No. 19-11932-FF

IN THE UNITED STATES COURT OF APPEALS

FOR THE ELEVENTH CIRCUIT

–––––––––––––––––––––––––––––––––––––––––––––

FEDERAL TRADE COMMISSION, 

Plaintiff-Appellee,

v. 

SIMPLE HEALTH PLANS, LLC, et al.,

Defendants,

STEVEN J. DORFMAN,

Defendant-Appellant. 

–––––––––––––––––––––––––––––––––––––––––––––

On Appeal from the United States District Court

for the Southern District of Florida

0:18-cv-62593-DPG (Hon. Darrin P. Gayles)

–––––––––––––––––––––––––––––––––––––––––––––

BRIEF OF THE FEDERAL TRADE COMMISSION

–––––––––––––––––––––––––––––––––––––––––––––

ALDEN F. ABBOTT

General Counsel

JOEL MARCUS

Deputy General Counsel

Of Counsel: BRADLEY DAX GROSSMAN

ELIZABETH C. SCOTT Attorney

JAMES H. DAVIS FEDERAL TRADE COMMISSION

JOANNIE WEI 600 Pennsylvania Avenue, N.W. Attorneys Washington, D.C. 20580

FEDERAL TRADE COMMISSION (202) 326-2994

Chicago, Illinois 60604 bgrossman@ftc.gov 

 

Case: 19-11932 Date Filed: 07/24/2019 Page: 1 of 62 
No. 19-11932-FF (11th Cir.) 

Federal Trade Commission v. Steven J. Dorfman 

C1 of 2

Eleventh Circuit Rule 26.1 Certificate of Interested Persons

Akerman LLC – Receiver/Counsel for Receiver

Crespo, Janelly – Counsel for Defendant-Appellant 

Davis, James – FTC Attorney

DLA Piper LLP – Counsel for Defendant-Appellant 

Dorfman, Steven – Defendant-Appellant

Federal Trade Commission – Plaintiff-Appellee 

Gayles, The Hon. Darrin P.

Gershoni, Elan – Counsel for Defendant-Appellant

Goldberg, Michael – Receiver

Grossman, Bradley – FTC Attorney

Health Benefits One LLC – Defendant 

Health Center Management LLC – Defendant 

Innovative Customer Care LLC – Defendant 

Levit, Joan – Counsel for Receiver 

Marcus, Joel – FTC Attorney

O’Quinn, Ryan – Counsel for Defendant-Appellant

Peoples, Gera – Counsel for Receiver

Scott, Elizabeth – FTC Attorney

Senior Benefits One LLC – Defendant 

Case: 19-11932 Date Filed: 07/24/2019 Page: 2 of 62 
No. 19-11932-FF (11th Cir.) 

Federal Trade Commission v. Steven J. Dorfman 

C2 of 2

Simple Health Plans LLC – Defendant 

Simple Insurance Leads LLC – Defendant 

Surgeon, Naim – Counsel for Receiver

Ward, Guy – FTC Attorney

Wei, Joannie – FTC Attorney

The Federal Trade Commission further states that, to the best of its 

knowledge, no publicly traded company or corporation has an interest in the 

outcome of this case or appeal.

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i 

STATEMENT REGARDING ORAL ARGUMENT

Appellant seeks reversal on a single ground that contravenes thirty-five

years of binding circuit precedent. Accordingly, the FTC does not believe that oral 

argument will materially assist the Court in its consideration of this appeal and 

does not request it. 

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ii

TABLE OF CONTENTS

Statement Regarding Oral Argument ......................................................................... i

Table of Authorities..................................................................................................iv

Jurisdictional Statement............................................................................................. 1

Questions Presented ................................................................................................... 1

Statement of the Case................................................................................................. 2

A. Dorfman’s Health Insurance Scam..................................................................... 2

B. The FTC’s Complaint and Request for TRO...................................................... 5

C. The Preliminary Injunction................................................................................. 6

D. Dorfman’s Appeal............................................................................................... 9

Standard of Review.................................................................................................... 9

Summary of Argument .............................................................................................. 9

Argument..................................................................................................................13

I. This Court’s Precedent Directly Forecloses Dorfman’s Claim........................13

II. The Court’s Controlling Precedent Was Correctly Decided ............................18

A. This Court’s Decisions Interpreting Section 13(b) Are Firmly 

Rooted In Supreme Court Precedent............................................................19

B. Congress Did Not Limit The Scope Of Equity Jurisdiction 

Conferred By Section 13(b).........................................................................22

C. This Court Has Interpreted Similar Laws The Same Way ..........................27

III. No Judicial Decisions Have Altered The Binding Precedent 

Interpreting Section 13(b).................................................................................29

A. Graham and Kokesh Do Not Undermine The Court’s Section 

13(b) Precedent ............................................................................................30

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iii

1. Graham and Kokesh expressly state they do not overrule 

existing law authorizing monetary relief. ...........................................30

2. A court of equity may order monetary relief even if it is a 

“penalty” for purposes of a statute of limitations. ..............................33

3. Unlike the remedies at issue in Graham and Kokesh, FTC 

monetary relief is compensatory.........................................................37

B. Meghrig Does Not Undermine Porter Or This Court’s Section 

13(b) Precedents...........................................................................................39

C. Montanile And Great-West Do Not Undermine This Court’s 

Precedent Rejecting Tracing........................................................................41

D. Grupo Mexicano Does Not Undermine The Court’s Section 

13(b) Precedents...........................................................................................46

E. The Seventh Amendment Does Not Apply Here.........................................47

Conclusion ...............................................................................................................48

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iv

TABLE OF AUTHORITIES∗

CASES

AT&T Broadband v. Tech Communications, Inc., 381 

F.3d 1309 (11th Cir. 2004)............................................................................ 28, 29

Atlantic Sounding Co. v Townsend, 496 F.3d 1282 (11th 

Cir. 2007) ...................................................................................................... 11, 29

Bebo v. SEC, 799 F.3d 765 (7th Cir. 2015) .............................................................26

Bonner v. City of Prichard, 661 F.2d 1206 (11th Cir. 

1981).....................................................................................................................28

Brown v. Swann, 35 U.S. 497 (1836).......................................................................19

Camp v. Boyd, 229 U.S. 530 (1913)................................................................. 19, 34

CFTC v. Levy, 541 F.3d 1102 (11th Cir. 2008).......................................................28

CFTC v. Wilshire Investment Management Corp., 531 

F.3d 1339 (11th Cir. 2008)...................................................................................28

Chauffeurs, Teamsters & Helpers, Local No. 391 v. 

Terry, 494 U.S. 558 (1990)..................................................................................35

Cohen v. Office Depot, Inc., 204 F.3d 1069 (11th Cir. 

2000).....................................................................................................................18

Deckert v. Indep. Shares Corp., 311 U.S. 282 (1940)...................................... 46, 47

FTC v. AMG Capital Mgmt. LLC, 910 F.3d 417 (9th Cir. 

2018).....................................................................................................................32

FTC v. Amy Travel Serv., Inc., 875 F.2d 564 (7th Cir. 

1989).....................................................................................................................15

FTC v. Atlantex Assocs., 872 F.2d 966 (11th Cir. 1989).........................................14

FTC v. Bishop, 425 F. Appx. 796 (11th Cir. 2011).................................................15

∗FTC v. Bronson Partners, LLC, 654 F.3d 359 (2d Cir. 

2011).................................................................................................. 15, 16, 41, 45

FTC v. Commerce Planet, Inc., 815 F.3d 593 (9th Cir. 

2016)........................................................................................................ 15, 41, 47 

 

∗ Cases and other authorities principally relied upon are marked with asterisks

Case: 19-11932 Date Filed: 07/24/2019 Page: 7 of 62 
v 

FTC v. Direct Mktg. Concepts, Inc., 624 F.3d 1 (1st Cir. 

2010).....................................................................................................................15

FTC v. Freecom Commc’ns, 401 F.3d 1192 (10th Cir. 

2005).....................................................................................................................15

∗FTC v. Gem Merchandising Corp., 87 F.3d 466 (11th 

Cir. 1996) ................................................................................ 9, 10, 14, 16, 17, 22

FTC v. H.N. Singer, Inc., 668 F.2d 1107 (9th Cir. 1982)........................................16

∗FTC v. IAB Mktg. Assocs., LP, 746 F.3d 1228 (11th Cir. 

2014).................................................................................................... 9, 15, 17, 41

FTC v. Indiana Fed’n of Dentists, 476 U.S. 447 (1986).........................................25

FTC v. Lalonde, 545 F. Appx. 825 (11th Cir. 2013)...............................................15

∗FTC v. Leshin, 719 F.3d 1227 (11th Cir. 2013)........................................ 10, 16, 17 

FTC v. Magazine Sols., 432 F. Appx. 155 (3d Cir. 2011).......................................15

FTC v. Primary Grp., Inc., 713 F. Appx. 805 (11th Cir. 

2017).....................................................................................................................32

FTC v. Ross, 743 F.3d 886 (4th Cir. 2014)..............................................................15

FTC v. Security Rare Coin & Bullion Corp., 931 F.2d 

1312 (8th Cir. 1991)...................................................................................... 15, 16

FTC v. Shire ViroPharma, Inc., 917 F.3d 147 (3d Cir. 

2019).....................................................................................................................25

FTC v. Think Achievement Corp., 312 F.3d 259 (7th Cir. 

2002).....................................................................................................................39

FTC v. Think All Publishing, L.L.C., 564 F. Supp. 2d 663 

(E.D. Tex. 2009)...................................................................................................47

∗FTC v. U.S. Oil & Gas Corp., 748 F.2d 1431 (11th Cir. 

1984).......................................................................................................... 9, 13, 14

FTC v. USA Fin., LLC, 415 F. Appx. 970 (11th Cir. 

2011).....................................................................................................................15

∗FTC v. Wash. Data Res., Inc., 704 F.3d 1323 (11th Cir. 

2013).............................................................................................................. 15, 17

∗FTC v. WV Univ. Mgmt., LLC, 877 F.3d 1234 (11th Cir. 

2017).............................................................................................................. 15, 32

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vi

Great-West Life & Annuity Ins. Co. v. Knudson, 534 U.S. 

204 (2002)......................................................................................... 42, 43, 44, 45

Grupo Mexicano de Desarrollo, S.A. v. Alliance Bond 

Fund, Inc., 527 U.S. 308 (1999) ................................................................... 44, 46

Hard Candy, LLC v. Anastasia Beverly Hills, Inc., 921 

F.3d 1343 (11th Cir. 2019)...................................................................... 36, 45, 47

Hecht Co. v. Bowles, 321 U.S. 321 (1944)..............................................................19

Kansas v. Nebraska, 135 S. Ct. 1042 (2015)............................ 10, 21, 27, 37, 39, 44

Kokesh v. SEC, 137 S. Ct. 1635 (2017).............................. 11, 30, 31, 32, 36, 37, 38

Life & Cas. Ins. Co. of Tenn. v. McCray, 291 U.S. 566 

(1934)...................................................................................................................33

Main Drug, Inc. v. Aetna U.S. Healthcare, Inc., 475 F.3d 

1228 (11th Cir. 2007)...........................................................................................30

McGregor v. Chierico, 206 F.3d 1378 (11th Cir. 2000)..........................................15

Meghrig v. KFC Western, Inc., 516 U.S. 479 (1996)....................................... 39, 40

Merck & Co., Inc. v. Reynolds, 559 U.S. 633 (2010)..............................................23

Mertens v. Hewitt Assocs., 508 U.S. 248 (1993).....................................................44

Mitchell v. Robert DeMario Jewelry, Inc., 361 U.S. 288 

(1960)...................................................................................................... 20, 21, 38

Montanile v. Bd. of Trustees of the Nat’l Elevator Indus. 

Health Benefit Plan, 136 S. Ct. 651 (2016)............................................ 42, 43, 44

Nat'l Federation of Independent Business v. Sebelius, 567 

U.S. 519 (2012)............................................................................................. 33, 34

Pierce v. Underwood, 487 U.S. 552 (1988).............................................................24

∗Porter v. Warner Holding Co., 328 U.S. 395 (1946) ................... 10, 19, 20, 21, 27

 34, 35, 37, 40, 43, 44

Saad v. SEC, 873 F.3d 297 (D.C. Cir. 2017)...........................................................33

SEC v. Banner Fund Int’l, 211 F.3d 602 (D.C. Cir. 2000)......................... 16, 17, 42

SEC v. Blatt, 583 F.2d 1325 (5th Cir. 1978)............................................................28

SEC v. Calvo, 378 F.3d 1211 (11th Cir. 2004)................................................. 28, 32

SEC v. Cavanagh, 445 F.3d 105 (2d Cir. 2006)......................................... 36, 45, 46

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SEC v. ETS Payphones, Inc., 408 F.3d 727 (11th Cir. 

2005).............................................................................................................. 28, 46

SEC v. Graham, 823 F.3d 1357 (11th Cir. 2016)....................................... 11, 30, 31

SEC v. Hall, 759 F. Appx. 877 (11th Cir. 2019) .....................................................32

SEC v. Levin, 849 F.3d 995 (11th Cir. 2017)...........................................................28

SEC v. Monterosso, 756 F.3d 1326 (11th Cir. 2014) ..............................................28

SEC v. Quan, 817 F.3d 583 (8th Cir. 2016).............................................................42

SEC v. Texas Gulf Sulphur Co., 446 F.2d 1301 (2d Cir. 

1971).....................................................................................................................23

SEC v. Warren, 534 F.3d 1368 (11th Cir. 2008).....................................................28

Smith v. GTE Corp., 236 F.3d 1292 (11th Cir. 2001)....................................... 18, 30

Tull v. United States, 481 U.S. 412 (1987)..................................... 12, 21, 34, 35, 47

United States v. Apex Oil Co., 579 F.3d 734 (7th Cir. 

2009).............................................................................................................. 27, 39

United States v. Askins & Miller Orthopaedics, P.A., 924 

F.3d 1348 (11th Cir. 2019)...................................................................................16

United States v. Dyer, 908 F.3d 995 (6th Cir. 2018)...............................................34

United States v. Lane Labs-USA, Inc., 427 F.3d 219 (3d 

Cir. 2005) .............................................................................................................40

United States v. Mozie, 752 F.3d 1271 (11th Cir. 2014).........................................30

United States v. Oakland Cannabis Buyers’ Co-Op., 532 

U.S. 483 (2001)............................................................................................. 39, 40

United States v. Rx Depot, Inc., 438 F.3d 1052 (10th Cir. 

2006).....................................................................................................................40

∗United States v. Steele, 147 F.3d 1316 (11th Cir. 1998) ................................ 10, 18

United States v. Stinson, 729 F. Appx. 891 (11th Cir. 

2018).....................................................................................................................33

Walker v. Armco Steel Corp., 446 U.S. 740 (1980).................................................34

STATUTES

15 U.S.C. § 45(a) ....................................................................................................... 1 

15 U.S.C. § 45(a)(4)(B) ...........................................................................................24

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15 U.S.C. § 45(b).....................................................................................................13

15 U.S.C. § 53(b)............................................................................................ 1, 9, 13

15 U.S.C. § 57b................................................................................................. 10, 22

15 U.S.C. § 57b(a)(2)...............................................................................................25

15 U.S.C. § 57b(b)...................................................................................................15

15 U.S.C. § 57b(c) ...................................................................................................25

15 U.S.C. § 57b(e) ............................................................................................ 11, 26

15 U.S.C. § 78u(d)(1)...............................................................................................27

26 U.S.C. § 7421(a) .................................................................................................33

28 U.S.C. § 1292(a) ................................................................................................... 1 

28 U.S.C. § 1331........................................................................................................ 1 

28 U.S.C. § 1337(a) ................................................................................................... 1 

28 U.S.C. § 1345........................................................................................................ 1 

28 U.S.C. § 2462......................................................................................... 31, 34, 36

29 U.S.C. § 1132(a)(3)...................................................................................... 42, 43

47 U.S.C. § 553(c)(2)(A).........................................................................................29

7 U.S.C. § 13a-1(b)..................................................................................................28

FTC Act Amendments of 1994, Pub. L. No. 103-312, § 

10, 108 Stat. 1691 (Aug. 26, 1994)......................................................................23

U.S. SAFE Web Act of 2006, Pub. L. 109-455, § 3, 120 

Stat. 3372 (Dec. 22, 2006) ...................................................................................24

RULES AND REGULATIONS

Telemarketing Sales Rule, 16 C.F.R. § 310.3............................................................ 5 

OTHER AUTHORITIES

1 Dan B. Dobbs, The Law of Remedies § 2.9(1) (2d ed. 

1993).....................................................................................................................27

3 Spencer W. Symons, Pomeroy’s Equity Jurisprudence

§ 910 (5th ed. 1941).............................................................................................46

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Daniel B. Listwa & Charles Seidell, Note, Penalties in 

Equity: Disgorgement after Kokesh v. SEC, 35 Yale J. 

on Reg. 667 (2018)...............................................................................................35

Donna M. Nagy, The Statutory Authority for CourtOrdered Disgorgement in SEC Enforcement Actions, 

71 SMU L. Rev. 895 (2018) ................................................................................35

Restatement (Third) of Unfair Competition § 37 (Am. 

Law Inst. 1995) ....................................................................................................36

S. Rep. No. 103-130 (Aug. 24, 1993)......................................................................23

S. Rep. No. 93-151 (May 14, 1973).........................................................................23

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JURISDICTIONAL STATEMENT

The district court had jurisdiction under Sections 5(a) and 13(b) of the FTC 

Act, 15 U.S.C. §§ 45(a), 53(b), and 28 U.S.C. §§ 1331, 1337(a), and 1345. The 

district court entered its preliminary injunction on May 14, 2019, and Dorfman 

timely filed his notice of appeal that same day. This Court has jurisdiction under 

28 U.S.C. § 1292(a). 

QUESTIONS PRESENTED 

Appellant, Steven J. Dorfman, defrauded tens of thousands of Americans of 

more than $180 million by selling them worthless indemnity plans marketed as 

comprehensive health insurance. The district court preliminarily enjoined him and 

his companies from continuing their scam and froze their assets to ensure that 

funds are available for victim redress. 

Dorfman does not appeal the district court’s preliminary findings that he 

violated the Federal Trade Commission Act and the Telemarketing Sales Rule or 

its preliminary order to cease those practices. His only claim is that the asset 

freeze should be reversed because the FTC cannot obtain monetary relief for 

consumers. The single question presented is whether Section 13(b) of the FTC 

Act, 15 U.S.C. § 53(b), authorizes the district court to award monetary relief and 

thus to freeze assets to preserve them for such relief. 

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STATEMENT OF THE CASE 

A. Dorfman’s Health Insurance Scam

Dorfman has not challenged any of the district court’s preliminary findings 

of fact. The court determined that Dorfman was the “mastermind” of a “classic 

bait and switch scheme” to deceive people into believing they were enrolling in 

comprehensive health insurance while actually providing them with “practically 

worthless” plans that did not cover their medical bills. D.E.139 (Preliminary 

Injunction) at 1, 9, 21.1

 Dorfman and a network of companies he owned and 

controlled paid Google to steer consumers to his websites when they searched for 

popular terms like “Obama Care.” Id. at 4-5, 21. Dorfman’s sites, operating under 

such domain names as “obamacarequotes.org” and 

“healthinsurance2017deadline.com,” falsely suggested they were selling plans that 

complied with the Affordable Care Act (ACA) and were affiliated with the AARP 

and the Blue Cross Blue Shield Association. Id. at 5-6. The websites proclaimed 

that these plans would “include low co-pays, coverage for hospitalization, and 

emergency room visits” and portrayed Dorfman’s companies as experts in 

government-sponsored insurance who had helped sign “hundreds of thousands of 

consumers” up for Obamacare. Id. at 6. 

 

1

 Because the Appendix is not consecutively paginated, we cite the underlying 

district court record instead. 

Case: 19-11932 Date Filed: 07/24/2019 Page: 14 of 62 
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Consumers who expressed interest were called by a telemarketer who read 

from scripts that Dorfman had personally approved. Id. These scripts were 

designed to give consumers the impression that Dorfman’s coverage was “equal to, 

if not better than, major medical insurance.” Id. at 7. A telemarketer following the 

scripts would congratulate the consumer on being approved for a “health insurance 

plan” and represent that the plan would be “similar” to plans received through an 

employer. Id. In particular, consumers were told that the policy included “a 

prescription drug plan,” “doctor office visits,” “diagnostic testing,” “hospital 

coverage,” and “medical” and “surgical” care that “can be used at virtually ANY 

inpatient or outpatient facility in the NATION.” Id. at 7-8. 

After consumers paid an enrollment fee and the first monthly premium, 

Dorfman’s telemarketers would read them a “Post Close Script.” Id. at 8. That

script explained that the customer would be transferred to a corporate verification 

department, and that some of the information conveyed by that department (i.e., 

the actual terms of the deal) “will not apply to you.” Id. At that point, Dorfman’s 

representatives revealed for the first time that the consumers had actually 

purchased limited benefit plans that were not compliant with the ACA. Id. 

Although those disclosures were recorded, Dorfman’s employees would turn off 

the recording when responding to consumers’ questions. Id. Dorfman’s 

“verification rebuttal” script directed his staff that if the call was no longer being 

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recorded, they should stress that “[t]his is health insurance.” Id. But if the call was 

still being recorded, the script told them to say the opposite. Id.

When Dorfman’s customers complained about their lack of coverage, they 

were “often subjected to additional misrepresentations and delay tactics.” Id. 

Consumers were shuffled between various customer service agents, resulting in 

continued “inadequate coverage, no refund, and lots of frustration.” Id. at 9.

Dorfman’s scheme shattered the lives of many victims. For example, 

Douglas Meeker was told that his vascular surgeon was “in-network,” that his copays would not exceed $50, and that his out-of-pocket expenses would be capped 

at $2,000. Id. at 10. None of this was true. Without Mr. Meeker’s knowledge, 

Dorfman’s representatives actually enrolled him in “a limited benefit plan with 

little coverage,” after which he had a heart attack and was diagnosed with 

lymphoma. Id. He died in 2017 leaving his family stuck with nearly $300,000 in 

medical bills, almost none of which were covered by Dorfman’s plan. Id.

Similarly, Chris Mitchell believed he had purchased an excellent “PPO plan” 

from an “A-rated carrier” that complied with the ACA. Id. at 9. He was told that 

he would have to pay no more than $10 for doctor’s visits and that the plan would 

also cover diagnostic testing, bloodwork, surgeries, and hospital visits. Id. at 9-10. 

Days before Mr. Mitchell went in for life-saving cancer surgery, however, he 

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“learned that his plan did not cover surgeries” and was forced to pay out of pocket. 

Id. at 10. 

Dorfman’s scheme was as lucrative for him as it was devastating for his 

victims. Between 2014 and 2018, his companies reaped approximately $180 

million in commissions reflecting a cut of the monthly “premiums” his customers 

paid for their worthless plans. Id. at 11. 

B. The FTC’s Complaint and Request for TRO 

In October 2018, the FTC sued Dorfman and his businesses, alleging that 

they had violated Section 5(a) of the FTC Act, 15 U.S.C. § 45(a), which prohibits 

unfair and deceptive acts or practices, and Section 310.3 of the FTC’s 

Telemarketing Sales Rule, 16 C.F.R. § 310.3, which prohibits deceptive 

telemarketing practices. D.E.1. 

Upon filing its complaint, the FTC moved ex parte for a temporary 

restraining order and an asset freeze, a temporary receivership, and an order to 

show cause why a preliminary injunction should not issue. D.E.3. The FTC 

submitted evidence showing that Dorfman was spending millions of swindled 

dollars on jewelry, luxury cars, gambling sprees ($368,000 at a single casino), 

nightclub trips ($57,000 from one night’s outing alone), an oceanfront 

condominium, and a lavish wedding on which he spent $133,000 just for flowers. 

D.E.12 at 7, 37; D.E.12-1 at 21-22; D.E.12-7 at 84-90, 130-35. On October 31, 

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2018, the district court issued the TRO, granted the requested asset freeze and 

receivership, and set a hearing on the FTC’s motion for a preliminary injunction. 

D.E.15.2

C. The Preliminary Injunction 

After an evidentiary hearing, the district court issued a 46-page ruling 

granting the preliminary injunction on May 14, 2019. The court found that a 

“preliminary injunction is necessary to protect consumers, prevent future violations 

of the law, protect assets, and to preserve the status quo pending the resolution of 

this litigation.” D.E.139 at 2. 

The court held the FTC was likely to succeed on the merits by proving that 

Dorfman and his companies violated the FTC Act and the TSR. Dorfman’s 

representations were “likely to mislead consumers acting reasonably under the 

circumstances because they provide the net impression that Defendants will 

provide the promised services and results—namely comprehensive health 

insurance and/or ACA-qualified plans.” Id. at 17, 20. The defendants had also 

falsely held themselves out as “experts on, or providers of,” Medicare and ACA 

health insurance policies who were affiliated with the AARP and Blue Cross. Id.

 

2

 Dorfman attempted to appeal the TRO, but this Court dismissed the appeal for 

lack of jurisdiction. Order of Dismissal, FTC v. Dorfman, No. 19-10840 (11th Cir. 

Apr. 16, 2019). 

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at 17. All of these representations were “material” to consumers’ purchasing 

decisions. Id. 

The court also found that the FTC was “likely to succeed in proving that 

Dorfman is individually liable” for the violations. Id. at 21. Dorfman not only 

controlled each of the corporate defendants, but “wrote, reviewed, and approved 

the deceptive sales scripts, [and] trained employees on how to use them.” Id. 

The court preliminarily ordered Dorfman and his companies to cease the 

deceptive practices, finding that they would otherwise “continue misleading other 

consumers acting reasonably under the circumstances.” Id. at 19. The court 

accepted the receiver’s determination that Dorfman’s businesses were “largely 

based on deceiving consumers” and therefore were likely incapable of being turned 

into profitable, law-abiding enterprises. Id. at 22. The court thus rejected

Dorfman’s request to dissolve the receivership, concluding that the receiver was 

needed to “preserve assets and maintain the status quo,” as well as to “determine 

the full extent of Defendants’ deceptive practices, identify the victims of 

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Defendants’ scheme, and prevent further fraudulent practices during the pendency 

of the preliminary injunction.” Id. at 24.3

 

To ensure the availability of funds for monetary relief upon a final judgment, 

the court froze Dorfman’s personal and corporate assets. Id. at 22-24, 26-27. It 

explained that the receiver had located only a small fraction of the $180 million in

ill-gotten commissions. Id. at 22-23. As of the date of the injunction, the receiver 

had secured control of $3.2 million in corporate funds, 13 pieces of jewelry, a Land 

Rover, a Lamborghini, and a Rolls-Royce. Id. at 11. And the court was concerned 

about hiding of assets, given that “Defendants maintain bank accounts in Panama 

and the Dominican Republic to which they could transfer funds in the absence of 

an asset freeze.” Id. at 23. 

Finally, the court rejected Dorfman’s argument that the FTC lacks statutory 

authority to obtain asset freezes. The court cited “long-standing Eleventh Circuit 

precedent [holding] that the FTC may seek disgorgement and restitution,” along 

with pre-trial asset freezes supporting those remedies. See id. at 13-15. 

 

3

 Dorfman attacks the receiver for failing to “raise[] ... factual or legal defenses 

to the FTC Action” on the corporate defendants’ behalf. Br. 5. That is because the 

receiver determined that Dorfman’s businesses were permeated with fraud and 

could not be run lawfully, a finding that Dorfman does not contest on appeal. 

Dorfman’s counsel was free to enter an appearance for the corporate defendants 

and raise objections on their behalf, but he chose not to do so. See D.E.87 (2/22/19 

Hearing Tr.) at 22:18-22:25 (FTC counsel disclaimed any “inten[t] to stand in the 

way of Mr. O’Quinn representing the corporate defendants”). 

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D. Dorfman’s Appeal 

Dorfman challenges none of the district court’s preliminary factual findings 

or behavioral injunctive restrictions. The sole issue presented on appeal is whether 

the district court properly froze Dorfman’s assets pending the outcome of the case. 

That question turns entirely on whether the court will have authority to direct 

monetary relief at the close of the case. 

STANDARD OF REVIEW

The legal question whether the FTC Act authorizes an award of monetary 

relief is reviewed de novo. FTC v. IAB Mktg. Assocs., LP, 746 F.3d 1228, 1232 

(11th Cir. 2014). 

SUMMARY OF ARGUMENT

This Court ruled 35 years ago that Section 13(b) of the FTC Act, 15 U.S.C. § 

53(b), allows a district court to award monetary equitable relief and to freeze assets 

to preserve that relief. FTC v. U.S. Oil & Gas Corp., 748 F.2d 1431, 1433-34 

(11th Cir. 1984). It has reiterated that holding many times since. See, e.g., FTC v. 

Gem Merch. Corp., 87 F.3d 466, 468-70 (11th Cir. 1996); IAB, 746 F.3d at 1234. 

Those decisions are the binding law of this Circuit and conclusively determine the 

outcome of this case. 

1. The Court may summarily affirm without further analysis because it 

has already considered and rejected each of Dorfman’s claims. At least six 

published decisions hold that Section 13(b)’s unqualified grant of statutory power 

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10

to issue a “permanent injunction” carries with it the authority to grant monetary 

relief. The Court has also held that Section 19 of the FTC Act, 15 U.S.C. § 57b, is

not a “clear ... legislative command” that precludes district courts from exercising

“their full range of equitable powers under section 13(b).” Gem Merch., 87 F.3d at 

469-70. And the Court has refused to limit monetary relief to assets specifically 

traceable to the wrongdoing. FTC v. Leshin, 719 F.3d 1227, 1234 (11th Cir. 2013). 

Those decisions are binding. A panel of this Court may not disregard or 

overrule circuit precedent even if the panel thinks it is wrong. United States v. 

Steele, 147 F.3d 1316, 1317-18 (11th Cir. 1998) (en banc). 

2. The Court’s Section 13(b) precedent was correctly decided in any 

event. The decisions follow from Supreme Court cases holding that once “the 

equitable jurisdiction of the court has properly been invoked,” the court has power 

to “award complete relief,” including “the recovery of that which has been illegally 

acquired.” Porter v. Warner Holding Co., 328 U.S. 395, 399 (1946). Dorfman 

claims that Porter is no longer good law, but the Supreme Court relied on it just a 

few years ago to uphold a disgorgement remedy. See Kansas v. Nebraska, 135 S. 

Ct. 1042, 1053, 1057, 1062-63 (2015). 

This Court has correctly determined that Congress did not limit courts’ 

equity jurisdiction under Section 13(b). By the time Congress enacted the statute, 

numerous courts had already applied Porter to hold that a nearly identical statute 

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authorized equitable monetary relief, and it would have expected courts to interpret 

the new FTC Act provision the same way. Since then, Congress has twice ratified 

this Court’s interpretation of Section 13(b), recognizing explicitly that it permits 

courts to award disgorgement and consumer redress. 

The Court has also correctly determined that Section 19 of the FTC Act does 

not limit the relief available under Section 13(b). Congress said so directly when it 

provided that remedies under Section 19 “are in addition to, and not in lieu of, any 

other remedy” and that “[n]othing in this section shall be construed to affect any 

authority of the Commission under any other provision of law.” 15 U.S.C. § 

57b(e). As Congress recognized, the two provisions each serve a distinct function 

in the administration of the FTC Act, and neither one makes the other redundant.

3. No intervening decisions have overturned the Court’s biding precedent. 

Indeed, Dorfman does not claim otherwise; the most he can muster is that the 

“reasoning” of certain recent decisions has weakened them. Br. 36. But reasoning 

alone “is no basis for a panel to depart from [a] prior decision.” Atlantic Sounding 

Co. v Townsend, 496 F.3d 1282, 1284 (11th Cir. 2007). 

a. Even the reasoning of the decisions Dorfman relies on does not call 

precedent on Section 13(b) into question. Both SEC v. Graham, 823 F.3d 1357 

(11th Cir. 2016), and Kokesh v. SEC, 137 S. Ct. 1635 (2017), expressly state that 

they do not cast doubt on decisions recognizing the availability of equitable 

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12

monetary relief. It is hardly surprising that this Court has continued to uphold 

disgorgement awards—including in FTC cases—after Graham and Kokesh. 

More fundamentally, Dorfman is wrong that simply because disgorgement 

can be labeled a “penalty” for purposes of a statute of limitations, that necessarily 

means it is beyond the power of a court of equity. A required payment can 

function as a penalty for some purposes but not others, and the doctrines of equity 

and limitations serve distinct purposes. The Supreme Court has recognized that 

disgorgement is “traditionally considered an equitable remedy” that is unlike “civil 

penalties” that may be awarded only by courts of law. Tull v. United States, 481 

U.S. 412, 423-25 (1987). And in any event, unlike the SEC disgorgement 

remedies in Kokesh and Graham, the frozen assets in this case will be used entirely 

for victim redress and are therefore compensatory.

b. Asset tracing is irrelevant to this appeal, both because such a requirement 

would only apply to a final judgment and because Dorfman does not deny that all 

of the frozen assets here were the fruits of his illegal conduct. Moreover, Dorfman 

does not cite—nor are we aware of—any cases requiring tracing when a public 

agency seeks to enforce its statute to vindicate the public interest. 

Dorfman’s argument that he has a right to a jury trial is premature because 

there has been no trial on the merits and incorrect because the remedies sought in 

this case are equitable in nature. 

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ARGUMENT

I. THIS COURT’S PRECEDENT DIRECTLY FORECLOSES DORFMAN’S 

CLAIM

Dorfman’s argument that the FTC may not secure an asset freeze because it 

lacks statutory authority to obtain monetary relief flatly contradicts decades of 

binding circuit precedent that conclusively resolves this case. The Court should 

summarily affirm the ruling on review.

Section 13(b) of the FTC Act, 15 U.S.C. § 53(b), equips the Commission 

with two basic mechanisms to enforce the law. First, it may file an administrative 

complaint and ask a federal court to issue a “temporary restraining order or 

preliminary injunction” in support of that complaint pending an administrative trial 

and final order. Id.; see also 15 U.S.C. § 45(b). Alternatively, the Commission 

may choose to bring an action directly in federal court and forgo an administrative 

proceeding entirely. See FTC v. U.S. Oil & Gas Corp., 748 F.2d 1431, 1433-34 

(11th Cir. 1984). The “second proviso” of Section 13(b) states, “Provided further, 

That in proper cases the Commission may seek, and after proper proof, the court 

may issue, a permanent injunction.” 15 U.S.C. § 53(b). In this case, the 

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Commission filed suit under that second proviso and the district court entered a 

preliminary injunction and asset freeze pursuant to it.4

 

This Court established 35 years ago in U.S. Oil & Gas that in lawsuits 

seeking a permanent injunction under the second proviso, district courts may 

“exercise the traditional inherent powers of a court of equity,” including by 

“order[ing] restitution and rescission, and ... grant[ing] preliminary relief ancillary 

thereto,” such as a “freeze of assets.” 748 F.2d at 1433-34. That binding decision 

and several others govern this case.

Dorfman’s main argument is that Section 13(b) authorizes “preliminary and 

permanent injunctive relief, nothing less and nothing more,” and thus excludes 

monetary relief by its “unmistakable” “plain text.” Br. 6, 19-24. This Court first 

rejected that claim in U.S. Oil & Gas. It reaffirmed the holding in FTC v. Gem 

Merchandising Corp., 87 F.3d 466 (11th Cir. 1996), explaining that “the 

unqualified grant of statutory authority to issue an injunction under section 13(b) 

carries with it the full range of equitable remedies, including the power to grant 

consumer redress and compel disgorgement of profits.” Id. at 468. The Court has 

 

4

 Dorfman claims the district court violated Section 13(b) when it imposed a 

temporary restraining order without prior notice. Br. 4-5 & n.1. He is wrong: the 

notice requirement pertains only to TROs issued under the first part of the statute 

and not those authorized by the second proviso. This Court has affirmed 

temporary ex parte relief in actions under Section 13(b)’s second proviso. See 

FTC v. Atlantex Assocs., 872 F.2d 966, 970 (11th Cir. 1989). 

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reiterated the same principles many times since then. See FTC v. WV Univ. Mgmt., 

LLC, 877 F.3d 1234, 1239-40 (11th Cir. 2017); FTC v. IAB Mktg. Assocs., LP, 746 

F.3d 1228, 1234 (11th Cir. 2014); FTC v. Wash. Data Res., Inc., 704 F.3d 1323, 

1326-27 (11th Cir. 2013); McGregor v. Chierico, 206 F.3d 1378, 1387 (11th Cir. 

2000).

5

 That precedent controls this case and may not now be disturbed. It was 

also correctly decided, for the reasons discussed in Part II below.

6

 

Dorfman also claims that monetary relief under Section 13(b) is precluded 

by Section 19 of the FTC Act, 15 U.S.C. § 57b(b). The argument is that because 

Section 19 expressly authorizes various forms of monetary relief in some 

instances, Congress could not have intended to authorize the same relief in Section 

13(b). See Br. 3-7, 21-26, 34. Gem Merchandising rejected that contention, too, 

holding instead that Section 19 is not a “clear ... legislative command” precluding 

courts from exercising “their full range of equitable powers under section 13(b).” 

 

5 See also FTC v. Lalonde, 545 F. Appx. 825, 832, 841 (11th Cir. 2013); FTC v. 

Bishop, 425 F. Appx. 796, 797-78 (11th Cir. 2011); FTC v. USA Fin., LLC, 415 F. 

Appx. 970, 976 (11th Cir. 2011). 

6

 To date, eight other circuits have considered the question, and all have ruled 

that Section 13(b) empowers courts to grant equitable monetary relief. See FTC v. 

Commerce Planet, Inc., 815 F.3d 593, 598-99 (9th Cir. 2016); FTC v. Ross, 743 

F.3d 886, 890-91 (4th Cir. 2014); FTC v. Bronson Partners, LLC, 654 F.3d 359, 

365 (2d Cir. 2011); FTC v. Magazine Sols., 432 F. Appx. 155, 158 n.2 (3d Cir. 

2011) (unpublished); FTC v. Direct Mktg. Concepts, Inc., 624 F.3d 1, 15 (1st Cir. 

2010); FTC v. Freecom Commc’ns, 401 F.3d 1192, 1202 n.6 (10th Cir. 2005); FTC 

v. Security Rare Coin & Bullion Corp., 931 F.2d 1312, 1314-15 (8th Cir. 1991); 

FTC v. Amy Travel Serv., Inc., 875 F.2d 564, 571-72 (7th Cir. 1989). 

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87 F.3d at 469-70. Many other courts have reached the same conclusion. See, e.g., 

FTC v. Bronson Partners, LLC, 654 F.3d 359, 366-67 (2d Cir. 2011); FTC v. 

Security Rare Coin & Bullion Corp., 931 F.2d 1312, 1315 (8th Cir. 1991); FTC v. 

H.N. Singer, Inc., 668 F.2d 1107, 1113 (9th Cir. 1982). 

The Court has likewise rejected Dorfman’s claim that any monetary 

recovery must be limited to funds that are “specifically traced to consumers.” Br. 

11-13, 35-36. It has determined to the contrary that a “disgorgement order 

‘establishes a personal liability, which the defendant must satisfy regardless 

whether he retains the ... proceeds of his wrongdoing.’” FTC v. Leshin, 719 F.3d 

1227, 1234 (11th Cir. 2013) (quoting SEC v. Banner Fund Int’l, 211 F.3d 602, 617 

(D.C. Cir. 2000)). That approach is consistent with “[t]he very nature of equitable 

power,” with “its flexible and discretionary nature, its ability to respond to realworld practicalities, and its general aversion to rules that let bad actors capitalize 

on legal technicalities.” United States v. Askins & Miller Orthopaedics, P.A., 924 

F.3d 1348, 1359 (11th Cir. 2019). 

In reaching that determination, the Court recognized that a tracing 

requirement that limited recovery to “the actual assets unjustly received would lead 

to absurd results.” Leshin, 719 F.3d at 1234 (quoting Banner Fund, 211 F.3d at 

617). For example, “a defendant who was careful to spend all the proceeds of his 

fraudulent scheme, while husbanding his other assets, would be immune from an 

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order of disgorgement.” Id. It also would “permit a defendant to retain 

[unlawfully acquired] funds simply by keeping poor records,” Gem Merch., 87 

F.3d at 470, thereby preventing the FTC and the district court from isolating which 

specific assets were tainted by misconduct. Requiring the FTC to trace specific 

assets “would be a monstrous doctrine for it would perpetuate rather than correct 

an inequity.” Leshin, 719 F.3d at 1234 (quoting Banner Fund, 211 F.3d at 617). 

Accordingly, the FTC may recover a defendant’s “net revenue (gross receipts 

minus refunds)” from the wrongdoing, regardless of whether the specific funds can 

be traced to the violations. Wash. Data, 704 F.3d at 1326-27. 

Asset tracing would be especially inappropriate when a district court has 

merely imposed a pre-judgment asset freeze pending trial and a final judgment. As 

this Court has explained, “[t]he FTC’s burden of proof in the asset-freeze context 

is relatively light,” requiring only a “reasonable approximation” of ill-gotten gains. 

IAB, 746 F.3d at 1234 (quotation omitted). Here, Dorfman does not challenge the 

district court’s preliminary finding that he and his companies had $180 million in 

unjust gains. D.E.139 at 11, 22-23. Nor does he deny that the assets subject to the 

freeze—$3.2 million in corporate cash, luxury cars purchased with corporate 

funds, and jewelry (see id.)—can be directly traced to funds derived from his

victims.

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Dorfman recognizes that this Court’s precedents foreclose his claims, but he 

nevertheless asks the Court to overturn them as “wrongly decided.” Br. 7, 13-14, 

18, 33-37. The Court’s controlling decisions were correct for the reasons set forth 

in Section II below, but it would not matter anyway. Under the “prior precedent 

rule,” one “panel cannot overrule a prior one’s holding.” United States v. Steele, 

147 F.3d 1316, 1317-18 (11th Cir. 1998) (en banc). A published panel decision 

remains the law of the Circuit “[u]nless and until [it] is overruled by the Supreme 

Court or by the en banc court.” Cohen v. Office Depot, Inc., 204 F.3d 1069, 1076 

(11th Cir. 2000). Precedent is binding even if the later panel is “convinced it is 

wrong.” Steele, 147 F.3d at 1318. This rule “is an essential part of the governing 

law of this Circuit,” for it promotes “the values of stability and predictability in the 

law.” Smith v. GTE Corp., 236 F.3d 1292, 1302-03 (11th Cir. 2001). The Court 

therefore need not even consider Dorfman’s arguments, but may summarily affirm.

II. THE COURT’S CONTROLLING PRECEDENT WAS CORRECTLY 

DECIDED

Dorfman complains that this Court’s case law was “never the product of 

careful or adequate analysis” (Br. 34), but the reasoning of those decisions was 

impregnable. They faithfully apply Supreme Court precedent; show a proper 

understanding of the FTC Act’s text, structure, and history; and are consistent with

many other decisions of this Circuit permitting awards of monetary relief under 

analogous statutes protecting consumers and the public interest. 

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A. This Court’s Decisions Interpreting Section 13(b) Are

Firmly Rooted In Supreme Court Precedent

This Court’s interpretation of Section 13(b) flows directly from Supreme 

Court precedent explaining that an unqualified grant of authority to enter a 

permanent injunction—such as that found in Section 13(b)—carries with it the 

authority to use “all the inherent equitable powers” of the district court “for the 

proper and complete exercise of that jurisdiction,” including the power to award 

monetary relief. Porter v. Warner Holding Co., 328 U.S. 395, 398 (1946). 

Moreover, where, as here, the matter involves furthering the public interest, the 

court’s “equitable powers assume an even broader and more flexible character than 

when only a private controversy is at stake.” Id. The “full scope” of equitable 

jurisdiction applies unless Congress has “in so many words, or by a necessary and 

inescapable inference, restrict[ed] the court’s jurisdiction in equity.” Id.7

 

 

7

 Porter drew these conclusions from older cases describing the expansive 

inherent powers of equity courts. “The essence of equity jurisdiction has been the 

power of the Chancellor to do equity and to mould each decree to the necessities of 

the particular case.” Hecht Co. v. Bowles, 321 U.S. 321, 329 (1944). Earlier, the 

Supreme Court recognized that “[t]he great principles of equity, securing complete 

justice, should not be yielded to light inferences, or doubtful construction.” Brown 

v. Swann, 35 U.S. 497, 503 (1836). The principal objective of an equity court is 

“to do justice completely, not by halves.” Camp v. Boyd, 229 U.S. 530, 551 

(1913). To prevent a “multiplicity of suits,” equity courts that “take cognizance of 

a cause for any purpose, will ordinarily retain it for all purposes, even though this 

requires it to determine purely legal rights that otherwise would not be within the 

range of its authority.” Id. at 552. 

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Porter recognized that the grant of injunctive authority carried with it the 

power of monetary redress because “[n]othing is more clearly a part of the subject 

matter of a suit for an injunction than the recovery of that which has been illegally 

acquired and which has given rise to the necessity for injunctive relief.” Id. at 399. 

Even where the specific monetary relief at issue is the province of courts of law 

rather than equity, when “the equitable jurisdiction of the court has properly been 

invoked for injunctive purposes, the court has the power to decide all relevant 

matters in dispute and to award complete relief.” Id. at 399. A redress award may 

be “appropriate and necessary” to achieve the objectives of an injunction, since 

“[f]uture compliance may be more definitely assured if one is compelled to restore 

one’s illegal gains.” Id. at 400. Such relief is “within the recognized power and 

within the highest tradition of a court of equity.” Id. at 402. 

Fourteen years later, the Supreme Court reaffirmed these principles in 

Mitchell v. Robert DeMario Jewelry, Inc., 361 U.S. 288 (1960). There, the Court 

recognized that “[w]hen Congress entrusts to an equity court the enforcement of 

prohibitions contained in a regulatory enactment, it must be taken to have acted 

cognizant of the historic power of equity to provide complete relief in light of the 

statutory purposes.” Id. at 291-92. The Court repeated Porter’s admonition that

“[u]nless a statute, in so many words, or by a necessary and inescapable inference, 

restricts the court’s jurisdiction in equity, the full scope of that jurisdiction is to be 

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recognized and applied.” Id. at 291. Mitchell held that monetary relief was 

available under a statute that simply authorized a court to “restrain” violations. Id.

at 296.

8

 

The Supreme Court has continued to rely on Porter. In Tull v. United States, 

481 U.S. 412 (1987), the Court, citing Porter, recognized that “a court in equity 

may award monetary restitution as an adjunct to injunctive relief.” Id. at 424. 

Even more recently, in Kansas v. Nebraska, 135 S. Ct. 1042 (2015), the Court 

invoked Porter to uphold a monetary equitable remedy in a water-rights dispute 

between two States. Id. at 1051, 1053. The Court expressly endorsed the idea that 

cases involving enforcement of federal law in the public interest allow “even 

broader and more flexible” applications of equity “than when only a private 

controversy is at stake.” Id. at 1053 (quoting Porter, 328 U.S. at 398). The 

Kansas Court found that disgorgement was necessary to “remind[] Nebraska of its 

legal obligations, deter[] future violations, and promote[] the [law’s] successful 

administration.” Id. at 1057. 

 

8

 Dorfman tries to distinguish Porter by arguing that the statute in that case was 

broader than Section 13(b) because it referred to injunctions and “other order[s].” 

Br. 30. Mitchell rejected that very argument: it upheld monetary relief under a 

statute without the “other order” language, declaring that Porter’s holding “is not 

to be denied” even if a statute lacks “affirmative confirmation of the power to 

order reimbursement.” 361 U.S. at 291-92, 296. 

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B. Congress Did Not Limit The Scope Of Equity Jurisdiction 

Conferred By Section 13(b)

This Court, applying the Porter line of cases, has ruled that courts may 

exercise their “full equitable powers” to award monetary relief under Section 13(b) 

in light of the significant public interest in “enforc[ing] consumer protection laws” 

and the absence of a “legislative command expressly limit[ing the] court’s 

equitable jurisdiction.” Gem. Merch., 87 F.3d 469-70. Dorfman believes this 

Court erred, asserting that the principles outlined in Porter do not apply to Section 

13(b) because (1) the legislative history of the provision forecloses monetary 

remedies; and (2) reading Section 13(b) as Porter requires would put it in conflict 

with another provision of the FTC Act, Section 19, 15 U.S.C. §57b. Br. 21-27. 

Both claims are wrong.

Legislative History. Dorfman relies on a Senate report relating that a key 

purpose of Section 13(b) was to enable the Commission to secure preliminary 

injunctions in support of ongoing administrative proceedings before the agency. 

Br. 25. Although that is surely true, this was not Congress’s only purpose, as is 

evident from the second proviso itself, which is a standalone grant of permanent 

injunction authority. In fact, the very Senate report on which Dorfman relies 

explains that the Commission may proceed directly in district court when “it does 

not desire to expand upon the prohibitions of the FTC Act,” in which case 

bypassing the administrative process will be a better use of “Commission resources 

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... and cases can be disposed of more efficiently.” S. Rep. No. 93-151, at 30-31 

(May 14, 1973). As Congress found, “[v]ictimization of American consumers 

should not be ... shielded” while awaiting the results of an administrative 

adjudication that could drag on for “several years.” Id. at 30. 

And indeed, by the time Congress enacted Section 13(b) in 1973, courts had 

already followed Porter and Mitchell to conclude that provisions of the securities 

laws authorizing courts to grant an injunction also authorized equitable monetary 

relief. See SEC v. Texas Gulf Sulphur Co., 446 F.2d 1301, 1307-08 (2d Cir. 1971)

(collecting cases). Congress would have expected the new statute to be construed 

the same way, given the judicial assumption that, “when Congress enacts statutes, 

it is aware of relevant judicial precedent.” Merck & Co., Inc. v. Reynolds, 559 U.S. 

633, 648 (2010). 

Congress has twice ratified that understanding. In 1994, years after courts 

(including this one) held that Section 13(b) permits monetary relief, Congress 

expanded the venue and service of process provisions of that section. See FTC Act 

Amendments of 1994, Pub. L. No. 103-312, § 10, 108 Stat. 1691 (Aug. 26, 1994). 

Not only did Congress let the judicial decisions stand, but the Senate report 

accompanying the act recognized that Section 13(b) authorizes the FTC to “go into 

court ex parte to obtain an order freezing assets, and ... also ... to obtain consumer

redress.” S. Rep. No. 103-130, at 15-16 (Aug. 24, 1993). 

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Twelve years later, and after scores of cases awarding monetary relief under 

Section 13(b), Congress expressly codified the judicial understanding when it

authorized courts to impose “[a]ll remedies available to the Commission ... 

including restitution to domestic or foreign victims” in actions against certain 

unfair practices abroad. U.S. SAFE Web Act of 2006, Pub. L. 109-455, § 3, 120 

Stat. 3372 (Dec. 22, 2006) (amending 15 U.S.C. § 45(a)(4)(B)). When Congress 

reenacts a statute that has been given a consistent judicial interpretation, “[s]uch a 

reenactment, of course, generally includes the settled judicial interpretation.” 

Pierce v. Underwood, 487 U.S. 552, 567 (1988). 

Section 19. Dorfman fares no better with his claim that Section 19 of the 

FTC Act defeats the possibility of monetary relief under Section 13(b). See Br. 6-

7, 19, 21-24. As discussed at pp. 15-16, above, this Court and others have rejected 

the claim, and for good reason. 

The FTC Act creates separate administrative and direct-litigation tracks for 

enforcing the law, each serving a distinct and important role in furthering the 

Commission’s mandate to protect consumers. As explained above, the 

Commission may choose to enforce the Act either through administrative 

proceedings or directly in court. Both enforcement paths allow for possible 

monetary remedies. When the Commission seeks to apply the FTC Act in a new 

setting, it will often proceed administratively, with its findings of fact and 

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conclusions of law reviewed deferentially on appeal. See FTC v. Indiana Fed’n of 

Dentists, 476 U.S. 447, 454 (1986). At the conclusion of the administrative case, 

the Commission may then in some instances go to court and seek monetary relief 

under Section 19. In a Section 19 proceeding, the Commission’s findings of fact 

from the administrative case are deemed “conclusive.” 15 U.S.C. § 57b(c). The 

flip side of such deference is that courts may only award monetary relief based on 

FTC administrative findings when a “reasonable man” would have known that the 

practices subject to the administrative order were “dishonest or fraudulent,” 15 

U.S.C. § 57b(a)(2). 

On the other hand, when the Commission does not wish to apply its 

expertise in an administrative setting, it can sue directly in federal court under 

Section 13(b) and seek monetary relief as part of a permanent injunction. Under 

Section 13(b), the Commission receives no deference, but it is also not subject to 

the scienter requirements of Section 19. The two provisions work in tandem, each 

in its own sphere.9

 

 

9

 Dorfman’s reliance on FTC v. Shire ViroPharma, Inc., 917 F.3d 147 (3d Cir. 

2019), is misplaced. Br. 5, 32. That case held that the Commission could seek 

relief under Section 13(b) when it has reason to believe that a defendant “is 

violating, or is about to violate” the law, an issue that has no bearing here. When 

the FTC filed its complaint, Dorfman and his companies were actively violating 

the FTC Act.

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26

Dorfman is therefore wrong that Section 19 would be redundant if Section 

13(b) also permits monetary remedies. Br. 19, 21-23. That conclusion does not 

follow logically from the structure of the statute. As with other agencies, Congress 

has given the FTC a choice of forum to enforce its statutes; this does not make one 

of the options “redundant.” See, e.g., Bebo v. SEC, 799 F.3d 765, 768 (7th Cir. 

2015) (explaining that Congress gave the SEC a “choice of forums: it can either 

proceed in federal district court or conduct its own administrative enforcement 

proceeding”). 

Further, Dorfman’s argument is squarely foreclosed by the text of Section 19 

itself. The statute, enacted two years after Section 13, states that its remedies “are 

in addition to, and not in lieu of, any other remedy.” 15 U.S.C. § 57b(e). It also 

states that “[n]othing in this section shall be construed to affect any authority of the 

Commission under any other provision of law.” Id. We can be sure that Section 

19 does not foreclose monetary relief under Section 13(b) because Congress

directly said so. 

For the same reason, Dorfman is wrong that Section 19 necessarily creates 

exclusively backward-looking remedies while Section 13(b) creates only “forwardlooking and prophylactic” remedies. Br. 24. Both sections work to advance their 

own goals, as outlined above. Moreover, Dorfman fails to understand that 

monetary relief can be a “forward-looking” remedy. Restitution may be 

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“appropriate and necessary to enforce compliance with the Act,” since “[f]uture 

compliance may be more definitely assured if one is compelled to restore one’s 

illegal gains.” Porter, 328 U.S. at 400. Courts may therefore “order disgorgement 

of gains” in order to “deter future breaches.” Kansas, 135 S. Ct. at 1057. Section 

13(b) thus rests on the established principle that injunctions are frequently coupled 

with monetary relief “for harms already done.” 1 Dan B. Dobbs, The Law of 

Remedies § 2.9(1) at 224 (2d ed. 1993). Indeed, the concept “[t]hat equitable 

remedies are always orders to act or not act, rather than to pay, is a myth; equity 

often orders payment.” United States v. Apex Oil Co., 579 F.3d 734, 736 (7th Cir. 

2009). 

C. This Court Has Interpreted Similar Laws The Same Way

This Court has applied the principle of Porter in both public and private 

cases in many different areas. Eighteen years before Gem Merchandising, the 

former Fifth Circuit ruled that under an SEC statute authorizing permanent 

injunctions, district courts may “force[] the defendant to give up ... the amount by 

which he was unjustly enriched.”10 SEC v. Blatt, 583 F.2d 1325, 1335 (5th Cir. 

 

10 Similar to the FTC Act, the Securities Exchange Act of 1934 authorizes the 

SEC to bring an action in federal district court “to enjoin [unlawful] acts or 

practices, and upon a proper showing a permanent or temporary injunction or 

restraining order shall be granted without bond.” 15 U.S.C. § 78u(d)(1). 

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1978) (citations omitted).11 This Court has applied that ruling many times since. 

See, e.g., SEC v. Levin, 849 F.3d 995, 1006 (11th Cir. 2017); SEC v. Monterosso, 

756 F.3d 1326, 1337-38 (11th Cir. 2014); SEC v. Warren, 534 F.3d 1368, 1370 

(11th Cir. 2008); SEC v. ETS Payphones, Inc., 408 F.3d 727, 734 (11th Cir. 2005); 

SEC v. Calvo, 378 F.3d 1211, 1215-18 (11th Cir. 2004). 

The same holds true for the Commodity Futures Trading Commission. In 

CFTC v. Wilshire Investment Management Corp., 531 F.3d 1339 (11th Cir. 2008), 

the Court found that the statute was “nearly identical” to the one in Porter, and 

observed that “[w]e have similarly applied the statutory principles in Porter to the 

Federal Trade Commission Act.” Id. at 1344.

12 Following Wilshire, the Court 

ruled that “a district court may freeze a defendant’s assets to ensure the adequacy 

of a disgorgement remedy.” CFTC v. Levy, 541 F.3d 1102, 1114 (11th Cir. 2008). 

The Court has applied these principles even in private litigation. In AT&T 

Broadband v. Tech Communications, Inc., 381 F.3d 1309 (11th Cir. 2004), a cable 

company sought an ex parte asset freeze against a seller of “pirate” cable TV 

descramblers under the Cable Communications Policy Act, which empowers 

 

11 Decisions of the Fifth Circuit issued before October 1, 1981, are binding 

precedent in this Court. Bonner v. City of Prichard, 661 F.2d 1206, 1209 (11th 

Cir. 1981) (en banc). 

12 The Commodity Exchange Act provides that “[u]pon a proper showing, a 

permanent or temporary injunction or restraining order shall be granted without 

bond.” 7 U.S.C. § 13a-1(b). 

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district courts to “grant temporary and final injunctions on such terms as [they] 

may deem reasonable to prevent or restrain” cable theft. Id. at 1315 (quoting 47 

U.S.C. § 553(c)(2)(A)). Relying on Porter and U.S. Oil & Gas, the Court noted 

the statute’s resemblance to Section 13(b); found that the statute “involves the 

public’s interest in preventing the sale of pirate cable descramblers”; and affirmed 

the asset freeze. Id. at 1316. 

III. NO JUDICIAL DECISIONS HAVE ALTERED THE BINDING PRECEDENT 

INTERPRETING SECTION 13(B)

Dorfman tries to escape from the Court’s binding decisions on the ground 

that subsequent judicial action has abrogated or limited them. He acknowledges 

that the decisions he relies on are not dispositive and did not involve Section 13(b), 

but nonetheless claims that “the reasoning” of those cases “has implications” 

requiring the reversal of the Court’s precedent. Br. 36. 

The claim fails at the starting gate because even when “the reasoning of an 

intervening high court decision is at odds with that of [a] prior decision,” that itself

“is no basis for a panel to depart from [a] prior decision.” Atlantic Sounding Co. v 

Townsend, 496 F.3d 1282, 1284 (11th Cir. 2007). While “[o]bedience to a 

Supreme Court decision is one thing, extrapolating from its implications a holding 

on an issue that was not before that Court in order to upend settled circuit law is 

another thing.” Main Drug, Inc. v. Aetna U.S. Healthcare, Inc., 475 F.3d 1228, 

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1230 (11th Cir. 2007). None of the cases Dorfman relies on comes close to 

mandating that the Court abandon its Section 13(b) precedent. 

A. Graham and Kokesh Do Not Undermine The Court’s 

Section 13(b) Precedent

Dorfman principally contends that this Court’s decision in SEC v. Graham, 

823 F.3d 1357 (11th Cir. 2016), and the Supreme Court’s decision in Kokesh v. 

SEC, 137 S. Ct. 1635 (2017), “substantially undermined” precedent on Section 

13(b). Br. 6-7, 14-15, 17-18, 34-39. The argument is that those decisions 

determined that monetary relief under the SEC statutes authorizing injunctions is a 

“penalty” or a “forfeiture” for purposes of a statute of limitations, and because 

courts of equity may not issue penalties or forfeitures, the decisions necessarily 

mean that monetary relief falls outside the scope of injunctive relief authorized by 

Section 13(b). Br. 12-13, 33-34, 44. The claim is meritless for several reasons.

1. Graham and Kokesh expressly state they do not 

overrule existing law authorizing monetary relief. 

First, even if Graham were inconsistent with U.S. Oil & Gas, Gem 

Merchandising, and other cases, it could not overturn them by virtue of the prior

panel precedent rule. When two panel precedents conflict, “the first [decision] ... 

to address the issue” controls. Smith, 236 F.3d at 1302; see United States v. Mozie, 

752 F.3d 1271, 1285 (11th Cir. 2014) (“Under the prior panel precedent rule, when 

two of our decisions conflict, we are obligated to follow the earlier one.”). But 

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Graham recognized explicitly that it did not intend to disturb settled law. The case 

addressed whether SEC disgorgement awards are subject to the general five-year 

statute of limitations of 28 U.S.C. § 2462, on “any civil fine, penalty, or 

forfeiture.” 823 F.3d at 1359. The Court held that disgorgement is a “forfeiture” 

within the plain meaning of that term because it is “imposed as redress for 

wrongdoing.” Id. at 1363-64. At the same time, the Court stated directly that 

Blatt—which held that the SEC’s statute authorizing injunctions also authorizes 

disgorgement of ill-gotten gains—remains “binding precedent.” Id. at 1364 & n.4. 

Like Graham, Kokesh also expressly disclaimed the effect Dorfman ascribes 

to it. There, the Supreme Court confronted a 14-year course of conduct for which 

the SEC obtained civil penalties for the most recent five years and disgorgement 

for the older acts. The question was whether the disgorgement order was a 

“penalty” under Section 2462. Kokesh, 137 S. Ct. at 1641-42. The Court held that 

it was a penalty, but specifically instructed that “[n]othing in this opinion should be 

interpreted as an opinion on whether courts possess authority to order 

disgorgement in SEC enforcement proceedings or on whether courts have properly 

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applied disgorgement principles in this context.” Id. at 1642 n.3.

13 Though 

Dorfman characterizes Kokesh as “holding” that disgorgement falls outside a 

district court’s inherent equity powers (Br. 17), the Court disclaimed such a 

holding in no uncertain terms. 

It therefore is hardly surprising that this Court has continued to uphold 

monetary relief awards after Graham and Kokesh. Several months after Kokesh, 

this Court twice reaffirmed the district court’s “power to grant equitable monetary 

relief” under Section 13(b). WV Univ., 877 F.3d at 1240; see FTC v. Primary 

Grp., Inc., 713 F. Appx. 805, 808-09 (11th Cir. 2017). Likewise, in SEC v. Hall, 

759 F. Appx. 877 (11th Cir. 2019), the Court recognized that “[t]he SEC is entitled 

to disgorgement upon producing a reasonable approximation of a defendant’s illgotten gains.” Id. at 882 (quoting Calvo, 378 F.3d at 1217). The Court actually 

cited Kokesh in support of this holding and did not mention Graham (even though 

 

13 Dorfman relies on the special concurrence of a Ninth Circuit judge relying on 

Kokesh to question the FTC’s monetary relief authority. See Br. 17-18, 37-38, 44, 

citing FTC v. AMG Capital Mgmt. LLC, 910 F.3d 417, 429 (9th Cir. 2018)

(O’Scannlain, J., concurring). The concurring judge also wrote the panel opinion 

recognizing that the controlling law of the circuit allows monetary remedies and 

that Kokesh was not a valid basis to disregard the court’s precedent. Id. at 426-27. 

And while the special concurrence encouraged the court to reconsider its precedent 

en banc, the full court later denied rehearing without even a single judge calling for 

a vote. See June 20, 2019 Order, FTC v. AMG Capital Mgmt. LLC, No. 16-17197 

(9th Cir.).

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the author of Graham served on the panel in Hall). Id.14 Finally, this Court 

recently affirmed an order awarding “[d]isgorgement of gross revenues” under a 

statute authorizing injunctions against violations of the internal revenue laws. 

United States v. Stinson, 729 F. Appx. 891, 898-99 (11th Cir. 2018). 

2. A court of equity may order monetary relief even if it 

is a “penalty” for purposes of a statute of limitations. 

Even if both Graham and Kokesh had not expressly disclaimed the effect 

Dorfman ascribes to them, they still would not weaken the basis for FTC monetary 

relief. The Supreme Court has explained that “‘[p]enalty’ is a term of varying and 

uncertain meaning.” Life & Cas. Ins. Co. of Tenn. v. McCray, 291 U.S. 566, 574 

(1934). Thus, just because something is a “penalty” for purposes of a statute of 

limitations does not mean that it is a remedy beyond the powers of a court of 

equity. For example, in National Federation of Independent Business v. Sebelius, 

567 U.S. 519 (2012), the Supreme Court held that the payment required by the 

Affordable Care Act from those who do not have insurance was a “penalty” and 

not a tax for purposes of the Anti-Injunction Act, 26 U.S.C. § 7421(a), but a tax 

 

14 Dorfman over-reads a concurring D.C. Circuit opinion from now-Justice 

Kavanaugh observing that “[t]he Supreme Court’s reasoning in Kokesh was not 

limited to the specific statute at issue there.” Br. 14, 34, 36, 41, citing Saad v. 

SEC, 873 F.3d 297, 305 (D.C. Cir. 2017) (Kavanaugh, J, concurring). But 

monetary relief was not an issue in Saad, and Justice Kavanaugh did not question 

the SEC’s ability to obtain it. His “sole point” was that after Kokesh, industry 

expulsions and suspensions must be treated as penalties. Id. at 306. He did not 

deny that the SEC was able to obtain such relief. Id. 

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and not a “penalty” for other purposes. 567 U.S. at 543-46, 564-66. Similar 

considerations led the Sixth Circuit to hold that SEC disgorgement, now deemed a 

penalty under Kokesh for purposes of the statute of limitations, is not a 

“punishment” for Double Jeopardy purposes. United States v. Dyer, 908 F.3d 995, 

1003 (6th Cir. 2018) (“The holding in Kokesh was narrow and limited solely to the 

statute of limitations in 28 U.S.C. § 2462.”). 

“Penalty” can have different meanings in equity and under a limitations 

period because the two doctrines serve different purposes. Equity serves the 

purposes of “do[ing] justice completely, and not by halves.” Camp v. Boyd, 229 

U.S. 530, 551 (1913). Statutes of limitation serve the very different interests of 

repose for defendants and the practical realities of defending against stale claims. 

See Walker v. Armco Steel Corp., 446 U.S. 740, 751 (1980). It makes complete

sense for Congress to have imposed a time limit on penalties while leaving intact 

traditional equitable powers. That limitation does not create “a necessary and 

inescapable inference” that Congress meant to “restrict[] the court’s jurisdiction in 

equity.” Porter, 328 U.S. at 398. 

Courts have long recognized that disgorgement is “traditionally considered 

an equitable remedy” distinct from the “civil penalt[y]” that was available only in 

courts of law. Tull, 481 U.S. at 423-25. Indeed, Tull stated that even though an 

equity court could not impose a civil fine, it “was empowered to provide monetary 

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awards that were incidental to or intertwined with injunctive relief.” Id. at 424. 

These “restitution” awards force a wrongdoer to return his or her ill-gotten gains, 

thereby “restoring the status quo.” Id. (quoting Porter, 328 U.S. at 402). Thus, “a 

court in equity may award monetary restitution as an adjunct to injunctive relief,” 

at the same time that it is precluded from assessing civil penalties. Id. 

Dorfman is therefore mistaken when he cites Tull for the proposition that 

“[a]ny penalty is necessarily a legal remedy” that is beyond the powers of an 

equity court. Br. 12. Tull stands for the very different proposition that 

disgorgement, even if a “penalty” for a different purpose, is an equitable remedy 

distinct from a civil fine. 481 U.S. at 424. See also Chauffeurs, Teamsters & 

Helpers, Local No. 391 v. Terry, 494 U.S. 558, 570 (1990) (“[W]e have 

characterized damages as equitable where they are restitutionary, such as in 

‘action[s] for disgorgement of improper profits.’”) (quoting Tull, 481 U.S. at 424)). 

There is “no ... tension” between Kokesh and Tull because “while disgorgement 

may constitute a ‘penalty’ under Kokesh’s expansive analysis,” it is “entirely 

distinct from the civil monetary penalties” that are available only in a court of law. 

Donna M. Nagy, The Statutory Authority for Court-Ordered Disgorgement in SEC 

Enforcement Actions, 71 SMU L. Rev. 895, 925-26 (2018); see Daniel B. Listwa & 

Charles Seidell, Note, Penalties in Equity: Disgorgement after Kokesh v. SEC, 35 

Yale J. on Reg. 667, 679 (2018) (it is “inappropriate to assume that what is a 

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‘penalty’ for the purposes of § 2462 is also a ‘civil penalty’ as it was understood by 

the Court in Tull ... and thus unavailable in equity”). 

In keeping with that understanding, this Court recently confirmed—postGraham and Kokesh—that disgorgement of ill-gotten gains is an equitable remedy. 

In Hard Candy, LLC v. Anastasia Beverly Hills, Inc., 921 F.3d 1343 (11th Cir. 

2019), the Court explained that “the ancient remedies of accounting, constructive 

trust, and restitution have compelled wrongdoers to ‘disgorge’—i.e., account for 

and surrender—their ill-gotten gains for centuries.” Id. at 1355 (quoting SEC v. 

Cavanagh, 445 F.3d 105, 119 (2d Cir. 2006)). These remedies were “historically a 

matter for courts of equity,” which provided “a means of ‘permitting an award of 

monetary and injunctive relief in the same action,’ and thereby preventing 

duplicative litigation.” Id. at 1355-56 (quoting Restatement (Third) of Unfair 

Competition § 37 cmt. b (Am. Law Inst. 1995)). Hard Candy concerned whether a 

monetary award was subject to jury trial, but the Court relied on the Second 

Circuit’s opinion in Cavanagh, 445 F.3d at 119-20, which upheld the SEC’s 

authority to obtain disgorgement. 

It therefore does not matter that Kokesh considered the deterrent effect of 

disgorgement as a factor in determining it was a penalty. See 137 S. Ct. at 1643-

44. Deterrent effects have always been considered one function of an equitable 

remedy. Porter, for example, noted that “[f]uture compliance may be more 

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definitely assured if one is compelled to restore one’s illegal gains.” 328 U.S. at 

400. And in Kansas v. Nebraska, decided just two years before Kokesh, the Court 

relied on Porter in holding that equitable disgorgement was appropriate to “deter

future breaches.” 135 S. Ct. at 1057.

15 Dorfman concedes as much when he 

argues that “equitable remedies are ‘forward-looking’ remedies designed to 

prevent future violations of law.” Br. 15 (emphasis in original). 

3. Unlike the remedies at issue in Graham and Kokesh, 

FTC monetary relief is compensatory.

Finally, even if a court could not award “penalties” ancillary to an 

injunction, the monetary relief the FTC seeks in this case is compensatory, not 

penal. The Court explained in Kokesh that relief “operates as a penalty only if it is 

sought for the purpose of punishment ... as opposed to compensating a victim for 

his loss.” 137 S. Ct. at 1642 (emphasis added, quotation marks omitted). Here, the 

district court imposed the asset freeze to “preserve the availability of funds to 

provide monetary restitution for consumers victimized by Defendants’ unlawful 

practices.” D.E.139 at 22. Indeed, the frozen assets amount to a small fraction of 

 

15 Even the justices who dissented in Kansas v. Nebraska accepted the premise 

that disgorgement is an equitable remedy. See 135 S. Ct. at 1070 (Thomas, J., 

concurring in part and dissenting in part) (“Disgorgement is strong medicine, and 

as with other forms of equitable power, we should impose it against the States only 

sparingly.”) (quotation marks omitted); id. at 1064 (Roberts, C.J., concurring in 

part and dissenting in part) (recognizing that “our equitable power” is “sufficient to 

order a remedy of partial disgorgement”). 

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the $180 million that Dorfman stole from his victims. Id. at 22-23. Thus, the FTC 

anticipates that all money ultimately recovered will go to redress the victims’

injuries as much as possible.16

Because the FTC will use all equitable monetary relief in this case for 

compensation, the remedy is unlike the SEC disgorgement award at issue in 

Kokesh, which was to be paid to the Treasury (and indeed, was part and parcel with 

the penalty assessed for the five most recent years of violations). 137 S. Ct. at 

1644. To the extent that repaying harmed consumers will incidentally deter future 

illegal conduct, that beneficial outcome does not transform the relief into “a 

noncompensatory sanction [paid] to the Government.” Id. at 1644. The same 

would be true of any type of compensatory award. See Mitchell, 361 U.S. at 293

(explaining that a “public remedy” is not “rendered punitive” when it is 

compensatory).

 

16 The facts of Dorfman’s case underscore the limited nature of equitable 

monetary relief, which only covers the wrongdoer’s illicit gains. Although 

Dorfman had $180 million in gains, that figure does not include the full amount in 

“premiums” that Dorfman’s victims paid for his worthless health plans, the 

victims’ out-of-pocket medical expenses, or the pain, suffering, and lost income

they experienced as a consequence of being practically uninsured. These 

uncompensated injuries likely exceed Dorfman’s revenues.

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B. Meghrig Does Not Undermine Porter Or This Court’s 

Section 13(b) Precedents

Dorfman claims that due to the Supreme Court’s decision in Meghrig v. 

KFC Western, Inc., 516 U.S. 479 (1996), Porter “has fallen out of favor with the 

courts” and is “dead.” Br. 30-31.17 He does not explain the high Court’s

subsequent reliance on Porter in Kansas v. Nebraska (2015), which imposed a 

disgorgement award and declared that “our equitable authority to grant remedies is 

at its apex when public rights and obligations are ... implicated.” 135 S. Ct. at 

1053, 1057, 1062-63; see also United States v. Oakland Cannabis Buyers’ Co-Op., 

532 U.S. 483, 496 (2001). Meghrig, by contrast, involved private civil litigation. 

Whatever effect the decision may have had on Porter in that sphere (and we doubt 

it was much), it has no effect in this case. 

Meghrig turned on the particularities of two environmental statutes allowing 

private civil suits, and it sheds no light on how to interpret regulatory enforcement 

statutes like Section 13(b). The Court held that a citizen-suit provision in an 

environmental law that gives district courts injunctive authority to order the 

 17 Dorfman quotes the word “dead” out of context from Apex Oil, which declared 

that a broad reading of the specific environmental statutes at issue in Meghrig was 

now “dead” after that case. 579 F.3d at 736-37. Apex Oil did not inscribe the 

epitaph of Porter itself. Indeed, Judge Posner, who authored Apex Oil, wrote in 

another post-Meghrig decision that under Section 13(b), “[t]he court’s authority to 

order restitution to the victims and as an incident thereto to place the frozen assets 

in trust for them is not and cannot be questioned.” FTC v. Think Achievement 

Corp., 312 F.3d 259, 262 (7th Cir. 2002). 

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remediation of present harms and the prevention of future ones did not allow a 

court to award compensation to private parties for cleanup costs. 516 U.S. at 484. 

The Court reached that determination by comparing the statute before it with a 

similar environmental statute that afforded identical injunctive relief, but expressly 

provided for the recovery of past cleanup costs. Congress “knew how to provide

for the recovery of cleanup costs,” the Court explained, so its decision to provide 

such a recovery in one statute revealed an intent not to do so in the other statute, 

which lacked the operative language. Id. at 485. Moreover, the injunctive 

authority conveyed in the statute limited relief to instances of “imminent” danger, 

which an already-cleaned-up site did not pose. Id. at 485-86. 

Meghrig thus represents a situation presenting a “clear legislative command” 

restricting the power of equity in a private controversy. See United States v. Rx 

Depot, Inc., 438 F.3d 1052, 1055-57 (10th Cir. 2006); United States v. Lane LabsUSA, Inc., 427 F.3d 219, 231-32, 235 (3d Cir. 2005). But it did not overrule or 

even affect Porter; to the contrary, soon after it issued Meghrig, the Supreme Court 

again credited Porter’s principle that equitable “discretion is displaced only by a 

‘clear and valid legislative command.’” Oakland Cannabis, 532 U.S. at 496

(quoting Porter, 328 U.S. at 398). 

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C. Montanile And Great-West Do Not Undermine This Court’s 

Precedent Rejecting Tracing 

Dorfman suggests that Supreme Court decisions have overruled this Court’s 

holdings that equitable monetary relief is not limited to assets that can be directly 

traced to wrongdoing. Br. 11-12, 35-36. The claim fails on several fronts.

First, Dorfman has not explained how a tracing requirement would limit the 

asset freeze here. The order on appeal is a preliminary injunction and Dorfman has 

provided no reason to doubt that all the money frozen under it is the product of his

unlawful conduct. Indeed, he has not appealed the preliminary findings that his 

entire business model was illegal and that he defrauded consumers out of $180 

million. D.E.139 at 9-11, 22-23. Moreover, the point of freezing assets is only to 

preserve them for the possibility of ultimate relief; thus, even if there were a 

tracing requirement, it would kick in only at the time of final judgment. See IAB, 

746 F.3d at 1234. 

Second, as discussed at pages 16-17 above, this Court and others have 

rejected asset tracing when, as here, a government agency is “seeking to enforce 

explicit statutory provisions” to obtain a “public-regarding remedy.” Bronson 

Partners, 654 F.3d at 372-73; accord FTC v. Commerce Planet, Inc., 815 F.3d 

593, 601 (9th Cir. 2016). Dorfman has cited “no case in which a public agency 

seeking to obtain equitable monetary relief has been required to satisfy the tracing 

rules.” Bronson Partners, 654 F.3d at 374. Rather, “the Federal Reporter is 

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replete with instances in which judges ... deeply familiar with equity practice have 

permitted the SEC to obtain disgorgement without any mention of tracing.” Id. 

See also SEC v. Quan, 817 F.3d 583, 594 (8th Cir. 2016) (explaining that a tracing 

requirement “finds no support ... in the extensive body of case law on securities 

fraud”). In actions by a public entity to enjoin law violations, courts may impose 

“an equitable obligation to return a sum equal to the amount wrongfully obtained, 

rather than a requirement to replevy a specific asset.” Banner Fund, 211 F.3d at 

617. 

Montanile v. Bd. of Trustees of the Nat’l Elevator Indus. Health Benefit 

Plan, 136 S. Ct. 651 (2016), and Great-West Life & Annuity Ins. Co. v. Knudson, 

534 U.S. 204 (2002), do not disturb those holdings. Both cases involved lawsuits 

by private health plans under the Employee Retirement Income Security Act 

(ERISA) seeking reimbursement for expenses from plan participants who 

recovered from third parties. The Act allowed the plans to recover “appropriate 

equitable relief.” 29 U.S.C. § 1132(a)(3). Great-West rejected the plan’s claim to 

equitable restitution in the form of a constructive trust or equitable lien over 

specific property, explaining that because the participant no longer possessed those 

particular funds, the claim was legal rather than equitable. 534 U.S. at 212-14. 

Montanile held that the plan could not seek an equitable remedy (such as an 

equitable lien) when the participant had dissipated the particular funds in dispute. 

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136 S. Ct. at 658-61. Both cases recognized that the traditional equitable remedies 

of constructive trust or equitable lien require private plaintiffs to identify particular 

funds that belonged to them but were possessed by the defendant “in trust,” or 

traceable items that the defendant purchased with those funds. 

But neither Great-West nor Montanile addressed remedies available to 

public agencies under the FTC Act and similar statutes granting an unqualified 

right to injunctive relief. Nor did they question Porter’s holding that courts in a 

government enforcement action may order “the recovery of that which has been 

illegally acquired and which has given rise to the necessity for injunctive relief,” 

even if “such a recovery could not be obtained through an independent suit in 

equity.” 328 U.S. at 399. 

Instead, Great-West made clear that its decision rested largely on concerns 

unique to ERISA, “a comprehensive and reticulated statute, the product of a 

decade of congressional study of the Nation’s private employee benefit system.” 

534 U.S. at 209 (internal quotation marks and citations omitted). In light of that 

history, the Court was “especially reluctant to tamper with [the] enforcement 

scheme embodied in the statute by extending remedies not specifically authorized

by its text.” Id. (internal quotation marks and citations omitted). Consequently, 

the Court construed ERISA’s provision for “appropriate equitable relief,” 29 

U.S.C. § 1132(a)(3), as evidence that Congress intended a scope of relief more 

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restricted than otherwise would be available to a court of equity. Great-West, 534 

U.S. at 209-10; see also Montanile, 136 S. Ct. at 660. Yet the Supreme Court 

acknowledged in another ERISA case that Congress could draft broader statutes 

permitting district courts to impose all forms of “relief a court of equity is 

empowered to provide in the particular case at issue.” Mertens v. Hewitt Assocs., 

508 U.S. 248, 256 (1993). Whether Congress intended that broader meaning 

“remains a question of interpretation in each case.” Id. at 257. 

Accordingly, the ERISA cases did not abrogate Porter’s holding that when 

interpreting statutes authorizing government agencies to protect the public interest, 

“all the inherent equitable powers of the District Court are available” absent a 

“clear and valid legislative command.” 328 U.S. at 398. As the Supreme Court 

explained in one of the very cases cited by Dorfman, “courts of equity will go 

much farther both to give and withhold relief in furtherance of the public interest 

than they are accustomed to go when only private interests are involved.” Grupo 

Mexicano de Desarrollo, S.A. v. Alliance Bond Fund, Inc., 527 U.S. 308, 326 

(1999) (internal quotation marks omitted). Thus, in Kansas v. Nebraska, the Court 

ordered disgorgement without mentioning tracing, instead declaring that courts’ 

equitable powers are broader and more flexible in cases affecting public rights 

under a federal statute. 135 S. Ct. at 1053, 1057, 1062-63. 

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As the Second Circuit has explained, Great-West’s discussion of the tracing 

requirement in “a private, equitable claim sounding in unjust enrichment” has no 

application to cases under the FTC Act. Bronson Partners, 654 F.3d at 371. 

Tracing is required in private cases “because liability is premised on the fiction that 

the victim at all times retained title to the property in question, which the defendant 

merely holds in trust for him.” Id. at 373. By contrast, liability under the FTC Act 

turns on the “specific provisions” of the statute without any fiction of a 

constructive trust or equitable lien. Id. at 371. 

Where the basis of liability is statutory, the only question is whether “‘the 

nature of the underlying remedies sought’ was historically equitable.” Id. at 371-

72 (quoting Great-West, 534 U.S. at 213). The Second Circuit, performing such an 

analysis, has found that “English equity courts compelled the repayment (in effect, 

‘disgorgement’) of ill-gotten gains in cases decided before our independence,” and 

that “American courts also awarded equitable remedies similar to modern 

disgorgement in cases decided around the time of our nation’s founding.” 

Cavanagh, 445 F.3d at 120. See also Hard Candy, 921 F.3d at 1355 (crediting 

Cavanagh’s historical conclusions). The Supreme Court has likewise explained 

that it is “well established” that equity courts may exercise jurisdiction over a “suit 

to rescind a contract induced by fraud and to recover the consideration paid,” 

Case: 19-11932 Date Filed: 07/24/2019 Page: 57 of 62 
46

Deckert v. Indep. Shares Corp., 311 U.S. 282, 289 (1940) (collecting cases), which 

is precisely the sort of relief the FTC seeks against Dorfman.

18

D. Grupo Mexicano Does Not Undermine The Court’s Section 

13(b) Precedents

 Similarly unavailing is Dorfman’s reliance on Grupo Mexicano, 527 U.S. at 

324-25, for the proposition that the district court could not freeze his assets 

because the Commission’s claims are only for money damages and not equitable 

relief. Br. 7, 11, 34-35, 37 n.14, 38-40, 42-43. We have shown extensively above 

that the claims here are for equitable relief, so the argument fails at the outset. 

This Court rejected a virtually identical claim in ETS Payphones, where the 

defendant similarly claimed that asset freezes in support of an SEC disgorgement 

remedy are invalid under Grupo Mexicano. This Court disagreed, proclaiming that 

“disgorgement is an equitable remedy,” so Grupo Mexicano did not apply. ETS 

Payphones, 408 F.3d at 734 & n.6. See also Cavanagh, 445 F.3d at 116-17. 

As ETS Payphones pointed out, the relevant Supreme Court case here is 

Deckert, which affirmed a preliminary injunction “to preserve the status quo” and 

 

18 As one leading treatise elaborates, “[t]he purely pecuniary reliefs which courts 

of equity may administer, as well as courts of law, in matters of fraud, are an 

accounting in all its various forms and conditions, and simple recoveries, without 

an accounting, of specific amounts of money which have been fraudulently 

obtained, or which are equitably and perhaps legally due on account of fraud.” 3 

Spencer W. Symons, Pomeroy’s Equity Jurisprudence § 910, pp. 577-78 (5th ed. 

1941). The “fundamental theory” behind equitable relief is to “return the parties to 

the positions which they occupied before the fraud was committed.” Id.

Case: 19-11932 Date Filed: 07/24/2019 Page: 58 of 62 
47

prevent the “dissipation or depletion” of assets pending trial on investors’ claims 

for equitable rescission and restitution under the Securities Act of 1933. See 311 

U.S. at 290. 

E. The Seventh Amendment Does Not Apply Here

The Court need not reach Dorfman’s claim that he has a Seventh 

Amendment right to a jury trial (Br. 8, 41-43) because this case presents only a 

preliminary injunction and not a final determination on the merits. The issue is 

premature. 

Dorfman is wrong in any event because the equitable nature of relief under 

Section 13(b) dooms his claim. “[S]o long as a court limits an award under § 13(b) 

to restitutionary relief, the remedy is an equitable one for Seventh Amendment 

purposes and thus confers no right to a jury trial.” Commerce Planet, 815 F.3d at 

602. Courts “have unanimously held that the Seventh Amendment does not 

provide a right to a trial by jury in actions brought under Section 13(b).” FTC v. 

Think All Publishing, L.L.C., 564 F. Supp. 2d 663, 665 (E.D. Tex. 2009)

(collecting cases). See also Tull, 481 U.S. at 424 (explaining that disgorgement is 

“traditionally considered an equitable remedy” for Seventh Amendment purposes); 

Hard Candy, 921 F.3d at 1359 (no jury trial required for Lanham Act 

disgorgement claim). 

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CONCLUSION

For the foregoing reasons, the district court’s order granting a preliminary 

injunction should be affirmed. 

Respectfully submitted,

ALDEN F. ABBOTT

General Counsel

JOEL MARCUS

Deputy General Counsel 

July 24, 2019 /s/ Bradley Grossman 

BRADLEY DAX GROSSMAN

Attorney

FEDERAL TRADE COMMISSION

600 Pennsylvania Avenue, N.W.

Washington, D.C. 20580

(202) 326-2994

bgrossman@ftc.gov

Of Counsel:

ELIZABETH C. SCOTT

JAMES H. DAVIS

JOANNIE WEI 

Attorneys

FEDERAL TRADE COMMISSION

Chicago, Illinois 60604

Case: 19-11932 Date Filed: 07/24/2019 Page: 60 of 62 
CERTIFICATE OF COMPLIANCE

I certify that the foregoing brief complies with the volume limitations of 

Fed. R. App. P. 32(a)(7)(B) because it contains 11,467 words, excluding the parts 

of the brief exempted by Fed. R. App. P. 32(a)(7)(B)(iii), and that it complies with 

the typeface requirements of Fed. R. App. P. 32(a)(5) and the type style

requirements of Fed. R. App. P. 32(a)(6) because it was prepared using Microsoft 

Word 2010 in 14 point Times New Roman type.

July 24, 2019 /s/ Bradley Grossman

Bradley Dax Grossman

Attorney 

Federal Trade Commission

600 Pennsylvania Avenue, N.W.

Washington, D.C. 20580

Case: 19-11932 Date Filed: 07/24/2019 Page: 61 of 62 
CERTIFICATE OF SERVICE

I certify that on July 24, 2019, I served the foregoing brief on counsel of 

record using the Court’s electronic case filing system. All counsel of record are 

registered ECF filers. 

Dated: July 24, 2019 /s/ Bradley Grossman 

Bradley Dax Grossman

Attorney

Office of the General Counsel

Federal Trade Commission

600 Pennsylvania Avenue NW

Washington, DC 20580

(202) 326-2994 (telephone)

(202) 326-2477 (facsimile) 

bgrossman@ftc.gov

Case: 19-11932 Date Filed: 07/24/2019 Page: 62 of 62