Opinion ID: 1275766
Heading Depth: 1
Heading Rank: 7

Heading: Progressive Growth Doctrine

Text: Western water law recognizes that future intended use, rather than past actual use, may be the applicable measurement in those cases where a landowner has a tract of land of a definite size and knows he will require water for the entire tract but is still in the process of bringing the parcel into development. Such is known as the gradual or progressive growth doctrine. This doctrine contemplates the landowner will develop the land upon assurances in the meantime that he will have water available once the development is complete. In such case he will have a guaranteed water right in the future intended use. The New Mexico high court recently explained: [W]hile in mining a fixed amount [of water] may usually be sufficient from the start for all purposes, in irrigation of newly settled land it will not. The need for water grows as the area cultivated grows. The settler can cultivate, perhaps, only a few acres the first year; but he does everything with a view to later expansion. As is said in one case, it is reasonable to suppose that reclamation of the entire area owned at the time of diversion is contemplated. Before his larger acreage is cleared and planted, however (which may take several years), other claimants to the use of the water have arrived. Does the law allow the former to continue increasing his use in the face of these later claimants? It seems well settled that such is the rule. The amount used need not be fixed, constant quantity.... State ex rel. State Eng'r v. Crider, 78 N.M. 312, 315, 431 P.2d 45, 48 (1967) (quoting 1 Samuel Charles Wiel, Water Rights in the Western States § 483 (3d ed.1911)). The Montana Supreme Court similarly held It is not requisite that the water appropriated be made immediately to the full extent of the needs of the appropriator. It may be prospective and contemplated, provided there is a present ownership or possessory right to the lands upon which it is to be applied, coupled with a bona fide intention to use the water, and provided that the appropriator proceeds with due diligence to apply the water to his needs. St. Onge v. Blakely, 76 Mont. 1, 23, 245 P. 532 (1926). See also 1 Wells A. Hutchins, Water Rights Laws in the Nineteen Western States 377-79 (1971) (describing doctrine of gradual or progressive development whereby one's water right is not necessarily confined to the quantity actually applied at the time the appropriation is made but rather may include intended future growth). While most cases recognizing this approach have been agricultural ones, the approach is not limited thereto. See Wiel § 483, at 513. Where the progressive growth doctrine applies the landowner must physically manifest his intent to make the future appropriation. One obvious and acceptable method of doing so is to construct a water distribution system sufficient to service the entire tract: the pumps and pipes approach. As the Ninth Circuit explained, when this doctrine applies, if the water is used for the purpose of irrigating lands owned by the appropriator, the right is not confined to the amount of water used at the time the appropriation is made. He would be entitled, not only to his needs and necessities at that time, but to such other and further amount of water, within the capacity of his ditch, as would be required for the future improvement and extended cultivation of his lands.... Hewitt v. Story, 64 F. 510, 514 (9th Cir.1894) (emphasis added). We, too, have recognized the vitality of this doctrine. For example, in In re Water Rights in Alpowa Creek, 129 Wash. 9, 13-15, 224 P. 29 (1924) the landowner owned 340 acres and installed an irrigation system to irrigate the entire tract even though he initially cultivated only 12 acres. This court allowed a water right for irrigation of the full 340 acres held by landowner. The court noted [a]n appropriation of water consists of an intention to appropriate followed by a reasonable diligence in applying the water to a beneficial use.... The law does not require an immediate use. Id. at 13-15, 224 P. 29 (citations omitted). See also In re Waters of Doan Creek, 125 Wash. 14, 25, 215 P. 343 (1923) (applying gradual growth doctrine); Thorp v. McBride, 75 Wash. 466, 469-70, 135 P. 228 (1913) (acknowledging gradual growth doctrine but refusing to apply it because the alleged growth is too remote, speculative, and fanciful). Not surprisingly the doctrine is consistent with the wording of our statute which, as discussed above, allows an appropriation to be perfected by construction of a water delivery system. Indeed, the facts of the present case provide an ideal situation in which to apply the gradual growth doctrine. Like the farmers in the cases cited above, Theodoratus owns a precise amount of land which he intends to bring into use, although by necessity the raw land is first partitioned by platting, and then served by utilities (including water) before houses may be constructed. As in the cases cited above, it is reasonable to judge Theodoratus' water right, not by any past actual use, but rather by the amount of his intended future use as measured by the costly system of wells and pipes he has constructed. The capacity of his system is the modern day equivalent to the capacity of his ditch. Hewitt, 64 F. at 514. However, the majority again disregards the relevant authority.