In its hunt for critical minerals, the US is misconstruing what is and is not America’s

Americans have a reputation for being bad at world geography, and the current U.S. administration is no exception, particularly when it comes to correctly identifying what is – and is not – part of the United States of America.

President Donald Trump’s April 2025 executive order “unleashing America’s offshore critical minerals” provides an example. It purports to “unleash” seabed minerals both within and far outside U.S. jurisdiction.

The minerals on the U.S. seabed are America’s. The minerals on the international seabed are not “America’s.” The administration plans to authorize companies to mine in international areas, nonetheless.

I have studied the international agreements and customary rules governing the oceans since the Law of the Sea Convention entered into force in 1994. The Trump administration’s attempt to unilaterally exploit the seabed resources of the global commons will severely undermine part of the rules-based international order that the U.S. built and of which it has been the main beneficiary.

The scramble for critical minerals

The U.S. has been trying to secure access to critical minerals that are essential for modern technology. These materials include nickel, manganese and cobalt for large batteries and copper for the power grid. All can be found on land, but some can also be found at the bottom of the sea.

Of particular interest are polymetallic nodules – agglomerations, typically smaller than a potato, containing manganese and other metals and found in the silt of the deep ocean floor. An Australian mining executive described these nodules as “an EV battery in a rock.”

The Clarion Clipperton Zone, in the middle of the Pacific Ocean, contains one of the highest concentrations of polymetallic nodules. But whose nodules are they?

My ocean

In September 1945, President Harry Truman claimed for America a large part of the seabed extending from its shores, areas that, before Truman’s claim, were shared by the international community.

In reaction, countries around the world spent the next five decades hammering out a system to limit how much of the seabed that coastal countries could claim, and establishing rules that would govern the remaining shared areas of the oceans.

The resulting arrangement, finalized in 1994, gives countries that border the ocean authority over the resources in the water and seabed within 200 nautical miles (370 kilometers) of their coasts, known as “exclusive economic zones,” and, for some countries, additional areas of seabed beyond that limit.

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The United States enjoys one of the world’s largest exclusive economic zones today. It includes an area totaling over 4 million square miles (10 million square kilometers) – larger than all 50 U.S. states combined – and an additional nearly 400 million square miles (1 million square kilometers) of seabed extending even farther offshore.

In those areas, the United States controls the exploitation and management of living and nonliving natural resources, including seabed minerals.

Our ocean

But exclusive economic zones were only one part of what the Law of the Sea Convention negotiators called a “package deal.”

The other part of the deal retains the remaining areas – approximately half of the planet’s seabed – for the international community. It’s known as “the Area,” and its resources are considered the common heritage of mankind. To prevent a free-for-all, no single country can authorize mining in the Area. Instead it is managed by the International Seabed Authority for the benefit of humankind as a whole. To date, the ISA has executed 31 contracts with countries and companies to explore the mineral resources in the Area.

One hundred and seventy-one countries have joined the convention so far. However, the United States, despite being one of its primary architects, is the only industrialized nation remaining outside the treaty.

Nonetheless, the U.S. has long considered the treaty to reflect rules of customary international law. Where the Area is concerned, the U.S. respected the terms of the package deal – until now.

‘America’s’ offshore critical minerals

Trump’s offshore mining order relies on a U.S. statute enacted in 1980 as an interim measure pending completion of negotiations related to the Area. It authorized the National Oceanic and Atmospheric Administration to license exploration and permit commercial recovery of polymetallic nodules on the seabed in areas outside U.S. jurisdiction.

When that 1980 statute was enacted, there was a spurt of commercial interest. The U.S. issued four exploration licenses. Two were relinquished in the 1990s. In the 30-plus years since the international community finalized the package deal, even the company holding the two remaining NOAA licenses – Lockheed Martin – has considered them largely worthless unless the U.S. ratifies the Law of the Sea Convention.

That changed in April 2025 when Trump, citing the 1980 U.S. law, ordered the NOAA to “expedite the process for reviewing and issuing seabed mineral exploration licenses and commercial recovery permits in areas beyond national jurisdiction.”

A few days later, Canadian mining firm The Metals Company submitted an application via its wholly-owned subsidiary TMC USA to mine polymetallic nodules in the Area under U.S. unilateral authority. TMC USA touted its application for mining areas in the nodule-rich Clarion Clipperton Zone – in the middle of the Area – as a “world first”.

The International Seabed Authority condemned the move and reminded countries that “unilateral exploitation of resources that belong to no single State but to all of humanity is prohibited.”

Is that legal?

So, does the Trump administration’s plan violate U.S. international obligations?

The answer is maybe.

The U.S. is not a party to the Law of the Sea Convention, so it is not bound by the treaty. But scholars disagree on whether U.S. unilateral mining would violate obligations arising from rules of customary international law.

The United States is not the only player in this game. If any of the 171 countries that have subscribed to the treaty were to participate in or allow their citizens to participate in U.S.-authorized mining activity in the Area, they would violate their treaty obligations. Any other convention partner could bring them before the International Tribunal for the Law of the Sea in Hamburg, Germany.

Canada, home of TMC, could find itself in that position. So could many nations whose citizens or companies have worked with TMC. If those partners continued their work with TMC USA under U.S. authorization, their home countries could be exposed to legal action.

The Area is not a domestic source

In announcing an expedited seabed mining application process in January 2026, NOAA Administrator Neil Jacobs mischaracterized polymetallic nodules in the Area as “a domestic source of critical minerals for the United States.”

To be clear, the United States has critical minerals on its land territory and within its area of exclusive seabed jurisdiction. It is beginning to explore those resources with an eye to possible future mining. These are domestic American sources of critical minerals – they are “America’s.” The minerals in the Area are not.

Yes, America needs critical minerals, but it should not undermine the system of international ocean governance – a system it engineered and from which it benefits perhaps more than any other nation – to get them.