yat the flow ofwater need not be continuous, and the stream **inay be**  **dry** for long pertods oftime.” Generally, if the structure is not located on **a~watercours~e,** and ’ only differed surface waters are involved, no appropriative permit is required to beaeficielly uttlize diffused surface waters. Turner v. Big Lake Oil ~Co.,

Fer a detailed discussion ofthe holding in the Turner case, see Right@ ,‘~ **we Surface**  Waters in Texas, Proceedings, Water Law Conference, June 17-18, 1954. University ofTexas Law School.

**Aa** to structures to be located on “wakrcoursesar tb nec+rLty of **an**appropriative **permit** .depends onanumber **of c,hxunshtce~m**  which must be determined waler the bets **of** each case. Ifthe strwturem te be **coemtracted m&&r**  Public Laws 566and 1018 store water, under conditioas other then tbooe .wmpted by Article 75008, we are **of** the opinion that appropriative **permits -M&O**  **A. C.**  **6pencer, -pa**  **7 (~~-97)**  **i**

lm requtred rince the 

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$orage of wat rconrtttutnr an

## l ~pproprWion*. we qu&e $IuWhlao, Selected Problemr h the Law crfawr Rigbtr in the fert. **k&c, Pub** * **418, U.S.D.A.,**  **at** P. **324:**

*T&e etoragc ofwater IOa means of **mokiq** 

## l prtag flood flew~ ayailablt for late oeason use, when the direct flow of ***&earns** is **usually low,**  **and** of carrying watef aver from pars ofabundant prccipttatton **to** supply the ddficicncies ofsubseqwut draw@ soasone. Itis a **memo** of conservation ofwater 81 well lo l feature ti aood protection; hoace appropriations may be mnde 

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&wage us well as for direct use ofwater. Tbe etorage ta d m,suke a meaaa ,%a an end--&a application of **watar** ta **bene** ficial am. qach **am**the t?rtgWm ofland, ot thaparrtng ofweter area@ a pleat for the pwratlon ofslectriccrlenergy.” !EkaSupreme **Court of**  California has hell that the rtorage of rota? fer ‘ fbod c@ntrOl,,equaliution and stabiliution, offlow **end future**  **uee ”**  

### isl **mong the**  **bftofei** uses ofwater for ahich an

## l pptoptiatton may and muet be made., 13Ca!.Od 4g4, 90Pec,gd 531 (1939). Accord: Moore 140 **Pac.2d 292,**  **802, 22** Cal.2d 725 (1943r;‘--

. C. **Wash.,** 42 Fed.Supp. 459, 468. **Prom bur**  correspoadenca wtth you under the dates, **of April**  **16 rJ**  **19, 1957,**  **we tmderetand** **thet**the **rtrwturor contemptted**  **by Public**  **Lewa** w end 1018are pttmartly flood **water** retarding **rtructurer rether**  **then** rtcraga 

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tructarea befag incapable of storing **more** than 200 **acre-f&d** of -2~ without modtftcation, **and**that ne **we** is **made** ofthe **water** retarded. w wat$r being automatically roleared amrapidly as t&e drum c&awl will **carry** it ~tthout flooding. ‘F & **Accordtng** to Hutchins, Selected Problems la tL I&r ofWater oq~r, a,uchflood water tetirdiu& strwtww do *et inF or&kattky **cantwwpl*tod** by approprtattotn 8trl&oa. 10
*Their purpore is to regulate flood flows, not to **stow** waCt for later use; and whils they necessarily withheld water. )he detention ia for bai,ef periods. Thta ta e benrfictel **purpoea** {nthe interest ofland conservation afid flood **protection, but**  k aat auoh a use ofwater as is ordinarily c~@t#$btsd **by the**  appropriation statutes. The purpose ofthe structure is to bene**fit** the public, and not to acquire an exclusivs right to the flowB~oporabla **A. C.**  Spencer, **Page 8,**  **(WW-97)**
**’** of a ipecific quantity of water **for** the eole uao ofan individual appropriator or group of appropriators. Inthio case, the wata? **is not** **wan&d** at all.’ **An** examination ofArticle 7470indicates no legislative intent &a$ tba retardation of flood flows without any storage or baneficial uaa **for** the purposes stated therain is in@uded withtn the **purpoacs** for which an ‘ appropriativa permit may **and must** **,k** obtainad.

We therefore coaclude that the flood retarding feature of the :~ structures contemplated undtr Public Laws 566and 1016deea not constU~& an appropriation wtthtntba meaning ofthe Texas statute aad thatno **appro** priattw **perm,it** ia nquirad for thieparpose alone.

Our holdiag thatanappropriative **permit is**  **not rtquked**  **for the**  eoas$ructto~ **of** flood tatarding **structures by**  the politldal subdiviabrs **of ke**  8tata auntloaad~‘ln your letter ta **aot to**  **be** ln~rprttad as a holdiaq that no a-r&y **froth** thb Stata t8necessary to obstruct the flow of a public watorcouaa when no appropriation **is effected.**  The public right and d&y to cooserw and develop public **wattrs** vested in the State by the Texas **.COtWitdiO&** Artkle **XVI,** Saction 5,9a,and the Stati’s ownership of **euch waters.,** **Article** 7467,V.C.S.., **miy** well require **that** permission **to obstruct**  **a watercourse**  **be** obtaiaad **from the**  **Stete even**  whm.tttle to then bed **of**the**wattrc.ourse** Lsnot in .thaState. .Ln

this,opialoa we haw.asaumed that the statutory 

### l ntho rtty

older whleh each of the political aubdivisioas menttoaed inyour lettar operates la-’ **cludas** the **authority to**  **obstruct** publtc **watercoursea** for floodcontrolpurpekseei

l-forever, these structures not only **retard** flood flows **~bat are**  designed to provide upto 200acre-foot ofwater’storage ia tba 

### l **edtmentaxy** pool. We ate advised that when the structures are bull& the **uoe**of the sedb mantary pool for livestock arid**domqatic** purposes by the kndowura as wad aa PM for silt storage is contemplated. From what has been raid above it ta apparent that utaderthese ctrcumrtancts an approprtatlva pdrmit is required **unJem***

thewater **storage** provided is excepted **by**Article 75008,V.C.S.. per

### mWtlng tha constructton on one’s own property of a dam or reservoir with capactty up **to** 200 acre-feet **for** iivestock and domestic purposes without an approprtative permit.

The only question concerning the applicatioa oftM8 axamptioo to the circumatanccs outlined tnyour letter relates tothe requiremeet tbait the **dam** or reservoir be iocated on 8neId *own. property. This reqairamant of ownership of the land by the owner ofthe structure necessarily prohibits the location of structures which would otherwise be within the 7500a axtmptioa across streams where the State ofTexas has title to the bed ofthe stream..

,, Honorable A. C. Spencer, Page 9 (WW-97)

The beds of all navigable streams, including those made navigable by virtue ofArttcle 5302, V.C.S., are the proparty **of** the State. Stste of Texas v. Bradford, 121 Tex. 515, 50S.W.2d 1065: Manry v. Robieon, 122Tax. 213, 56S.W,.2d438; Diversion Lake Club v,,Heath, 126Tax. 129, 86 S.W.?d 441. Whethtr the State owns the bed ofthe stream at a particular location under Article 5302 Is determined by whether the stream or tributary tn question has an l vtrage width from cutbank to cutbank ofthirty fctt from its mouth to the location in question. Mot1v. Boyd, 116Tex. 82, 286 S.W. 458; Diversion Lake Club v. Heath, m; Heard V. Town ofRefugio, 129Tex. 349, 103S.W.2d 728; Stste v. Bradford, supra.

Article 5414a, V.C.S., commonly known as the Small A,ct, validated certain pstsnts on lands lying across or **partly** 8cros.s watercourses or nsvigable l trtama by granting and relinquishing certain ltmited rights ,toprevious **patenttoe of**  such lands. Section 2 ofthis Act reads in part: *.

. . provided that aothing in this Act contained shall impair the rights ofthe gsneral public and tba Stste lathe **waters** of streams or thertghtrofripartsn and appropr,isti# owners in the w8k.w of such etreama ,II
, . . . Tht Supreme Court ofTexas in State v. Bradford, m, construes the above quoted rsservation to the Stste and public ofthe waters ofthe streams involved in the Small Act ss including -sll things neceeeary to the practicable and l ubstanttal use of and enjoyment of tk thtngs reserved. It carries with it the power to construct dams or other worka upon **or** across the bad ofthe river in order that tht public might enjoy tha rights ofirrigstion or other **use**ofthe watsrs.Y

In some limttad situations, the State hss title to stream beds which do not meet the test ofArticle 5302. Prior to the enactment in 1837 ofwhat is nowArticle 5302, the Spanish and Mexican laws with respect to **watorcoureee** were in affect. Under these laws the waters of all streams, regardless of their width, were reserved to the State. Heard v. Town of Ret&o, eupra; Ststs v. Bradford, m, at page 1073.

We rtcogniae that it is most difficult in many caioe to dettrmino **whether the**  etraam bad is owned by the State at a particular location, and whothar, therefore, Article 750011 applies; howewr. we undtretand that moat **of** tbaoa flood retarding structures will be built **on** small tributsriee high up intb#wate)ehed.
.Stnce **thh** thirty foot average width test ofArticle 5302 **applies** only from the **mouth** ofthe particular trtbutary tnquestton, the doter**minati?n** may **not** be too complex. Insituation8 wbare tht **stream** bed ir not tha property ofths State. Article 7500s would exempt ths appropriativt permit requirement: (a)where the governmental body owning the structure owns the **property** or has an easement for the etructure, (b) the storage feature ofthe..

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tlonorebb A. C. Spencer, Page 11.(WW-97)

watarshed pXansand the design and spe~ifkatione of individual etructures in such plans where bends are issued by a water ,tmprovement district, water contro&

snd improvement district. or fresh water supply district for purpkcs other thanthose for which preliminary bonds mey be properly iseued. The Board ofWater Eaptneers is not required to approvecounty bondb issued for,creating a drainage dimtrict. . . Very truly **yours,** WILL WILSON Attornev General ofTere

Hb:tiw APPROVED: OPIRIONCOMMITTEE : W.Grrdy Chandler, Chairmen I, Arthur Sendlin **Richard Stone**  B. II. Timmine, **Jr.** BY Noughta Br&e, Jr. Aaaistent

IEVIIEWED FOR THE ATTORNEY GENERAL BY: Gao. P. Blackburn

*Wmtermhad

Protection and Flood Prevention Act (P.L. 566, 83rd Cow.; 69 Stat. 666), as amended by theAct ofAugust 7, 1956, (P.L. 1018, 84th Cw.; 70 Stat. 1088). :

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