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Biodefense and Constitutional Constraints Georgetown University Law Center Scholarship @ GEORGETOWN LAW 2011 Biodefense and Constitutional Constraints Laura K. Donohue Georgetown University Law Center, [email protected] Georgetown Public Law and Legal Theory Research Paper No. 11-96 This paper can be downloaded free of charge from: https://scholarship.law.georgetown.edu/facpub/677 http://ssrn.com/abstract=1882506 4 Nat'l Security & Armed Conflict L. Rev. 82-206 (2014) This open-access article is brought to you by the Georgetown Law Library. Posted with permission of the author. Follow this and additional works at: https://scholarship.law.georgetown.edu/facpub Part of the Constitutional Law Commons, and the Military, War, and Peace Commons BIODEFENSE AND CONSTITUTIONAL CONSTRAINTS Laura K. Donohue* I. INTRODUCTION"""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""" & II. STATE POLICE POWERS AND THE FEDERALIZATION OF U.S. QUARANTINE LAW """"""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""" 2 A. Early Colonial Quarantine Provisions""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""" 3 """"""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""" 4 """""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""&) """"""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""&0 !" #"""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""&1 B. The Revolutionary War and its Aftermath"""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""&4 """""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""'% """""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""'& """""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""'1 ! """"""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""'2 $ """""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""'3 C. Federal Forays """""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""'4 % &'()) (* """""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""(& +&, - """""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""(( D. Shifting Federal Role """"""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""(1 " &# """""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""(3 . " /&01 ) 2"""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""")& % 3 & &01 ) 2 """""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""")& D. Police Powers, Preemption and the Spending Clause"""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""")( E. Contemporary Quarantine Authorities""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""")0 -4 1 ' 5!!"""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""")0 "- 1 , " *) & ' ' """"""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""")3 C. Continued Expansion in the Federal and Military Realm""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""")4 III. THE DEVOLUTION OF QUARANTINE LAW IN THE UNITED KINGDOM """"""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""0& A. Early English Provisions""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""0' B. The Politicization of Quarantine""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""00 C. Constitutional Limits"""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""02 D. Commercial Interests Take Hold"""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""04 E. The Beginning of the End """"""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""1( + ) 6 " &) """"""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""10 7 """"""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""2% F. Rejecting Quarantine: 20th Century """""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""2' G. Current Quarantine Law"""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""2) 4 1 ' 889/*&: """"""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""20 -4 * ;1 <' 889 """""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""21 & ' 88!"""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""22 IV. CONSTITUTIONAL FRAMING"""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""""23 I. INTRODUCTION The United States and United Kingdom both frame the threat posed by pandemic disease and biological weapons as a national security concern. The United States’ most recent National Security Strategy, for instance, released in May 2010, highlights the dangers posed by weapons of mass destruction, pandemic disease, natural disasters, terrorism, transnational crime, and large- * Associate Professor of Law, Georgetown Law. Special thanks to Professors Larry Gostin, John Norton Moore, and Steve Vladeck for their thoughtful and insightful comments on earlier drafts of this article. The text also benefited from participants’ remarks at the Washington D.C. Legal Studies Roundtable, the Georgetown Law Faculty Seminar, and the Potomac Foreign Relations Colloquium. Todd Venie and Laura Bedard at Georgetown Law Library kindly helped to assemble the legal authorities. My appreciation also extends to Churchill College, Cambridge University, for extending me a Fellowship, in the course of which I completed the research on the history of British quarantine provisions and the evolution of Britain’s biological weapons program. 1 Electronic copy available at: http://ssrn.com/abstract=1882506 scale cyber attacks.1 The United Kingdom’s first National Security Strategy, released in March 2008, similarly recognizes that the Cold War threat has been replaced by concerns about “international terrorism, weapons of mass destruction, conflicts and failed states, pandemics, and trans-national crime.”2 The Cabinet Office explains, Over recent decades, our view of national security has broadened to include threats to individual citizens and to our way of life, as well as to the integrity and interests of the state. That is why this strategy deals with trans- national crime, pandemics and flooding – not part of the traditional idea of national security, but clearly
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