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In short, the public trust doctrine holds that there are some things that belong to all of us, even to our yet-unborn grandkids.
In short, the public trust doctrine holds that there are some things that belong to all of us, even to our yet-unborn grandkids. (Photo: Pavel Vorobyev/iStock)

The Newest Legal Tool to Fight Climate Change Is as Old as Ancient Rome

The public trust doctrine is increasingly invoked by environmental groups seeking sweeping, long-term solutions to problems like global warming, ocean acidification, and destructive resource extraction

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In short, the public trust doctrine holds that there are some things that belong to all of us, even to our yet-unborn grandkids.
(Photo: Pavel Vorobyev/iStock)

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Last week, the highest court in聽Massachusetts聽: it agreed with a lawsuit claiming the state was endangering young people鈥檚 future by dragging its feet on climate change. The court, in backing the adolescent plaintiffs, ordered the state鈥檚聽Department of Environmental Protection to promptly issue regulations that will reduce聽greenhouse gas emissions.

The victory might seem a fluke or聽an outlier. Except it wasn鈥檛. Three weeks before, a judge in Washington 聽to take similar action in response to a lawsuit filed there by another group of young plaintiffs. In doing so, the court became 鈥渢he first court in America to order an agency to regulate carbon聽dioxide emissions,鈥 says Andrea Rodgers, attorney for the group.

These coordinated lawsuits had more in common than a sprinkling of acne. They both invoked something called the public trust doctrine. Remember that phrase. According to environmental attorneys, interest in the public trust is on the rise as environmentalists cast about for ways to do an end聽run around a system that many view today as either too clogged, too co-opted, or too corroded to protect the natural world for future generations. The doctrine could be coming soon to an environmental conflict near you.

鈥淲e鈥檙e asking them to apply ancient law to a modern issue.鈥

Public trust is a pretty simple idea: just as a financial trust has a sworn duty to protect a pot of money for the use of a beneficiary, the public trust is the government鈥檚 obligation to protect, preserve, and regulate the assets we all own together, both now and into the future. The idea is . Sixth-century Roman laws called the Institutes of Justinian declared, 鈥淏y the law of nature, these things are common to mankind鈥攖he air, running water, the sea, and consequently the shores of the sea.鈥 Since then, the doctrine has become established precedent in modern legal systems around the world鈥攊ncluding India, South Africa, and the Philippines鈥攁nd the trust principle is reflected in . It holds that some things belong to all of us, even to our yet-unborn grandkids. And the pact we make with our government when we give it power is that it won鈥檛 take these things from us, but instead will care for them for eternity.

After the founding of the United States, judges adopted many principles, including the public trust,聽from English law into American case law, says Mary Christina Wood, faculty director of the Environmental and Natural Resources Law Program at the University of Oregon School of Law. Another scholar has said that public trust聽is the slate upon which the Constitution is written. Another has opined that the public trust is what separates a country of citizens from one of serfs.

Yet for a long time, the public trust stayed in the background of jurisprudence, surfacing mostly in issues聽about wildlife management and public access to beaches or waterways. The role the doctrine will play in the 21st century, and whether it will live up to environmentalists鈥 hopes, remains to be seen. In addition to the cases in Massachusetts and Washington, more than a dozen others have been tried at the state level,聽where they鈥檝e met with varying success. Meanwhile, a judge in Oregon聽may soon give the green light for聽a federal case invoking聽the doctrine to move forward. If that lawsuit goes to trial, it could represent a landmark moment in the battle against climate change.

鈥淲hen environmental statutes were passed in the 1970s鈥濃攖he Clean Air Act, the Clean Water Act, the Endangered Species Act, the National Environmental Policy Act鈥斺渆veryone thought that the battle was done,鈥 says Wood. 鈥淏ut over time, the statutory schemes have proved to be an abysmal failure.鈥 The agencies have become 鈥渃aptured鈥 by corporate interests, she and others argue. According to Wood, the Bush administration鈥檚 refusal to regulate carbon dioxide emissions even when it knew about the dangers of climate change is a perfect example.

The public trust is the government鈥檚 obligation to protect, preserve, and regulate the assets that we all own together, both now and into the future.

In 2008, Wood unveiled a novel strategy for climate activists to聽use the public trust as a legal tool. She called it 鈥渁tmospheric trust litigation鈥 and began giving dozens of talks about it. Prior to that, the public trust doctrine, when invoked in court at all, usually was seen through the lens of wildlife and access issues. Wood argued that the public trust doesn鈥檛 end at the earth and water, but also includes the atmosphere. And since the government is required to preserve resources for posterity鈥攖oday鈥檚 youth聽and subsequent generations鈥攊t should be legally required to reduce greenhouse gas emissions to ensure a healthful and pleasant environment in the future.

In 2011, environmental attorney Julia Olson formed the Eugene, Oregon鈥揵ased nonprofit 聽to coordinate with and support law firms that, working pro bono, have filed a flurry of lawsuits based on Wood鈥檚 ideas. In all, there have been 18 state and federal climate-change cases with adolescents as plaintiffs. The cases all claim breach of the public trust and try to force states to implement plans for emissions reductions based on science. 鈥淭hey鈥檙e all alleging that their futures are imperiled and that [governments are] violating their public trust rights because government continues to promote the fossil fuels regime that is destroying the climate they need for their survival,鈥 says Wood.

The recent rulings in Massachusetts and Washington are the first big two victories for the young people. Lawsuits are ongoing in Oregon, Colorado, North Carolina, and Pennsylvania, as well as in Uganda, Ukraine, the Philippines, and Pakistan. The group says it is working to file more cases elsewhere.

The cases filed by Our Children鈥檚 Trust aren鈥檛 alone in invoking public trust. In late 2013, the聽Pennsylvania聽Supreme Court decided a case known as Robinson Township. It eventually ruled that several provisions of a law meant to regulate and facilitate fracking violated an amendment in the state constitution that gives citizens a right to clean air, pure water, and conservation of natural resources.

The decision marked the first time the state鈥檚 so-called environmental rights amendment had ever been invoked to find a law unconstitutional, says John Dernbach, a聽distinguished professor of law and director of the at Widener University Commonwealth Law School. It is now widely discussed among environmental attorneys, says Dernbach. Even if a state doesn鈥檛 have a law like Pennsylvania鈥檚, Robinson Township can still be influential, he says, an idea known as 鈥減ersuasive precedent.鈥

The doctrine has cropped up elsewhere, too. In California last November, environmentalists to stop the state from allowing what they called 鈥渆xcessive鈥 sand mining in San Francisco Bay. In 2014, the聽Hawaii聽Supreme Court ruled that a company bottling springwater on the island of Kauai , basing its ruling on the state鈥檚 public trust doctrine, according to the Associated Press. Opponents of a proposed oil terminal on the Pacific Northwest coast are also invoking the doctrine.

鈥淚 expect to see more and more use of the public trust in litigation.鈥

Endangered wildlife may also benefit from the strategy. The public trust doctrine is already being invoked, implicitly and explicitly, in cases related to protecting wolverines in the West and wolves in the upper Midwest, says Adrian Treves, an associate professor at the at the University of Wisconsin鈥揗adison. While the government has long shown a public trust role in managing wildlife鈥攖hink bag limits and hunting seasons鈥攊t has been inconsistent about which animals it protects. For example, while many state agencies guard assets they deem valuable, such as elk, they have frequently ignored or deferred responsibility for the welfare of less popular species like prairie dogs. 鈥淭hose wildlife assets are just as much of the public trust as the ungulates,鈥 says Treves. 鈥淚 expect to see more and more use of the public trust in litigation.鈥

For all this optimism surrounding the doctrine, observers remain skeptical. 鈥淚 think it does have to be tempered with some realism,鈥 says Richard Frank, a professor of environmental practice at UC聽Davis School of Law. Frank cited the recent wave of atmospheric trust lawsuits. 鈥淭here are a number of hurdles and obstacles to applying the public trust doctrine in that context. Most of those suits were not successful.鈥 Indeed, among the lawsuits orchestrated by Our Children鈥檚 Trust in recent years, two states鈥擨owa and Minnesota鈥攄eclined to extend the public trust doctrine to the atmosphere. Several other cases were dismissed on jurisdictional grounds. 聽The U.S. Court of Appeals for the District of Columbia dismissed the first federal court case brought by young people in 2014, concluding there was no federal jurisdiction because the public trust was a matter of state, not federal, law. Early defeats were expected, says Olson. 鈥淚t鈥檚 a novel factual issue, and we鈥檙e asking them to apply ancient law to a modern issue.鈥

But precedent cuts both ways, Frank cautions. Just as a court victory in one state can positively influence other states, losses can have the opposite effect.

Perhaps the most interesting test of the doctrine鈥檚 reach and how it might be applied is a 聽on behalf of 21 young people and climate scientist James Hansen in U.S. District Court in Oregon. As soon as next month, a federal judge will rule whether to let the young plaintiffs鈥 case proceed against President Obama and several federal agencies. In addition to claiming injuries to the youths鈥 constitutional rights, the lawsuit alleges that for a half-century, the federal government knowingly abetted the deterioration of the atmosphere it is responsible for protecting. In breaching this public trust, the government聽has injured today鈥檚 youth聽and tomorrow鈥檚. The lawsuit demands a national plan that will聽reduce greenhouse gas emissions to a level scientists have recommended. The United States still has no such overarching plan.

How effective that novel argument would be is far from clear. Privately, one scholar expressed doubt that such a case could prevail. Still, it鈥檚 very existence would give beleaguered climate activists something to cheer about.

鈥淚t would be,鈥 says Olson, 鈥渢he trial of the century.鈥

Lead Photo: Pavel Vorobyev/iStock

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