Document: 54 L.Ed.2d 563 98 S.Ct. 584 434 U.S. 308 PFIZER, INC., et al., Petitioners,v.GOVERNMENT OF INDIA al. No. 76-749. Argued Nov. 1, 1977. Decided Jan. 11, 1978. Rehearing Denied Feb. 27, See 435 910, 1462. Syllabus by the Court A foreign nation otherwise entitled to sue in courts of this country held be a "person" within meaning § 4 Clayton Act and thus for treble damages under federal antitrust laws same extent as any other plaintiff. Pp. 311-320. (a) Though no statutory provision or legislative history clearly covers question whether is word used (which gives "any person" injured violations right district courts), Congress intended have broad inclusive meaning, light laws' expansive remedial purpose, has not narrowly construed term. 311-313. (b) did intend make treble-damages remedy available only consumers manifest from inclusion corporations definition fact that extend trade "with countries." 313-314. (c) To deny plaintiff an violation would defeat two purposes 4: deter violators deprive them " 'fruits their illegality,' "to compensate victims injuries." Illinois Brick Co. v. Illinois, 431 720, 746, 97 2061, 2075, 52 707. 314-315. (d) When enters our commercial markets purchaser goods services, it can victimized anticompetitive practices just surely private person domestic State, which Georgia Evans, 316 159, 62 972, 86 L.Ed. 1346, was laws; there reason why wanted others who suffer through laws. 315-318. (e) Foreign nations are generally prosecute civil claims United States upon basis individuals. afford protection does involve judicial encroachment policy, since governments recognized at peace with access country's courts, exclusive power Executive Branch determine sue. 318-320. 550 F.2d 396, 8 Cir., affirmed. Samuel W. Murphy, Jr., New York City, petitioners. Douglas V. Rigler, Washington, D. C., respondents. Mr. Justice STEWART delivered opinion Court. 1 In case we asked decide The respondents Government India, Imperial Iran, Republic Philippines. They brought separate actions Federal District Courts against petitioners, six pharmaceutical manufacturing companies. were later consolidated pretrial Minnesota.1 complaints alleged petitioners had conspired restrain monopolize interstate manufacture, distribution, sale spectrum antibiotics, §§ 2 Sherman Act, ch. 647, 26 Stat. 209, amended, 15 U.S.C. 2. Among allegedly engaged price fixing, market division, fraud Patent Office.2 India Iran each "sovereign state whom America maintains diplomatic relations"; Philippines independent government." Each respondent claimed antibiotics been damaged its business property sought 38 731, 15, on own behalf several classes purchasers antibiotics.3 asserted affirmative defense "persons" 4. response motions4 refused dismiss actions.5 trial court certified appeal pursuant 28 1292(b).6 Appeals Eighth Circuit affirmed, adhered decision rehearing en banc.7 Id., 400. We granted certiorari resolve important novel administration 430 964, 1643, 355. 3 * As observed, "turns interpretation statute." F.2d, 397. persons first provided 7 re-enacted 1914 without substantial change Act.8 Section provides: "[A]ny shall his anything forbidden may therefor defendant resides found agent, respect amount controversy, recover threefold him sustained, cost suit, including reasonable attorney's fee." 5 Thus, depends There atutory provides clear answer; seems apparent never considered time Acts enacted.9 6 previously noted scope remedies "The comprehensive terms coverage, protecting all made whomever they perpetrated." Mandeville Island Farms, Inc. American Crystal Sugar Co., 334 219, 236, 68 996, 1006, 92 1328; cf. Perma Life Mufflers, International Parts Corp., 392 134, 138-139, 88 1981, 1984, 20 982. And demonstrates phrase intending naturally meaning. mention floor debates more restrictive definition. Indeed, during course those interchangeably even broader connotation. For example, Senator said being given party," Edmunds, one principal draftsmen final bill,10 established "the anybody chooses sue." 21 Cong.Rec. 2569, 3148 (1890). law's taken technical semantic approach determining damages. Instead, "[t]he subject matter, context, history, executive statute aids construction indicate" proper law. Cooper 312 600, 605, 61 742, 744, 85 1071. II possess attributes could arguably exclude sweeping person." foreign, sovereign nations. A. 9 these attributes, argue that, statements general protectionist chauvinistic attitude evidenced debating contemporaneous tariff bills, should inferred protect consumers. Yet corporation damages, contained explicitly includes "corporations associations existing authorized . country." n.9, supra. Moreover, nations" well among Union. 2.11 Clearly, therefore, country.12 10 addition, petitioners' argument confuses ultimate invoke remedies. Congress' foremost concern passing Americans mean foreigners when violations. Treble-damages suits contribute 11 purposes: 'the fruits 707; Brunswick Corp. Pueblo Bowl-O-Mat, Inc., 429 477, 485-486, 690, 695-96, 50 701; supra, U.S., 139, S.Ct., 1984. purposes. It permit fixer monopolist escape full liability illegal compensation certain victims, merely because he happens deal customers. 12 exclusion plaintiffs lessen deterrent effect conspiracy operated domestically internationally.13 If permitted seek injuries, doing both abroad might tempted enter into conspiracies affecting expectation profits safely extort offset home. If, hand, potential must take account costs conduct, benefited maximum violators.14 B 13 second distinguishing characteristic contend understood passed governments. "person," however, term art fixed wherever used, nor 1890 Ac passed.15 Cf. Towne Eisner, 245 418, 425, 158, 372. expressly use create "hard fast rule exclusion" governmental bodies. 604-605, 743. 14 On previous occasions government laws, mechanical urged rejected.16 maintain action injury property. decided "by strict words application artificial canons construction," but analyzing language "in light, policy served enactment, but, well, construction." 744. distinct remedies: criminal prosecutions, injunctions, seizure "granted redress injury" other. 607-608, 745. Statements congressional further evidence affirmatively remedy. 611-612, 746-47. bring suit damages.17 very next Term, Act. Appeals, believing contro led, like Government, "person." This reversed, noting hold "that 'person,' abstractly considered, include body." 161, 973. Cooper, rest bare analysis relied instead entire context Unlike States, "had chosen itself three potent weapons enforcing Act," 973, State enforce prohibitions also "would mulcted violator Law, State." 162-163, 974. Although indicate ever sue, believe 16 Evans rejected proposition excludes states. reasoning leads conclusion nation, pursue State. provide alternative do States.18 equally applicable here: 17 "We perceive [foreign nation], commodities shipped [international] commerce, Nothing justify so 'person' Such nation]." III 18 result reach concept jurisdiction courts. long claim individual do. "To privilege want comity friendly feeling." Sapphire, Wall. 164, 167, 127; Monaco Mississippi, 292 313, 323 n.2, 745, 748, 78 1282; Banco Nacional de Cuba Sabbatino, 376 398, 408-409, 84 923, 929-930, 804; see U.S.Const., Art. III, 2, cl. 1.19 allow than specific long-settled rule. protections would, conspicuous exception rule, tha justified absence intent. 19 Finally, require Judiciary way interfere sensitive matters policy.20 us Jones 137 202, 212, 80, 83, 34 691; Guaranty Trust 304 126, 137-138, 58 785, 791, 82 1224; 408-412, 929-31. today qualifies complete deference Branch.21 Neither afforded Accordingly, judgment 22 Affirmed. 23 BLACKMUN took part consideration case. 24 Chief BURGER, POWELL REHNQUIST join, dissenting. 25 holds suppliers reaches extraordinary holding sovereigns "persons," while conceding paradoxically "was enacted." Ante, 312. I dissent undisguised exercise power, find plainly odds precedents resolution delicate issue giving 150 countries benefits enacted left Executive. Congressional silence over period almost century license political vastly expanding enacted. 27 starting point every involving itself." Blue Chip Stamps Manor Drug Stores, 421 723, 756, 95 1917, 1935, 44 539 (1975) (Powell, J., concurring). relevant provisions here defined, conferred falling precisely enumerated categories. provides, part: 'persons' deemed either Territories, 29 then incorporates providing: 30 "Any anti-trust 31 Even most reading, sections slightest indication included despite explicit reference "laws country" ought dispositive doctrine governing statutes. therefore omission deliberate. 32 sense argues different characterization At passage Acts, sovereigns, acting capacities, immune immunity. Schooner Exchange McFaddon, Cranch 116, 287 (1812); Ex parte Peru, 318 578, 63 793, 87 1014 (1943); Mexico Huffman, 324 30, 65 530, 89 729 (1945). corporations, course, such See, e. g., Shaw Quincy Mining 145 444, 453, 935, 938, 36 768 (1892); re Hohorst, 653, 662-663, 221, 224-25, 37 1211 (1893). Given refers defendants, 606, 1071 (1941), omitting likely reflects differential susceptibility rather intent benefit enlist help little short preposterous think concerned about rights though now. 33 Respondents' disparate treatment cannot states effectively control many large immunity limited Sovereign Immunities 1976, Pub.L. 94-583, 90 2891, appropriately addressed revisions required contemporary circumstances, task properly particularly nature implications question. Court's reliance references "for ign support specifically commerce disputed similarly unavailing. threshold entail desire willingness Webb-Pomerene 50, 40 516, seq., few years indicates expense consumers.1 35 event, subsequently incorporated respondents' contention. "commerce appeared draft reported Senate Committee, replaced numerous earlier drafts following effect: "That arrangements, contracts, agreements, trusts, combinations between view tend prevent free competition production, articles growth imported hereby declared public unlawful void ." 2598 (1890) (first draft) (emphasis added).2 focus importation clear, attention affording comparable exports. substituted Committee—language tracking appearing Commerce Clause—was mollify objections Senators felt proposed exceeded constitutional regulate see, id., 2600, 3147 (remarks Sen. George); 2728 Edmunds); 3149 Reagan); Apex Hosiery Leader, 310 469, 495, 60 982, 993, 1311 (1940); Atlantic Cleaners & Dyers, 286 427, 434-435, 607, 609, 76 1204 (1932); work substantive Wise, 370 405, 420, 1354, 1363, 590 (1962) (Harlan, read evidencing simply belies lineage. reached statute. five eight judges concluded—and indeed majority concedes, ante, 312—"Congress, gave whatsoever, concerning Act." 399 (Ross, concurring) added). conversion 1978 startling. 39 failure consider granting clearest possible leaving process birth Acts. rely express taking advantage remarkable innovation interpretation. strange camouflage unassailable offers today. Further, observed last exist "indicate[s] conceived primarily '[t]he people individuals,' especially consumers." 486 n. 10, 696, 701 (1977), quoting 1767-1768 George). What recently saw now extended world—a boon choose grant done so. C helpful attempts base reading Frankfurter's 1346 (1942), fail how dictates one. 41 Frankfurter concluded absent analogizes situation finds analogy dispositive. viewed solely plight may, respect, roughly comparable. But inquiry precludes manifold patently obvious respects differ—cogent differences bearing here, obviously Evans. 42 First, legitimate source assumption intended—or contemplated categories entities essentially alike conduct. already suggested, derives history. beneficiaries perceived, unmistakable denying surrogate citizens whose acts tolerable liberties literal statute, congruence purpose scarcely doubted. logic, remotely apply 43 Second, remedy, denied effective means corporations. freedom regard constrained Supremacy Clauses, remain enact statutes impose drastic sanctions offending One need look possessed indeed, amicus West Germany demonstrated mere idle enactments. During pendency action, notified petitioner Pfizer proceeding German law commenced some allegations complaint filed country. While problems discovery render defendants somewhat problematic country, experience Common Market applying suggests difficulties certainly insoluble exaggerated. Europemballage E. C. Commission, Comm.Mkt.L.R. 199 (1973); Commercial Solvents 309 (1974). And, presently treaty indicates, reciprocal agreements providing cooperation investigations undertaken mitigating rigors jurisdictions. Agreement Relating Mutual Cooperation Regarding Restrictive Business Practices, entered force Sept. 1976. States—Federal Germany, [1976] U.S.T. 1956, T.I.A.S. 8291. 45 Third, takes imagination realize dramatic real coercive economic interests distinguish sovereigns. international boycotts, current Middle Eastern illustrative arsenals employ. Nor meaningful sense, conflicting antagonistic ideologies characterize enliven relations 46 Viewed standards competitive behavior fixing flout relationships dramatically faced determinative substitute inclusion" Justices Roberts eschewed respectively. Only prior precedent will result. 47 confronts anomaly engage flagrant kinds totally concepts, nevertheless plus attorneys' fees. answer say needs reserved overlooks antitrus hardly compare infinite array producers suppliers. This, again, underscores completely problem matter resolved branches intrusion Judiciary. D 48 emphasis effects withstand critical scrutiny. acknowledged play role deterring wrongdoers, designed remedy." reverses priority purposes, uninformed speculation beneficial consequences "maximum deterrent." 315. areas far less delicacy, unwilling expand Hawaii Standard Oil 405 251, 264-265, 885, 892, 184 (1972).3 49 reasons sphere. POWELL, 51 join THE CHIEF JUSTICE dissent, add emphasize my difficulty decision. businesses countries. resolves favor construing "foreign governments." No seriously acknowledges "question 53 Despite consideration, inviting possibility world.1 With minor exceptions, recognizes assume equivalent unlikely opportunities major Acting Solicitor General stated Memorandum Amicus Curiae, March 23, 1977: 55 "Whether largely reflected opening sovereigns." 56 thought accepted questions "general policy"—especially authority—are beyond province Judicial Branch. truly dictated reaching today's Union "perceive 162, 57 majority, 318. them. predicate present before us. solicitude welfare legislation removed competence entrusted assumed Putting differently, illogical 4, quantum leap court, hearings illuminate considerations if Congress, competent best interest regrettable necessary rush judgment.2 Similar Spain, South Korea, Colombia, Kuwait, Vietnam. Vietnam party named petition certiorari. Subsequent filing Vietnam's dismissed ground longer Vietnam; dismissal affirmed Appeals. 556 892 (C.A.8). participated Some withdrawn pending. antibiotic litigation originated Trade Commission resulted order requiring Cyanamid applicants licenses patents antibiotics. Charles FTC, 401 574 (C.A.6). Criminal proceedings Pfizer, Cyanamid, Bristol-Myers eventually dismissed. Chas. 367 F.Supp. 91 (S.D.N.Y.); 426 (C.A.2), modified, 437 957, aff'd divided Court, 404 548, 721. Most number settled. Virginia 314 710 (S.D.N.Y.), aff'd, 440 1079 (C.A.2). Respondents sued parens patriae capacity; here. Lord, 522 612, 615-620 Petitioners moved Iran. strike defense. motion related Antibiotic Antitrust Actions, 333 315 (S.D.N.Y.). An stipulation parties. Appeals' marked appellate issue. mandamus denied. Two dissented, Three joined concurring controlling urging action. 399-400. repealed 1955 redundant. 3, 69 283; S.Rep.No.619, 84th Cong., 1st Sess., (1955), U.S.Code Cong. Admin.News 1955, p. 2328. "shall 7, 12. exclusive, imply government, natural person, falls bounds. Helvering Morgan's 293 121, 125 60, 61, 79 232; Telephone 169 364, 370, 376. 489 989, 1311. JUSTICE's Act's Post, 323-324. limited, exports well. Timken Roller Bearing 341 593, 599, 71 971, 975, 1199; Minnesota Mfg. 947 (Mass.). narrow carefully export activity violate Concentrated Phosphate Export Assn., 393 199, 361, 344. excluding non-Americans cases consistent applicability commerce. suggested depriving encouraging affect ways well: raising worldwide prices contributing inflation; discouraging entrants undercut monopoly country; allowing accumulate "war chest" police cartels defend legal attacks. Velvel, Suits Nations, Cath.U.L.Rev. 7-8 (1975). establishing Fox, 94 315, 192, adopted York's Statute Wills, 320. settled Compare Will N.Y. sub nom. Honduras Soto, 112 310, N.E. 845. fact, extending "persons." Stanley Schwalby, 147 508, 514-517, 420-421, 259; Dollar Savings Bank 227, 239, 80; Cotton How. 229, 231, 675. Cases era invariably Ohio Helvering, 360, 725, 1307 ("person" 3140 3244 Revised Statutes 1878 State); California 320 577, 585-586, 64 352, 356, 322 Shipping 1916, 801 city); Chattanooga Foundry Pipe Works City Atlanta, 203 390, 65, 66, 241 city). earlier, Foundry, discussion city amended single Ch. 283, 282, 15a. says "weapons sufficient enable counter post, 327-328, monopolistic supply medicines needed health safety people. entertain suits: original where controversy exceeds sum value $10,000, costs, between— "(4) States." 1332(a)(4) (1976 ed.). common-law torts, unfair competition, similar claims. French Saratoga Vichy Spring 191 145, 247 (1903); La Republique Francaise Schultz, F. 500 (SDNY 1899). letter presented reconsidered banc, Legal Adviser Department advised anticipate [were be] 4." copy Curiae opposition writ exempts exemption applies association's exported products competitor association. 62. regarded carving out considerable conduct exporters meeting conditions specified violated putative exemption. H.R.Rep. 65th (1917). subsequent 2598-2600 adverts advising anticipated significance communication escapes me. Constitution exercised jointly 162 quotes problems" embrace 319 supplied). States. latter quite Legislative conducted social ramifications great importance

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