Opinion ID: 2375683
Heading Depth: 1
Heading Rank: 3

Heading: separation of powers and statutory amendments

Text: ¶ 12 The challengers contend, successfully below, that RCW 90.03.015(3), [5] (4), [6] and RCW 90.03.330(3) [7] facially violate separation of powers because they unsettle a decision of this court retroactively. Specifically, they challenge the 2003 amendments in which the legislature defined municipal water suppliers broadly to include private developers whose projects would provide water to more than 15 houses, RCW 90.03.015(3), (4); provided that under certain circumstances, a municipality's water rights would not be limited to the specified number of service connections or stated population so long as the change is consistent with the approved water system plan among other things, RCW 90.03.260(4), (5); largely made existing water certificates based upon system capacity valid and limited the situations where the Department of Ecology could seek to invalidate a water rights certificate, RCW 90.03.330(2), (3); authorized municipal water suppliers, under certain circumstances, to shift place of use within the boundaries of approved water plans without consulting the Department of Ecology or notifying other water rights' holders, RCW 90.03.386(2); and allowed existing water rights certificates that would now be considered to be for municipal water services to be so amended, RCW 90.03.560. [8] They contend that these provisions change the requirements noted in Theodoratus for private water rights to vest. They claim that the amendments to RCW 90.03.015(3) and (4) define municipal water suppliers so broadly that Theodoratus would now himself qualify as a municipal water supplier. Further, they note that RCW 90.03.330(3) provides that municipal water suppliers who had water rights certificates issued under the former pumps and pipes capacity standard had right[s] in good standing even if those rights would not have vested under Theodoratus. See also CP at 617. The State acknowledges that these amendments have some retroactive effect. Opening Br. of Appellant/Cross-Resp't at 36. ¶ 13 We examined our separation of powers jurisprudence recently in Hale v. Wellpinit School District No. 49, 165 Wash.2d 494, 198 P.3d 1021 (2009). Previously, in McClarty v. Totem Electric, 157 Wash.2d 214, 228, 137 P.3d 844 (2006), we rejected the definition of disability promulgated by the Human Rights Commission in favor of the federal statutory definition. The legislature responded by, for the first time, legislatively defining disability consistent with the Human Rights Commission's earlier attempt, and made that definition retroactive to all claims that accrued prior to McClarty (as well as, of course, all claims accruing after the effective date of the statute). Hale, 165 Wash.2d at 498, 198 P.3d 1021. We upheld the retroactive provision against a separation of powers claim. ¶ 14 In Hale, we began by recognizing the presumption against retroactive application of a statute and the policy behind that presumption. Id. at 507-08, 198 P.3d 1021. Retroactive application of a statute may violate the ex post facto doctrine, id. at 507, 198 P.3d 1021 (citing State v. Schmidt, 143 Wash.2d 658, 672-73, 23 P.3d 462 (2001)), or affect vested rights and violate due process, id. (citing State v. Varga, 151 Wash.2d 179, 195, 86 P.3d 139 (2004)). Retroactive changes in the law alter the status quo in the law upon which people should be able to reasonably rely. Id. Retroactive amendments to the law may violate separation of powers by disturbing judgments, interfering with judicial functions, or cause manifest injustice. Thus, as we observed: The presumption against retroactive application of a statute or amendment `is an essential thread in the mantle of protection that the law affords the individual citizen.' [ State v. ] Cruz, 139 Wash.2d [186,] 190[, 985 P.2d 384 (1999)] (quoting Lynce v. Mathis, 519 U.S. 433, 439, 117 S.Ct. 891, 137 L.Ed.2d 63 (1997)). This presumption `is deeply rooted in our jurisprudence, and embodies a legal doctrine centuries older than our Republic.' Cruz, 139 Wash.2d at 190 [985 P.2d 384] (quoting Lynce, 519 U.S. at 439 [117 S.Ct. 891]). State v. Smith, 144 Wash.2d 665, 673, 30 P.3d 1245, 39 P.3d 294 (2001) (internal quotation marks omitted), superseded by statute, LAWS OF 2002, ch. 107, as recognized in Varga, 151 Wash.2d at 183, 86 P.3d 139. ¶ 15 In Hale, we said that in order to decide whether the retroactive application of a statute violates separation of powers we must determine `whether the activity of one branch threatens the independence or integrity or invades the prerogatives of another.' Hale, 165 Wash.2d at 507, 198 P.3d 1021 (quoting Carrick v. Locke, 125 Wash.2d 129, 135, 882 P.2d 173 (1994) (quoting Zylstra v. Piva, 85 Wash.2d 743, 539 P.2d 823 (1975))). We suggested that legislative intervention to affect the rights of parties in a particular case, would overstep the legislative function. Id. at 509-10, 198 P.3d 1021. Retroactive legislation that interferes with vested rights established by judicial rulings, interferes with a judicial function, or results in manifest injustice or threatens the independence, integrity, or prerogatives of the judicial branch may violate separation of powers. Id. at 507-08, 198 P.3d 1021. ¶ 16 However, in Hale, we also firmly rejected the contention that just because an appellate court's statutory interpretation relates back to the time the statute was originally adopted, any retroactive amendment of that statute violates separation of powers. Id. at 506, 198 P.3d 1021; see also In re Pers. Restraint of Stewart, 115 Wash.App. 319, 75 P.3d 521 (2003). Indeed, it is wholly within the sphere of authority of the legislative branch to make policy, to pass laws, and to amend laws already in effect. Hale, 165 Wash.2d at 509, 198 P.3d 1021. Courts must exercise care not to invade the prerogatives of the legislative branch lest the judicial branch itself violate the doctrine of separation of powers. Co-equal branches must respect one another's independence. In re Salary of Juvenile Dir., 87 Wash.2d 232, 238, 243, 552 P.2d 163 (1976) (citing WILLIAM B. GWYN, THE MEANING OF THE SEPARATION OF POWERS: AN ANALYSIS OF THE DOCTRINE FROM ITS ORIGIN TO THE ADOPTION OF THE UNITED STATES CONSTITUTION 110 (1965)); see also Carrick, 125 Wash.2d at 135, 882 P.2d 173. ¶ 17 Applying these principles to this case, there is no general separation of powers violation caused by the amendments to RCW 90.03.015(3) and (4) and RCW 90.03.330(3). The legislature approached its legislative task both thoughtfully and with deference to this court's construction in Theodoratus. It adopted this court's holding prospectively, RCW 90.03.330(4); it evoked this court's language in stating that the water right represented by a water right certificate issued prior to September 9, 2003, for municipal supply purposes ... is a right in good standing, RCW 90.03.330(3); and it used the fact that this court did not consider issues concerning municipal water suppliers in Theodoratus as an opportunity to secure the rights of some existing water certificate holders, 135 Wash.2d at 594, 957 P.2d 1241. The legislature made no attempt to apply the law to an existing set of facts, affect the rights of parties to the court's judgment, or interfere with any judicial function. Instead, the legislature allowed those who had planned their property development to rely upon the water rights previously approved by the statutorily authorized administrating agency. These amendments do not threaten[ ] the independence or integrity of the judicial branch. Hale, 165 Wash.2d at 510, 198 P.3d 1021. Instead, they work to amend an area of the law subject to ongoing legislative refinement in the face of changing conditions and, like in Hale, working in harmony with its co-equal branch. We stress that Mr. Theodoratus is not a party before us and we leave for another day consideration of any as-applied challenges.