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Publication Open Access Law-Following AI: Designing AI Agents to Obey Human Laws(Fordham Law Review, 2025)Artificial intelligence (AI) companies are working to develop a new type of actor: "AI agents," which we define as AI systems that can perform computer-based tasks as competently as human experts. Expert-level AI agents will likely create enormous economic value but also pose significant risks. Humans use computers to commit crimes, torts, and other violations of the law. As AI agents progress, therefore, they will be increasingly capable of performing actions that would be illegal if performed by humans. Such lawless AI agents could pose a severe risk to human life, liberty, and the rule of law. Designing public policy for AI agents is one of society's most important tasks. With this goal in mind, we argue for a simple claim: in high-stakes deployment settings, such as government, AI agents should be designed to rigorously comply with a broad set of legal requirements, such as core parts of constitutional and criminal law. In other words, AI agents should be loyal to their principals, but only within the bounds of the law: they should be designed to refuse to take illegal actions in the service of their principals. We call such AI agents "Law-Following AIs" (LFAI). The idea of encoding legal constraints into computer systems has a respectable provenance in legal scholarship. But much of the existing scholarship relies on outdated assumptions about the (in)ability of AI systems to reason about and comply with open-textured, natural-language laws. Thus, legal scholars have tended to imagine a process of "hard-coding" a small number of specific legal constraints into AI systems by translating legal texts into formal machine-readable computer code. Existing frontier AI systems, however, are already competent at reading, understanding, and reasoning about natural-language texts, including laws. This development opens new possibilities for their governance. Based on these technical developments, we propose aligning AI systems to a broad suite of existing laws as part of their assimilation into the human legal order. This would require directly imposing legal duties on AI agents. While this would be a significant change to legal ontology, it is both consonant with past evolutions (such as the invention of corporate personhood) and consistent with the emerging safety practices of several leading AI companies. This Article aims to catalyze a field of technical, legal, and policy research to develop the idea of law-following AI more fully. It also aims to flesh out LFAI's implementation so that our society can ensure that widespread adoption of AI agents does not pose an undue risk to human life, liberty, and the rule of law. Our account and defense of law-following AI is only a first step and leaves many important questions unanswered. But if the advent of AI agents is anywhere near as important as the AI industry supposes, then law-following AI may be one of the most neglected and urgent topics in law today, especially in light of increasing governmental adoption of AI.Publication Open Access Administrative Law as a Choice of Business Strategy: Comparing the Industries Who Have Routinely Sued Their Regulators with the Industries Who Rarely Have(George Washington Law Review, 2025)For some large and powerful industries, it has long been normal and even routine for businesses to sue their federal regulator. For other large and powerful industries, it has been rare for the last twenty-five to forty years or more. This variation is enormous yet almost entirely unknown to the literature on administrative law. This Article documents and analyzes this variation in one type of federal regulation: public health and safety. For every major federal health-and-safety regulator, I search dockets to identify every judicial challenge to the agency’s actions brought by the agency’s principal regulated industry—whether by individual companies therein or by trade associations—during the period from 2013 to 2021 and, for several of the agency-industry pairings, for additional time periods extending as far back as the 1980s and as recent as 2024. The pairings covered are the following: the Food Safety and Inspection Service at the U.S. Department of Agriculture and meat and poultry processors; the Food and Drug Administration and drugmakers; the National Highway Traffic Safety Administration and automakers; the Federal Aviation Administration and airlines; the Consumer Product Safety Commission and children’s product companies; the Nuclear Regulatory Commission and nuclear plant operators; the Occupational Safety and Health Administration and employers generally; the Mine Safety and Health Administration and coal mines; the Environmental Protection Agency and power companies; the Federal Motor Carrier Safety Administration and for-hire trucking companies; and the Centers for Medicare and Medicaid Services and hospitals and nursing homes. For each pairing, I use the data on judicial challenges as the starting point for a qualitative discussion of how big or small a role litigation plays in agency-industry interaction. I find that industry judicial challenges tend to be few and marginal when two conditions are met. The first condition is that companies in the industry have a thick relationship with the regulator—that is, each company knows the regulator will be making repeat decisions impacting its business into the indefinite future, so each company has a stake in winning the agency’s trust and goodwill. The second condition is that, with regard to the agency action at issue, industry economic interests are aligned with the mission of the regulator. This is especially the case for agency action that has the official purpose of protecting the health and safety of the industry’s own consumers, as opposed to protecting industry workers or victims of externalities of industry conduct. In protection of consumer health and safety, the industry and the regulator are more likely to view each other as on the “same team,†and industry tends to (1) see the regulator as a source of credible guarantees that help attract business, (2) fear the “bad look†with consumers that conflict with the regulator could cause, and (3) seek influence and leverage over the agency by less open and adversary means than litigation.Publication Open Access Structural Indeterminacy and the Separation of Powers(California Law Review, 2025)Despite ongoing disagreement about how the Constitution allocates powers among the different branches, the two dominant schools of thought in American separation-of-powers debates—formalism and functionalism—agree on three premises: Certain powers inhere in certain government branches, some powers are vested exclusively in one or another branch, and the judiciary is the final arbiter of separation-of-powers disputes. Disagreement is largely about how powers should be parsed and which should be shared. Yet over the long lifespan of our constitutional tradition, momentous doctrinal upheavals are relatively commonplace. This Article describes four tectonic shifts in separation-of-powers doctrine: Founding-era debates about how to define and blend powers, nineteenth-century debates about the constitutionality of the nascent civil service, Lochner-era debates about legislatures’ authority to define and regulate public utilities, and mid-nineteenth-century debates about the sources of international law. The first, which we call the Inherency Theory, assumes that certain powers and functions are vested by force of the Constitution, are core to a single branch, and are discernible by the judiciary. This is a taxonomical theory of how the Constitution allocates powers, and it animates nearly all of today’s separation-of-powers debates. The second, an Antidomination Theory, denies that the words executive, legislative, and judicial imply any new or distinct powers and instead creates formal separation between the three branches based on the procedures federal actors deploy to enact, enforce, and interpret policy. The third, a rights-based Public Utility Theory, distinguishes between a public sphere that is subject to congressional, presidential, and administrative control, and a private sphere that is not. Recently, this public-private distinction has been marshalled to define the judicial power. Historically, however, it was used to deduce a whole panoply of structural limits, including the constitutionality of agency adjudication and deference. And the fourth, a General Law approach, discerns the limits of government power by reference to the eclectic authority of the common law and right reason. Recovering these theories reveals a rich set of tools for resolving interdepartmental disputes, highlights that current receptions of past settlements are nearly unintelligible without understanding the theoretical context in which they emerged, and suggests that, while different theories have risen and fallen, no one theory of separation of powers has been liquidated in our constitutional tradition.Publication Open Access Drug Dealing: Making Public Pharma Work(Washington University Law Review, 2025)The U.S. market for prescription drugs is failing many Americans. Drug prices in the United States are nearly three times higher than in comparable countries, and evidence shows that patients regularly forego essential medicines because they cannot afford them. Additionally, shortages of important medicines are common. In partial response, California recently passed a law to enable public manufacture and distribution of medicines, starting with insulin, a drug needed by many diabetics in the state. Several other states, as well as the federal government, are considering similar action to drive down prices of older drugs and to help resolve shortages. Public production could yield important benefits, but there are legal obstacles to overcome at every step, from developing the product at the bench to getting it to the patient. This Article maps the primary legal and logistical issues facing public pharmaceutical programs-from intellectual property barriers and PBM-driven market manipulation to regulatory hurdles like FDA registration, ERISA preemption, and product liability. We also propose ways to overcome these obstacles. We focus especially on a troubling reality: even if states succeed in producing affordable, highquality public medicines, they may still struggle to get them to the millions of patients who need them. After all, private generic manufacturers already face major obstacles in breaking through distribution bottlenecks to deliver lower-cost options. But states have tools that private firms lack. Armed with legislative, regulatory, and contractual authority, states can encourage-or require-market intermediaries to carry public products, expanding access at scale. In doing so, they may also help dismantle the bottlenecks that constrain private generic competition more broadly.Publication Open Access Self-Determination Beyond the Nation-State(University of the Pacific Law Review, 2025)The article examines the challenges faced by stateless national communities, specifically Palestinians and Kurds, in the context of the nation-state system and explores alternative frameworks for self-determination. It highlights the historical context of nationalism in the Middle East, detailing how the establishment of nation-states has marginalized these groups, leading to ongoing struggles for autonomy and recognition. The authors discuss emerging ideas such as a two-state confederation in Israel-Palestine and the concept of "democratic confederalism" advocated by Kurdish communities, which prioritize local governance and inclusivity over traditional state structures. These alternative models suggest potential pathways for addressing long-standing conflicts and reimagining political organization in a rapidly changing world.
