Document: 376 U.S. 605 84 S.Ct. 919 11 L.Ed.2d 940 Victor RABINOWITZ et al., Petitioners,v.Robert F. KENNEDY, Attorney General of the United States. No. 287. Argued March 2, 1964. Decided 30, David Rein, Washington, D.C., for petitioners. Stephen J. Pollak, Washington respondent. Mr. Justice GOLDBERG delivered opinion Court. 1 Petitioners, attorneys engaged in general practice law, instituted this declaratory judgment action, 28 U.S.C. § 2201, against respondent, States, States District Court Columbia. The complaint alleged that petitioners had been: 2 'retained by Government Republic Cuba to represent and its governmental agencies legal matters, including litigation, involving mercantile financial interests Cuba. * retainer does not cover advice or representation public relations, propaganda, lobbying, political other non-legal nor have plaintiffs advised, represented, acted on behalf any such matters.' 3 further respondent 'demanded (petitioners) register with under provisions Foreign Agents Registration Act 1938, as amended.' relief sought included a 'judgment declaring their activities representatives do subject them requirements registration amended *.' 52 Stat. 631, amended, 22 611. 4 That requires 'any person who acts agrees act public-relations counsel, publicity agent, information-service employee, servant, representative, attorney foreign principal 'Foreign principal' includes 'a government country party,' well partnership, association, corporation, organization, combination individuals organized laws of, having place business in, exempts from 'person engaging agreeing engage only private, non-political, financial, mercantile, furtherance bona fide trade commerce 5 Respondent moved pleadings. denied motion, but at request consent petitioner, court certified Appeals 'controlling question whether requested may rights adjudicated suit 6 Columbia, noting did challenge constitutionality Act, held, one judge dissenting, doctrine sovereign immunity required case be dismissed 'as an unconsented States.' 115 U.S.App.D.C. 210, 212, 318 F.2d 181, 183. We granted certiorari, 375 811, 71, 47. 7 hold, reasons stated below, plainly unquestionably register. Since we conclude was correct ordering dismissed, than those relied upon opinion, pass reasoning which arrived decision, occasion consider scope remedy doctrine.1 8 first enacted Congress June 8, 1938. It agents principals Secretary State.' '(A)gent defined engages 632. (Emphasis added.) 'the country, party domiciled abroad, business, organization Exempted definition 'agent person, performing principal.' In 1961, exemption section apply persons 'engaging private *.'2 75 784. Senate House Reports accompanying amendment state purpose follows: 9 'The so-called commercial has proved ambiguous. During hearings held H.R. 6817 86th Congress, bill identical 470, representative Department testified language contained led confusion unnecessarily difficult problems administration law. Argument been made if agent meets above-quoted conditions, distinguished meeting several all requirements, it need As rewritten, proposed changes sentence structure makes clear qualify obligation registering, must meet either two sets three requirements. They nonpolitical mercantile. If these characteristics is lacking, cannot therefore act.' S.Rep. 1061, 87th Cong., 1st Sess., p. 2; U.S.Code Congressional Administrative News, 3219. 10 See also H.R.Rep.No.246, Sess. Petitioners here are retained 'to litigation example 'activities' pursuant ratainer, cite appearance before recently decided Banco Nacional de v. Sabbatino, U.S., 398, S.Ct., 923. 12 Although work lawyer litigating might regarded 'private nonpolitical' activity, properly characterized 'financial mercantile' activity. statute history acti ity intended describe conduct ordinary character usually associated terms. See, e.g., 1783, 75th 3d Furthermore, although interest labeled mercantile,' deemed nonpolitical.' '(i)f lacking,' would impossible conclude, construction statute, 'only activities.' 13 therefore, petitioners, representing matters exempt registering Act. 14 support case, claim they completing forms 'make disclosure relation principal, numerous personal affairs unconnected Cuba.' concluding register, suggest answer questions forms. says some 'clearly inapplicable' others satisfactorily answered conclusory language, others, while 'framed terms,' disclosing facts 'bear reasonable relationship Under rules established printed themselves: 15 'If compliance requirement form appears particular inappropriate unduly burdensome, Registrant complete partial waiver requirement.' 16 Compare, CFR 5.201. 17 no attempt determine how much information disclosed, issue ripe adjudication Eccles Peoples Bank Lakewood Village, Cal., 333 426, 68 641, 92 L.Ed. generally Davis, Ripeness Governmental Action Judicial Review (pts. 1—2), Harv.L.Rev. 1122, 1326 (1955). 18 For reasons, petitioners' should and, accordingly, dismissal affirmed. 19 so ordered. 20 Judgment Borchard, Declaratory Judgments (2d ed., 1941); Challenging 'Penal' Statutes Action, Yale L.J. 445 (1943); Sovereign Immunity Suits Against Officers Relief Other Damages, 40 Cornell L.Q. (1954); Suing Officer, 29 U. Chi.L.Rev. 435 (1962); Jaffe, Governments Officers: Immunity, 77 (1963). This previously 1942 nonpolitical, 56 254.

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