DEPARTMENTOFNATURALRESOURCESDIVISIONOFWATERRESOURCESPOLICY2010-4BillRitter,Jr.GovernorMikeKingExecutiveDirectorDickWolfe,P.E.Director/StateEngineerCONCERNINGPETITIONSTOTHESTATEENGINEERTOMAKEDETERMINATIONSOFNONTRIBUTARYGROUNDWATERINTHECASEOFAPPLICATIONSFORWELLPERMITSTOBEISSUEDPURSUANTTOSECTION37-90-137(4),C.R.S.BackgroundGroundwaterinColoradoispresumedtobe"tributary,"orhydraulicallyconnectedtosurfacewaterinsuchafashionsoastorequireadministrationwithinthepriorappropriationsysteminconjunctionwithsurfacerights.'ApartyseekingtowithdrawtributarygroundwaterforapplicationtobeneficialusemustfirstobtainagroundwaterwellpermitfromtheStateEngineer2Becausetributarygroundwaterisadministeredwithinthepriorappropriationsystem,apartyapplyingforawellpermittowithdrawgroundwatertributarytoanoverappropriatedsurfacestreammustfirstdemonstratethatalldepletionsresultingfromsuchwithdrawalwillbereplacedpursuanttoanaugmentationplanorsubstitutewatersupplyplan,orotherwisedemonstratethatthewellcanbeoperatedinamannerthatwillnotcauseinjurytovestedwaterrights.3Insomecases,groundwatermayinsteadbe"nontributary,"definedas"thatgroundwater,locatedoutsidetheboundariesofanydesignatedgroundwaterbasinsinexistenceonJanuary1,1985,thewithdrawalofwhichwillnot,withinonehundredyearsofcontinuouswithdrawal,depletetheflowofanaturalstream,includinganaturalstreamasdefinedinsections37-82-101(2)and37-92-102(1)(b),atanannualrate.greaterthanone-tenthofonepercentoftheannualrateofwithdrawal."4Aparty·seekingto.withdrawnontributarygroundwaterforbeneficialusemustobtainawellpermitfrom:the:'StateEngineer.5However,underColoradolaw,groundwaterthathasbeendeterminedtobenontributaryisnotadministeredwithinthepriorappropriationsystem.6Therefore,apartyseekingtoobtainagroundwaterwellpermittowithdrawnontributarygroundwaterisnotrequiredtoobtainanaugmentationplanorsubstitute1SeeSimpsonv.BijouIrrigationCo.,69P.3d50,57n.7(Colo.2003)("Absentashowingtothecontrary,Coloradolawpresumesthat(1)groundwateristributarytothestream,and(2)thatwheresurfacewaterisover-appropriated,groundwaterdepletionsthroughwellpumpingcausesmaterialinjurytoseniorappropriators").2SeeC.R.S.§37-90-103(21)(a);C.R.S.§37-90-137(1).3See,e.g.Simpsonv.Bijou,69P.3dat60-61.4SeeC.R.S.§37-90-103(10.5).Waterusersmustnotethatthisisaunitlessdepletionstandardandrepresentsapercentageofthepumpingnotavolume.TheColoradoRevisedStatutesdonotprovidefororimplyavolumetricamountofdepletionthatisdeminimisand,therefore,indicativeofnontributarywaterSee,e.g.C.R.S.§37-90-103(21)(a);§37-90-137(1);§37-90-137(4).6SeeC.R.S.§37-92-305(11)("Nontributarygroundwatershallnotbeadministeredinaccordancewithpriorityofappropriation").OfficeoftheStateEngineer1313ShennanStreet,Suite818•Denver,CO80203.•Phone:303,866-3581•Fax:303-866-3589www.water.state.co.us·:·'.Policy2010-4Page2DeterminationsofNontributaryGroundWater,37-90-137(4)WellPermittingwatersupplyplan.Becausethedifferingstatutoryrequirementswithrespecttowithdrawaloftributaryandnontributarygroundwateraffecttheoperationofwells,apartywhowillbewithdrawinggroundwaterfromcertainformationsmayrequestadeterminationthatsuchgroundwaterisnontributary.Currently,therearenorules,statutes,orotherlegalapproachestodesignatingareaswithinthestatewheregroundwaterisnontributarywiththeexceptionoftheDenverBasinRules2CCR402-6,whichdelineateareasofnontributarygroundwaterinspecificbedrockaquifers,decreesandwellpermitsissuedforgroundwaterbasedonafindingthatitisnontributary,andproducedgroundwaterthathasbeenfoundtobenontributaryundertheProducedNontributaryGroundWaterRules.Asaresult,requestsfordeterminationsofnontributarygroundwatertypicallyhaverequiredcase-by-caseanalysis.Historically,theStateEngineerhasreviewedrequestsfordeterminationsofnontributarygroundwaterinthecontextofthewellpermitapplicationprocess.Inreviewingapermitapplicationtowithdrawnontributarygroundwater,theStateEngineerhasimposedastrictrequirementthattheapplicantdemonstratethesubjectgroundwatermeetstheobjectivestandardsetforthat37-90-103(10.5)throughanalyticornumericmodeling,orinsomecases,site-specificgeologicevidence.Inthecaseofthe"ComplexArea"oftheDenverBasin,theStateEngineerhasfrequentlyconsideredthenontributarynatureofthebedrockaquifersbasedonlyonexistingwellJoginformationavailableintheStateEngineer:sOffice,withoutanyinformationsubmittedfromanapplicant.-··IftheStateEngineeracceptedthedemonstrationthatthesubjectgroundwaterwasnontributarygroundwater,thegroundwaterwasthendeemedavailableforwithdrawalpursuantto37-90-137(4).Inarrivingatthefinding,theStateEngineer'sOfficewouldeitheraffirmordeterminethesaturatedthicknessandspecificyieldoftheformationthatisthesourceofthegroundwater.However,theStateEngineerhasnotdocumentedaformalprocedureforthereviewofsuchnontributarydeterminations,otherthaninthecontextofchallengestothewellpermittingprocess.BasisforPolicyTheStateEngineerbelievesitisnowbeneficialtoadoptapolicythatestablishesastandardizedprocedureforsubmissionandreviewofrequestsfornontributarygroundwaterdeterminationswhenaccompaniedbyanapplicationforawellpermittobeissuedpursuantto37-90-137(4).AdoptionofsuchapolicyprovidestheStateEngineer,waterusers,andotherpartieswithapublishedprocedureforsubmissionandreviewofrequestsfornontributarygroundwaterdeterminations.TheStateEngineerbelievesthatdocumentingasingleprocedureforprocessingrequestsfornontributarygroundwaterdeterminationswillclarifytheprocessforsubmissionandreviewofsuchdeterminations.StateEngineerPolicyTheStateEngineeradoptsthispolicyprovidingdirectionforrequestsfornontributarygroundwaterdeterminationsforthepurposesofissuingwellpermitspursuantto37-90-137(4)and37-90-137(10).Theprovisionsofthispolicyshallbeeffectiveonthedateofsigning.ThispolicyshallnotbeapplicablefortheDawson,LowerDawson,Denver,Arapahoe,LowerArapahoe,orLaramie-FoxHillsaquifersinthegeographicareasidentifiedintheDenverBasinRules,2CCR402-6.ThispolicyshallalsonotapplytodeterminationsofnontributarygroundwaterforthePolicy2010-4Page3DeterminationsofNontributaryGroundWater,37-90-137(4)WellPermittingpurposesofpermittingwellspursuantto37-90-137(7},whichrequestsareaddressedpursuanttotheProducedNontributaryGroundWaterRules.ObtainingaDeterminationofNontributaryGroundWaterA.SubmittalofPetitionforaDeterminationofNontributaryGroundWaterApartyseekinganontributar'ydetedi1inationforacertainformationunderlyingaparcelofland("Applicant")shallfileapetitionintheformofaletterandaccompanyingprofessionalreporttotheStateEngineer.Thepetitionshallataminimumcontainthefollowing:1.Acompletewellpermitapplicationdemonstratinglandownershiporconsentofthelandowner,2.Informationsufficienttodemonstrate,throughanalyticornumericmodeling,thatthegroundwaterinacertainformationunderlyingthelandthatissubjectoftheapplicationmeetsthenontributarystandard.Inlieuofgroundwatermodeling,theApplicantmayprovidegeologic,hydrologic,andotherinformationsufficienttodemonstratethatthegroundwaterinacertainformationunderlyingthelandthatissubjectoftheapplicationishydraulicallydisconnectedfromallsurfacestreamssuchthattherewillbenodepletionstoanysurfacestreamasaresultofpumping,3.TheApplicant'sdeterminationofthesaturatedthicknessofthewateryieldingformationmaterialsandspecificyieldofthesaturatedzonesofthosematerials.B.NoticeandComment1.ConcurrentwithsubmissionofthepetitiontotheStateEngineer,theApplicantshallfilenoticeofthepetition.ThenoticeshallbesenttoallpartiesontheNotificationList(SWSPNotificationListandtheProducedNontributaryGroundWaterNotificationListorothernotificationlistdevelopedbytheStateEngineerspecificallyforthispurpose)forthewaterdivisioninwhichthesubjectgroundwaterislocatedandpublishedonceeachweekfortwosuccessiveweeksasalegalnoticeintheprimarynewspaperofgeneralcirculationintheaffectedwatersheds.Thenoticeandpublicationshalldescribetheformationsandalegaldescriptionofthegeographicallydelineatedareainwhichthenontributarydeterminationisrequested,andtherequirementsforsubmittingresponsestothepetition.2.PersonsontheNotificationListshallbeprovidednoticerequiredpursuanttothispolicybyeitherfirst-classmailorbyelectronicmail,asindicatedbythesubscribertothelists.3.TheStateEngineershallallow30daysafterthepetitionhasbeennoticedorlastpublished,whicheverislater,foranypersontorespondtothepetition.Apersonmustrespondtothepetitioninwritingeitherbysubmittingcommentsonthepetitionorbyrequestingthatthepetitionbereferredforhearing.ThepersonmuststatethebasisforsucharequestinsufficientdetailtoallowtheStateEngineertodeterminewhether·ahearingisappropriatepriortoanInitialDetermination.TheApplicantorthestaffoftheStateEngineermayalsoreferPolicy2010-4;·.,Page4DeterminationsofNontributaryGroundWaier,37-90-137(4)WellPermittingthepetitionforhearing.If,basedonrequestbyApplicantorstafftheStateEngineerdeterminesahearingisappropriate,heshallscheduleahearingpursuanttotheproceduresdescribedbelow.C.InitialDetermination1.Ifnopersonrequestsahearing,thestaffoftheStateEngineershallevaluatethepetitionandanywrittencomments,andproduceanInitialDeterminationwithrespecttowhetherwaterwithdrawnfromtheformationthatissubjectofthepetitionisnontributary.2.ThestaffoftheStateEngineershallprovideacopyofitsInitialDeterminationtotheApplicant,anypersonwhosubmittedwrittencomments,andanypersonwhorequestedacopyoftheInitialDetermination.IfnopersonobjectstotheInitialDeterminationwithin30days,thestaffoftheStateEngineerwillsubmititsInitialDeterminationtotheStateEngineerforreviewandcertificationasaFinalDecision,asdescribedbelow...·D.Hearing1.IfanypersonobjectstotheInitialDetermination,oriftheStateEngineerhasdeterminedahearingisappropriatebeforeanInitialDetermination,thematterwillbesetforanadjudicatoryhearingbeforetheStateEngineer.ThepersonobjectingmuststateindetailthebasisforsuchanobjectiontotheInitialDetermination.TheStateEngineermaysubmitthemattertoadesignatedHearingOfficerathisdiscretion.2.ThehearingshallbeconductedpursuanttotheDivisionofWaterResourcesProceduralRegulations,2CCR402-5,andapplicableprovisionsoftheStateAdministrativeProcedureAct.TheApplicantshallprovidenoticeofthehearingtoanypersonwhorespondedtothepetition.3.Forpurposesofthehearing,theApplicantshallbeconsideredthepartyrequestingthehearingandtheproponentofthedetermination,andshallhavetheinitialburdenofproof.Anypersonwhorespondedtothepetitionmayparticipateasapartytothehearing.ThestaffoftheStateEngineermayparticipateasaparty.,,4.TheStateEngineermayconsidertheInitialDeterminationofthestaffoftheStateEngineerasevidence;however,thehearingwillbedenovo,basedupontheevidencepresentedatthehearing.E.FinalDecisionIfnohearingisheld,theInitialDeterminationshallbecometheFinalDecisionoftheStateEngineer("FinalDecision")withrespecttotheApplicant'spetition.Iftherehasbeenahearingonthepetition,thedecisionoftheStateEngineershallbecometheFinalDecisionpursuanttoproceduressetforthintheDivisionofWaterResourcesProceduralRegulations,2CCR402-5,andapplicableprovisionsoftheStateAdministrativeProcedureAct.Policy2010-4Page5DeterminationsofNontributaryGroundWater,37-90-137(4)WellPermittingF.EffectofFinalDecisionTheStateEngineermayrelyupontheFinalDecisiontoevaluatewellpermitapplicationssubmittedpursuantto37-90-137(4)and37-90-137(10)towithdrawthewaterunderlyingthelandfromthethatwassubjectofthewellpermitapplicationwherealandowner,orpartywiththelandowner'sconsent,hassubmittedaproperlycompletedwellpermitapplicationfornon-speculativeuses.TheStateEngineermayalsorelyupontheFinalDecisionwhenfilingadeterminationastothefactsofanapplicationtothewatercourt,asrequiredby37-92-302(2)fromthoseformationswithinthegeographicallydelineatedareacoveredbytheFinalDecision.Exceptasdescribedherein,thispolicymaybemodifiedorrevokedonlyinwritingbytheStateEngineer.Approvedthis23t}_day2010.'.