Document: 342 U.S. 308 72 S.Ct. 338 96 L.Ed. GUESSEFELDTv.McGRATH, Attorney General as Successor to Alien Property Custodian. No. 204. Argued Nov. 29, 1951. Decided Jan. 28, 1952. Mr. William W. Barron, Washington, D.C., for petitioner. James D. Hill, respondent. Justice FRANKFURTER delivered the opinion of Court. 1 This is a case brought under § 9(a) Trading with Enemy Act, 40 Stat. 411, amended, 50 U.S.C.A.pp. et seq., U.S.C.A.Appendix, seq.,1 recover property vested by The District Court granted Government's motion dismiss, holding that plaintiff, while not 'resident within' Germany within meaning 2 and thus 'not an enemy' purposes 9(a), was precluded from recovering 39 which provides 'No * Germany, Japan, or any national either such country in Government pursuant provisions this shall be returned former owners thereof *.' 62 1240, 1246, U.S.C.App. (Supp. IV, 1946) 39, 39,2 89 F.Supp. 344. Appeals Columbia Circuit affirmed. 88 U.S.App.D.C. 383, 191 F.2d 639. We here clarification restrictions imposed remedies open Act. 810, 52. Accepting allegations true purpose dealing legal issues raised motions situation before us may briefly stated. Guessefeldt, German citizen, lived continuously Hawaii 1896 1938. In April year he took his family vacation. After outbreak war, unable secure passage home March, 1940, when reentry permit expired. When United States entered involuntarily detained first Germans after 1945 Russians, until July, 1949, country. During time did nothing directly indirectly aid war effort enemy. 3 question decided whether claimant territory nation at §§ He physically enemy's territory. contends, however, conveyed something more than mere presence; least domiciliary connotation, if domicile, implied. 4 Legislative history leaves shrouded. Some use term 'domicile' touchstone enemy status found Congressional hearings reports.3 But on floor, Representative Montague, one managers bill, unequivocally stated close questioning statutory language intended cover much those domiciled nations. Yet prisoners expeditionary forces 'sojourners' were not, said, included. 55 Cong.Rec. 4922.4 5 Guessefeldt retained American domicile. Moreover, anything physical presence required, it would seem clear 'enemy' 2. His stay matter choice, short. circumstances negative desire permanent long-term connection Germany. intended, indeed attempted, leave there war. Being constraint, almost literally excepted class authoritatively indicated Montague. To hold implies less domicile consistent emanations manifested entire relevant extrinsic light, including decisions lower courts issue, we note without specifically approving them. See McGrath v. Zander, 85 334, 177 649; Josephberg Markham, Cir., 152 644; Stadtmuller Miller, 11 732, 45 A.L.R. 895; Vowinckel First Federal Trust Co., 9 10 19; Sarthou Clark, 78 139. 6 has further obstacle can succeed. Congress 1948, so argument runs, adopted 'policy nonreturn,'5 prohibited restoration 'national' A citizen national, citizen. Thus, even though may, enactment have been entitled bring suit nonenemy privilege since cut off. counters must construed harmoniously 9(a); new section accordingly taken mean only Japanese citizens who could theretofore enforced return their right. Section context its legislative light scheme background statute, makes contention unpersuasive. 7 It Custodian lawfully vest good deal against action. Central Union Co. New York Garvan, 254 554, 41 214, 65 403; Clark Uebersee Finanz-Korp., 332 480, 68 174, 92 880. Thus had make provision disposal two classes property. Nonenemy property, 5, recoverable see Becker Steel America Cummings, 296 74, 56 15, 80 54. second class, owned 'enemies' therefore subject recovery reserved disposition '(a)fter end direct.' 423, 12, 12. 8 both wars, adopt measures dispose Treaty Berlin, 42 1939, World War I, confirmed possession States. Junkers Chemical Foundation, Inc., 287 F. 597; Lange Wingrave, 295 565; Klein Palmer, 18 932. For present does action simply claims regarded rightful withholding spoils Settlement Claims Act 1928, 254, 270, 9(b)(12), (13), (14), (16), 9(m), 9(b)(12—14, 16), (m), provided admittedly 80% Cummings Deutsche Bank und Disconto-Gesellschaft, 300 115, 57 359, 81 545.6 32 60 50, 32, enacted II, administrative returns certain 'technical' enemies ineligible 9(a). treated otherwise recovery, consistency pattern preserved. On other hand, significant requiring retention mark departure what appears heretofore policy. passed part measure establishing commission problem compensating internees others suffered personal injury damage hands II enemies. attention focused nature extent these methods adjudicating involved peripheral concern. Reading lends support view conceived return. Senate opened detailed testimony analyzing value assets left payments administration liquidation, disbursements satisfaction judgments suits Hearings Subcommittee Committee Judiciary H.R. 4044, 80th Cong., 2d Sess. 12—21. also id., 44, House Interstate Foreign Commerce 873, 1st 264. seems legislation looks fund, conclusion reinforced 'The net proceeds remaining upon completion administration, interest therein covered into Treasury earliest practicable date.' tenor demonstrates no change existing scope reason proviso effect included assumption—unwarranted evidence committees discussed below—that rights case.7 Indeed, terms 'enemy,' alien,' 'enemy national,' 'German national' are used interchangeably hearings, committee members but witnesses Office Property, regard precise shades By manifesting 'firm resolve recurrence events I led owners.' H.R.Rep. 976, Those events, seen, culminated 1928 permitting defined assets. major controversy reversal post-World policy justifiable international law appropriate course Opponents considered nonreturn' applied admitted illegal, unjust, confiscation private point—and issue case—were directed references reports, 2, debate, 94 550 551, relies. 12 them calling very now issue. Commerce, supra, 265; Judiciary, 197, 254. And witness presented draft substitute section, complex sure, expressly saved cases like Guessefeldt's operation bill. Id., 233—236. suggestion acted committee. whole, meagre unimpressive. largely written form, likely seen impact reflect views. These considerations, together character committees' point view, failure appreciate technical significance framework fact matters touched floor debate—all go far overcome presumption claimant's rejected. 13 decision require decide debatable constitutional questions. citizens, construed, over objection, repayment just compensation liquidated supra; Henkels Sutherland, 271 298, 46 524, 70 953; page 566, 215; Stoehr Wallace, 255 239, 245, 293, 296, 604. Such construction, encessary preserve doubt. too friendly aliens protected Fifth Amendment requirement compensation. Russian Volunteer Fleet States, 282 481, 51 229, 75 473. remains position deemed alien. More broadly, reach protection? thrust bars showing citizenship. Ex parte Kawato, 317 69, 63 87 58, holds common well interpretation resident interned, permitted access courts. Venus, Cranch 253, 553, say law, absence hostile acts, status, trade, follows location nationality. Cf. Miller Wall. 268, 310—311, 20 135. 14 side (then Judge) Cardozo's careful Techt Hughes, 229 N.Y. 222, 128 N.E. 185, 166, country, wherever resident, alien mitigation rigors right sue, grace. suggests, alien' trade different purposes, had, course, occasion consider difference attained dimensions. proclaimed dangerous during damages equitable relief, Judges Hough, L. Hand Mack held 'the government prohibition confiscating nationals, nonresident.' 934. court's nonenemies broader Amendment. 15 Certainly, imaginary, claim frivolous rejected favor. Considering easily assumed, construction avoids barred fair reading invited. 16 concern problems once complicated far-reaching repercussions. Instead carefully matured enactment, makeshift patchwork. strongly counsels literalness application. favors wise latitude enforcing purposes. 880; Markham Cabell, 326 404, 66 193, 90 165; Silesian-American Corp. 469, 179, 81.8 None considerations canvassed standing alone conclusive favor claimant. Perhaps none, itself, justify cumulative effect, places bounds reasonable construction. said enough show free balance, think properly applying japanese nationals 17 judgment below reversed. Reversed. 19 CLARK consideration case. Chief VINSON, whom REED MINTON join, dissenting. 21 dissent because read written. That plainly forbids 'any Japah.1 Petitioner itself concedes national. 320, 345. permits petitioner, limiting application some namely 2(a) 22 given definition. 'National' 'a subject, foreign country' Executive Order 8389,2 regulation 'approved, ratified, confirmed' 1941.3 applies out inserting 2(a). Since apparent face statute chose assimilate clearly terms, should not. 23 Just day, '(w)e free, guise amend (a) statute' 'carefully distinguished separately words same thing.' Pillsbury Engineering 1952, 199—200, 223, 224. departing standard case, rewrites 1917, will conform closely own notions symmetry. Condemning 'makeshift patchwork' 1948 addition Congress. Statutory revision our judicial function legislature. 24 my basis legislatively 39. broadened inquiry. Even Court's basis, result cannot squared bankground Congress' power 25 At outset, understood petitioner's vested, every ordinary sense term. So long citizenship German, became declaration whereever residence whatever sentiments. throughout history.4 today acknowledges 1920, exhaustive review authorities. added recently rationale Johnson Eisentrager, 1950, 339 763, 771—773, 936, 940—941, 1255. Nor need look definition status. 'alien enemies' 'all natives, denizens, subjects government'.5 As classification between friend based citizenship, ever 'doctrinaire,' 'validated actualities modern total warfare.' 772, 941. 26 When, solely 'for of' aware ordinarily determined 'nationality allegiance individual' rather 'domicile residence.'6 However, time, limit include persons territory—a petitioner pleadings represented deliberate 'relaxation' 'modification' ememy property.7 modification followed program, culminating authorized seized owners.8 27 complete soft I. 1941, extended seizure vesting all thereof' exercising 'to affirmatively compel manner States.'9 1946, authorizing conditions, prevented 'citizen (an enemy) nation' 'present nation'.10 Finally, thereby expressing recurrence' returning property.11 reporting favorably stated: 28 nonreturn noncompensation sound public law. violate concepts morality. No essential exists Japan. several years Japan preparing countries rigid control respective governments. While fiction ownership retained, actually widely accomplish objectives countries. 29 (with respect countries) somewhat analogous bankrupt apt filed amount greatly excess bankrupt's legitimate alone, account expense incurred fighting most exceed many times available payment considerable period years. Under expedient marshal country.'12 30 policy, petitioner's, satisfy arising aggression. non-return restricts primary 9(a)—to provide mistakenly countries—is preserved.13 word harmonious particularly property14 statute. 31 Looking notes congressional injured With victimes aggression pressed it, surprising that, balanced Custodian, 'nationals' merely restrictively 1917. fairly suggested inadvertent. Objections restriction resulting instead statement oral committee.15 offered proposed amendment limited described nationals.16 claim. substituted narrowly hence drasticlly today. closes which, says, 'is imaginary.' above, settled purposely restrictive 'There properties.' 1926, 272 1, 11, 47 71 131, cited therein. relaxed 1917 finds Court.17 33 Petitioner, certainly Ludecke, barrier Ludecke's summary removal scrutiny 1798. Ludecke Watkins, 335 160, 1429, 881. relied excerpt paragraph Marshall Brown 1814, 110, 126, 504, 164, S.Ct 1430, full reads follows: 'War gives equal property: prescribing respecting person coutry, neither prescribe act concerning enemies, confers president great discretionary powers persons, affords strong implication possess virtue war.' 34 Any doubts 'equal property' vanished decision. Compensation Clause, Due Process Bill Rights. decision, 'it savor doctrinaire audacity find offensive emanation Rights.' 171, 1434, admonition case: 'Respecting doubt entertained. sovereign take confiscate found, conceded. mitigations rule, humane introduced practice, affect exercise right, impair itself. undiminished, authority chuse operation, department give will. expressed, condemnation exist Court.' pages 122—123, 504. 35 having expressed unmistakable enforce, frustrate, command. Sec. herein, mean, trading Act— '(a) individual, partnership, body individuals, nationality, (including occupied military naval forces) outside doing business territory, corporation incorporated territory.' 9. claiming interest, title money conveyed, transferred, assigned, delivered, paid him hereunder Treasurer file custodian notice oath form containing particulars require; (S)aid institute equity Supreme district court resides, or, corporation, where principal place (to be, made party defendant), establish title, debt claimed, established order payment, conveyance, transfer, assignment, delivery determine entitled.' 2(a), transferred officer agency December 17, successors pay date. Nothing repeal Philippine 1946.' Statement Hon. Robert Lansing, Secretary State, 4704, 65th 3, 4. Assistant Charles Warren, draftsman testified 'domiciled' 34. Report speaks being nationality commercial residing H.R.Rep.No.85, validity additionally explanation report parallel 'doing According meant 'having branch actively conducting country.' S.Rep.No.111, say, standards, substantial, casual transitory it. H.R.4960, 136—137. H.R.Rep.No.976, resolution July 1921, terminating state 'All Imperial come made, except hereafter law.' 105, 106. Versailles, art. 297(d), exceptional measures, transfer final binding persons.' 297(i), undertook compensate her sale interests Allied Associated States.' Versailles Treaty, appendices defining 'exceptional measures' cutting off officials wartime An agreement August 10, 1922, 2200, Mixed Commission adjudicate Provisions successive amendments waive 20%. funding Junt 23, 1930, deposited bonds settlement awards Commission. defaulted payments, Congress, Public Resolution 53 June 27, 1934, 48 1267, suspended deliveries up arrears. House, bill contained suspending debts owed citizens. Beckworth, sponsored provision, urged suspend so-called 'title claims' well. committee's 'no act.' 124. Both omitted reported Senate. Although bit reveals confusion about tolerably affected legislation. Other review, six contends five accepted urges Schill McGrath, 339; Lippmann 1016; Bellman Clark,* Civ.No.47—229 (S.D.N.Y. 8, 1948); Mittler D.C.D.C.1950, 102 1007; Janner Civ.No.3685—49, D.C.D.C.Mar. 31, 1950. true, line adjudication pause upsetting three conflict here. Mittler, Lippmann, plaintiffs they ascribed section. possibly Schill, plaintiff interned might apparently bar suit, although theory follow. analysis shows near unanimity contends. publication. (Emphasis supplied.) 1246 (1948), IV) 5(E)(i), Fed.Reg. 2897, 2898 (1941), U.S.C.A. 95a note. 838, 840 617. Rapid, 155, 161, 520; White Burnley, 1858, How. 235, 249, 886; Venice, 1865, 258, 274, 866; Benito Estenger, 1900, 176 568, 571, 489, 490, 44 592; Herrera 1912, 222 558, 569, 181, 316. 1798, 577, U.S.C. 21, 21. similar naturalization laws. 153, 154 (1802), R.S. 2171. exempted draft, meaningless nations 76—78, 885, 955 (1917 1918). (1917). Ibid.; (1917); 4842 1942, 76 77, 119, 58. 270—274 (1928), 9(b)(12) (14) (m). Returns postponed 1934 appeared Gernany default claims. 1267 (1934). 839 5(b), 5(b); S.Rep.No.911, 77th (1941). 1947, 177, (1946), 32(a)(2)(D), 32(a)(2)(D). (1947). 2—3. originally designed protect (1917), bulk (1948). 1946 patent likewise conforms pattern. enemy.' 1313, 1314, 86, 86. infringement 940, 944, 111, 111. deliberate. next refers 'rights 112, 112. drafted Patents, H.R.Rep.No. 1498, 79th 2111 (§ 9), rejecting 1921 4079 10). done called Patents 4079, 105 (1945). 197—198, 233—234 254—255, 551 235. alien's federal touch extension hardly supports 475, 182, 81, (Art. cl. 11), interpreted Court, acting nation. Unquestionably wage successfully, (Inc.) 4, 131.' added.) discussing 'friendly aliens,' obvious reference 475—476, 479—480, 181—184, 81.

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