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Global and US Water Law and Sustainability: The Tragedy of the Commons and the Public Trust Doctrine

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Abstract

This chapter explores some of the theoretical foundations that underlie the governance of the production of seafood. It focuses on the theoretical problem at the heart of how to regulate oceans and other common areas: how to avoid the so-called “tragedy of the commons.” It focuses on the two juxtaposing types of public and private property regimes that have been erected to prevent such a tragedy. The former embraces the concept known as the Public Trust Doctrine. The latter type, private-property or “market-based” regimes, are exemplified by Individual Fishing Quotas, (also known as Individual Trading Quotas) and aquaculture, both of which are explored more in-depth in other chapters. Not left unexplored is critical literature indicating that the “tragedy of the commons” may be far too simplistic a model on which to base regulatory regimes.

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Notes

  1. 1.

    Black’s (2009), p. 1232.

  2. 2.

    For a discussion of the concept’s disputed origins, see Duncan (2002), n. 1. See Osherenko (2006), p. 331, for a discussion of the four categories: possession, use, exclusion, and disposition.

  3. 3.

    Osherenko (2006), pp. 332–333, citing Osherenko (1995), pp. 1086–1087.

  4. 4.

    Id.

  5. 5.

    Id.

  6. 6.

    Id.

  7. 7.

    Black’s (2009), p. 1286.

  8. 8.

    The first three are actually subcategories of a broader category of property, “res extra patrimonium,” which are things owned by no individual in particular. Blumm and Ritchie (2005a), p. 677, citing Buckland (1963); Wise 503, 508 (1996).

  9. 9.

    Buck (1998), p. 4.

  10. 10.

    Id.; Blumm and Ritchie (2005a), p. 677, citing J. Inst. 2.1.2; Dig. 1.8.5; Sohm (1907), p. 303–304.

  11. 11.

    Buck (1998), p. 4.

  12. 12.

    Gorina-Ysern (2004), p. 665, citing Fenn (1926), pp. 47, 52–53. This is also the basis for “the capture doctrine” which U.S. first-year law students are often taught through the case Pierson v. Post. See id. Some have interpreted this concept and used the term more broadly to mean “incapable of appropriation in the form of private ownership,” which is a definition that overlaps with property that is subject of appropriation by States such as res publicae, res universalis, and res communes. Gorina-Ysern (2004), p. 655.

  13. 13.

    Blumm and Ritchie (2005a), p. 677, citing Wise (1996), p. 503, 508; Sohm (1907), pp. 303–304.

  14. 14.

    Buck (1998), p. 4. Observers have pointed out the limitations of this categorical approach, as it does encapsulate the nature of the resource, the domain it is found, and how it is used. Other observers suggest that a better way to categorize the resources is by its multiple attributes. Buck (1998), p. 3. And some of these observers have noted that the most important characteristics for categorizing commons is the feasibility of excluding others from the resource and the degree to which one’s use can diminish the amount left for others. Id.

  15. 15.

    Buck (1998), p. 76.

  16. 16.

    Id.

  17. 17.

    Blumm and Ritchie (2005a), p. 678, citing Wise, p. 503.

  18. 18.

    Block-Lieb (1993).

  19. 19.

    These two characteristics: (1) that it is difficult to exclude other potential users and (2) the resource is finite and extractable by one to the detriment of other potential users are what turns simple communal property into what is called a “common-pool resource” which is subject to the tragedy of the commons of which Hardin and Gordon speak. See Buck (1998), p. 4; National Research Council (1999), p. 39.

  20. 20.

    Ostrom (1990), p. 2.

  21. 21.

    Id. p. 3.

  22. 22.

    id.

  23. 23.

    Gordon (1954), p. 130.

  24. 24.

    National Research Council (1999), p. 21.

  25. 25.

    Id. p. 22.

  26. 26.

    Gordon (1954), p. 131, 133, 141.

  27. 27.

    Turnipseed et al. (2009), pp. 5–7.

  28. 28.

    Id. p. 13.

  29. 29.

    Food and Agricultural Organization (2012), pp. 11, 13, 53.

  30. 30.

    Id.

  31. 31.

    Id. p. 12.

  32. 32.

    Id.

  33. 33.

    Id.

  34. 34.

    Ostrom (1990), pp. 9–10.

  35. 35.

    50 C.F.R. § 600.310(f)(1)-(7) (2014).

  36. 36.

    Id. § 600.310(g)(1)-(3).

  37. 37.

    See Ostrom (1990), pp. 12–13.

  38. 38.

    Osherenko, p. 329, citing Demsetz (1967), p. 354.

  39. 39.

    Thompson (2000), p. 244.

  40. 40.

    Rieser (1999), p. 397.

  41. 41.

    As law professor Hirokawa puts it “By operating as a condition precedent to both ownership of land and its use, the public trust doctrine intervenes in capture scenarios to prevent common resources from consumption, transformation, or other capture-like consequences of privatization.” Hirokawa (2010), p. 212.

  42. 42.

    See, e.g., Professor Rieser’s discussion of IFQs in “The Ecosystem Approach: New Departures For Land And Water: Fisheries Management: Property Rights and Ecosystem Management in U.S. Fisheries: Contracting for the Commons?” Rieser (1997), pp. 818–820.

  43. 43.

    Ostrom (1990), p. 14, 21; Rieser (1999), p. 400. For more on the Ostrom’s Nobel Prize, see http://www.nobelprize.org/nobel_prizes/economic-sciences/laureates/2009/ostrom-facts.html, last visited Apr. 4, 2014.

  44. 44.

    Rieser (1999), p. 402.

  45. 45.

    Macinko and Bromley (2004), pp. 650–654; Rieser (1999), p. 399, citing Bromley (1991), p. 30.

  46. 46.

    Macinko and Bromley (2004), pp. 650–654.

  47. 47.

    Id.

  48. 48.

    In their symposium article “Internationalizing the Public Trust Doctrine: Natural Law and Constitutional and Statutory Approaches to Fulfilling the Saxion Vision,” Professor Michael C. Blumm and Rachel D. Guthrie outline the importance of the doctrine in the countries on four continents India, Pakistan, the Philippines, Uganda, Kenya, Nigeria, South Africa, Brazil, Ecuador, and Canada. Blumm and Guthrie (2012).

  49. 49.

    Turnipseed et al. (2009), p. 10, citing Wilkinson (1989), pp. 428–430; Deveney (1976).

  50. 50.

    Lazarus (1986), p. 634; id. citing Deveney (1976), p. 17, 29.

  51. 51.

    Turnipseed et al. (2009), pp. 10–11.

  52. 52.

    Blumm and Ritchie (2005b), p. 341, citing Sax (1970).

  53. 53.

    National Research Council (1999), p. 49.

  54. 54.

    Id.

  55. 55.

    Ill. Cent. R.R. Co. v. Ill., 146 U.S. 387, 453–454 (1892).

  56. 56.

    Lazarus (1986), pp. 641–642.

  57. 57.

    Osherenko (2006), p. 362.

  58. 58.

    Sax (1970), p. 477; id. p. 367.

  59. 59.

    National Research Council (1999), p. 42.

  60. 60.

    Geer v. Connecticut, 161 U.S. 519 (1895).

  61. 61.

    Id. p. 521.

  62. 62.

    Id. p. 522.

  63. 63.

    Id.

  64. 64.

    Id. p. 527 (quoting 2 Blackstone Commentaries 410).

  65. 65.

    Id. p. 534.

  66. 66.

    See Mo. v. Holland, 252 U.S. 416, 434 (1920) (calling the state’s claim of title a “slender reed” because “[w]ild birds are not in the possession of anyone; and possession is the beginning of ownership”).

  67. 67.

    See Toomer v. Witsell, 334 U.S. 385, 401–402 (1948).

  68. 68.

    See Douglas v. Seacoast Prods., Inc., 431 U.S. 265, 283 (1977).

  69. 69.

    Hughes v. Oklahoma, 441 U.S. 322, 335 (1979). For an in-depth treatment of these cases and the demise of Geer, see Macinko and Bromley (2004), pp. 631–634.

  70. 70.

    National Research Council (1999), p. 42.

  71. 71.

    See Babcock (2007). And this concept has been bolstered by a number of state court decisions. National Research Council (1999), p. 42. Indeed, Justice Burger explained in his concurring opinion in Baldwin v. Fish & Game Comm’n: “A State does not ‘own’ wild birds and animals in the same way that it may own other natural resources such as land, oil, or timber. But, as . . . the doctrine is not completely obsolete. It manifests the State’s special interest in regulating and preserving wildlife for the benefit of its citizens.” 436 U.S. 371, 392 (1978).

  72. 72.

    And, in fact, “absent federal-state conflict, it continues to endure today, as virtually all states claim ownership of wildlife in trust for their citizens.” Blumm and Ritchie 2005a, p. 676.

  73. 73.

    National Research Council (1999), p. 43.

  74. 74.

    Turnipseed et al. (2009), p. 1.

  75. 75.

    Id. p. 8.

  76. 76.

    See, e.g., Martin v. Lessee of Waddell, 41 U.S. 367, 416 (1842); Arnold v. Mundy, 6 N.J.L. 1, 71, 78 (Sup. Ct. 1821); Shively v. Bowlby, 152 U.S. 1, 57 (1894).

  77. 77.

    Idaho v. Coeur D’Alene Tribe, 521 U.S. 285 (1997).

  78. 78.

    Id.

  79. 79.

    Id. p. 286.

  80. 80.

    Id.

  81. 81.

    But see Lynch (2007), arguing that unlike state waters, the EEZ has traditionally been treated as a global commons and thus should be treated as res nullius.

  82. 82.

    48 Fed. Reg. 10,605 (March 14, 1983).

  83. 83.

    16 U.S.C. § 1801(b)(1).

  84. 84.

    See Turnipseed et al. (2009), pp. 34–40.

  85. 85.

    National Research Council (1999), p. 42.

  86. 86.

    Shively v. Bowlby, 152 U.S. at 57.

  87. 87.

    United States v. California, 332 U.S. 19, 40 (1947).

  88. 88.

    In Re Steuart Transportation Co., 495 F. Supp. 38, 40 (E.D. Va. 1980) (emphasis added).

  89. 89.

    United States v. 1.58 Acres of Land, 523 F. Supp. 120, 124 (D. Mass. 1981).

  90. 90.

    United States v. Ross, No. CR. 11-30101-MAM, 2012 U.S. Dist. LEXIS 146285, at *5-6 (D.S.D. Oct. 10, 2012) (footnotes omitted). See also United States v. Burlington N. R.R. Co., 710 F. Supp. 1286, 1287 (D. Neb. 1989) (“In view of this trust position, and its accompanying obligations, it appears that the United States . . . can maintain an action to recover for damages to its public lands and the natural resources on them, which in this action would encompass the destroyed wildlife.”).

  91. 91.

    PPL Mont., LLC v. Montana, 132 S. Ct. 1215, 1225 (2012).

  92. 92.

    Id.

  93. 93.

    Id. at 1228.

  94. 94.

    Id. at 1234.

  95. 95.

    Id. at 1235.

  96. 96.

    See, e.g., Alec L. v. Jackson, 863 F. Supp. 2d 11, 15 (D.D.C. 2012), aff'd, 561 Fed. Appx. 7 (D.C. Cir. 2014). The courts found that the plaintiffs could not invoke federal subject matter jurisdiction for a claim against Defendant EPA for failing to reduce greenhouse gases in violation of the Public Trust Doctrine, as it was foreclosed by the PPL decision, which determined that it was a state law doctrine.

  97. 97.

    Id.

  98. 98.

    Accord Adler (2013), p. 1706 n. 14. As law professor Adler remarks “In PPL Montana, the Supreme Court reiterated earlier holdings that federal law controls the navigability for title test for purposes of the equal footing doctrine, but that state law governs the scope of the public trust doctrine within individual states.”

  99. 99.

    Since the U.S. Supreme Court’s Erie R.R. v. Tompkins, 304 U.S. 64, 78 (1938) decision, it has been accepted that federal common law must be derived from a federal source of positive law, such as the Constitution or a statute. Chase at pp. 113, 138, 162 (2010). The PPL decision terminates the argument that the doctrine has a basis in the U.S. Constitution’s Equal Footing Doctrine, as some say that the Illinois Central decision should be interpreted. See, e.g., id. pp. 140–142 (arguing that that the Illinois Central Court’s articulation of the Public Trust Doctrine was derived from the U.S. Constitution’s Equal Footing Doctrine).

  100. 100.

    Am. Elec. Power Co. v. Connecticut, 131 S. Ct. 2527, 2537 (2011).

  101. 101.

    Id.

  102. 102.

    Pac. Coast Fed’n of Fishermen’s Ass’n v. Locke, No. C 10-04790 CRB, 2011 U.S. Dist. LEXIS 86662, at *52 (N.D. Cal. Aug. 5, 2011).

  103. 103.

    Ill. v. City of Milwaukee, 406 U.S. 91, 102–103 (1972).

  104. 104.

    City of Milwaukee v. Ill., (Milwaukee II) 451 U.S. 304, 318–319, 23 (1981).

  105. 105.

    Am. Elec. Power Co. v. Connecticut, 131 S. Ct. 2527, 2538 (2011) (citing City of Milwaukee v. Ill., 451 U.S. at 324). For a discussion of the interplay between the two City of Milwaukee cases and the American Electric decision, see Winters (2011), p. 382.

  106. 106.

    See Babcock (2007), pp. 60–61, who argues that federal laws involving the management of fish would not displace application of the common law to fish farming. See also, Turnipseed et al. (2009), pp. 48–49, which argues that at, with the EEZ, virtually all of the key prerequisites laid out by the Supreme Court in Texas Indus., Inc. v. Radcliff Materials, Inc., 451 U.S. 630, 640 (1981) exist for when federal courts can create federal common law, except that Congress did not give this power expressly to the courts. See also Michigan v. U.S. Army Corps of Eng’rs, 667 F.3d 765, 769–771 (7th Cir. 2011) (denying that states would likely succeed on their common law nuisance claims against the U.S. Army Corps of Engineers, but assessing a greater likelihood than the District Court did because federal common law can apply where there is an overriding federal interest in the need for a uniform rule of decision, and nuisance law would cover the non-native species that were will migrating into Lake Michigan, even though they were not traditional pollutants.) See United States v. Rainbow Family, 695 F. Supp. 314, 327 (E.D. Tex. 1988) (allowing the federal government to pursue an injunction as a remedy for a common law nuisance claim in lieu of the applicability of its federal permitting scheme).

  107. 107.

    See 50 C.F.R. § 660.25(h)(2)(ii) (2013).

  108. 108.

    Klass (2006), p. 699, citing Delgado (1991), pp. 1212–1218.

  109. 109.

    Ryan (2001), p. 493, citing Lazarus (1986), p. 696.

  110. 110.

    Klass (2006), p. 700, citing Lazarus (1986), pp. 656–715.

  111. 111.

    Id. citing Huffman (1989), pp. 565–568, Smith and Sweeney (2006), pp. 322–341, Thompson Jr. (1990), p. 1449. See also Stevens v. City of Cannon Beach, 510 U.S. 1207, 1212 (1994) (Scalia, J., dissenting).

  112. 112.

    Ryan (2001), p. 492.

  113. 113.

    Id.

  114. 114.

    See, e.g., Turnipseed et al. (2009), pp. 34–40.

  115. 115.

    Id.

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Corrigan, Z. (2016). Global and US Water Law and Sustainability: The Tragedy of the Commons and the Public Trust Doctrine. In: Steier, G., Patel, K. (eds) International Food Law and Policy. Springer, Cham. https://doi.org/10.1007/978-3-319-07542-6_34

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