Document: 385 U.S. 475 87 S.Ct. 574 17 L.Ed.2d 526 UNITED STATES, Appellant,v.Lee Levi LAUB et al. No. 176. Argued Nov. 16, 1966. Decided Jan. 10, 1967. Nathan Lewin, Washington, D.C., for appellant. Leonard B. Boudin, appellees. Mr. Justice FORTAS delivered the opinion of Court. 1 Appellees were indicted under 18 U.S.C. § 371 conspiring to violate 215(b) Immigration and Nationality Act 1952, 66 Stat. 190, 8 s 1185(b). The alleged conspiracy consisted recruiting arranging travel Cuba 58 American citizens whose passports, although otherwise valid, not specifically validated that country.1 2 District Court granted appellees' motion dismiss indictment. Chief Judge Zavatt filed an exhaustive (253 F.Supp. 433 (D.C.E.D.N.Y.)). Notice direct appeal this was we noted probable jurisdiction 3731 because dismissal 'based upon * construction statute which indictment is founded.' We affirm. Our decision rests entirely our relevant statutes regulations. 3 Two are case. first Passport 1926, 44 887, 22 211a. This general authorizing Secretary State 'grant issue passports.' It a criminal statute. second supra, present indictments brought. Section enacted on June 27, 1952. re-enactment May 22, 1918 (40 559), 21, 1941 (55 252). provides that: 4 'When United States at war or during existence any national emergency proclaimed by President (when) shall find interests require restrictions prohibitions (b) be imposed departure persons from their entry into States, make public proclamation thereof, it unlawful citizen depart enter, attempt unless he bears valid passport.' (Italics added.) 5 Wilful violation subjected fine more than $5,000 imprisonment five years, both. 6 On January 17, 1953, Truman made finding required 215(b).2 As consequence, passport has been nationals its territories, except as areas exempted adopted regulations had promulgated predecessors exempting requirement 'any country territory in North, Central, South America (including Cuba).' CFR 53.3(b) (1958 rev.). 3, 1961, broke diplomatic relations with Cuba. Deputy Under Administration issued 'Excluding Cuba' amendment (22 53.3 (1965 rev.), 26 Fed.Reg. 482). That added two words 'excluding phrase quoted above. thereby included States. 7 same day, Department also Public 179, stated 'Hereafter passports endorsed such authority State. *' 492. simultaneously press release announcing '* view Government's inability, following break between Cuba, extend normal protective services Americans visiting desiring go must until further notice obtain travel. All outstanding being declared invalid These actions have taken conformity Department's practice limiting those countries does maintain relations.'3 9 In Zemel v. Rusk, 381 1, 85 1271, 14 179 (1965), petitioner sought declaratory judgment statutory authorization impose area travel; if construed authorize do so, would impermissible delegation power; that, event, exercise power restrict denied his rights First Fifth Amendments. rejected petitioner's claims sustained Secretary's refuse validate found vested 1926 Act, relying successive 'imposition both times periods peace' before after enactment 1926. U.S., 8—9, S.Ct., 1276—1277. declined Solicitor General's invitation rule 'travel restriction 1952 Act.' Id., 12, 1278.4 10 now confront question. therefore narrowly construed. Wiltberger, Wheat. 76, 95—96, 105, L.Ed. 37 (1820) (Marshall, C.J.). urge read 'border control' statute, requiring only may 'depart enter' without 'a basis, they argue, appellees did conspire since all who went departed re-entered bearing passports. Only if, Government urges, can given broader meaning so encompass specific destination control—only traveler bear departs returns'—would guilty violation. 11 begin fact, conceded Government, 'Section not, many words, prohibit violations restrictions; speaks, district court Laub case language control regulating States." Brief p. 11. Nevertheless, requests us sustain prosecution reverse ground somehow, 'the text broad enough departures geographically restricted *.' Ibid. conclude, however, proceeding cannot applied fashion. Even ingenuity able concealed basis cirminal prosecution, factors take account, drawn history preclude reading. 12 Preliminarily, essential recall nature function passport. A document identifying citizen, effect requesting foreign powers allow bearer enter pass freely safely, recognizing right protection good offices consular officers. See Urtetiqui D'Arcy, Pet. 692, 699, 276 (1835); Kent Dulles, 357 116, 120 121, 78 1113, 1115—1116, 1204 (1958); Hackworth, Digest International Law 435 (1942). 1101(a)(30). 13 observed, 'The part 'liberty' deprived due process law 125, 1118. Aptheker State, 378 500, 517, 84 1659, 1669, 992 (1964); (1965). predecessor statutes, Congress authorized possess States,5 there no doubt adoption promulgation regulation, Departure 215(b), exposing penalties provided section. But follow offense. Violation 'area restriction'—'invalidating' validation Cuba—is quite different matter thereunder 'valid passport' 15 applicable 'Public Notice' release, pp. 478—479, neither referred sanctions. contrary, reference base announcement appears Notice,' nonpenal Executive Order 1938.6 merely incidental respect supra. They purport designated unlawful. 16 time expressly explained action 'in inability Cuba.' 'normal practice' relations.7 practice,' will discussed, short, promulgations devoid suggestion specially prohibited, conduct, but contain positive suggestions purpose clear regarded voucher normally afforded Department. keeping unbroken tenor pronouncements restrictions. Prior occasions while Acts (1918—1921 1941—1953).8 similarly specified sanctions.9 each instances, related intended invoke disregarded. cast exclusively civil terms, relating 'safe passage' functions.10 these emphasized civil, nonprohibitory restrictions.11 For example, Eastern European countries, China, Soviet Union. 'invalidation' way forbids areas.'12 Since announced three addition Cuba.13 Again, fully operative, none declarations purported section Each them, like sounded terms withdrawal safe-passage Department.14 19 1957, Senate Foreign Relations Committee asked Department: 'What mean when stamped 'not X'?' After months sent official reply. stamping 'means enters X assured (but it) necessarily travels violating law.'15 Similarly, hearings another Committee, marked 'invalid' means 'this sponsoring individual give him permission Government.'16 20 Although records show approximately 600 violated 215(b),17 prosecutions attempts convict transgressions.18 21 Until indictments, consistently position prohibition. 1957 hearings, above, Acting Director Bureau Security Consular Affairs, testified knew providing penalty going covered (as distinguished departing entering States).19 well others, repeatedly called attention need consideration legislation making offense effect,20 enacted.21 overwhelming evidence restrictions, agree herein allege crime. If gap law, duty, any, fill devolve courts. restriction, special regulation Act. represented charge 23 Crimes created inference. constructed nunc pro tunc. Ordinarily, punished undertaken faith reliance authoritative assurance punishment attach. said Raley Ohio, 360 423, 438, 79 1257, 1266, 1344, exercising privilege clearly told available him.' emphasized, sanctions supportable 'vague undefined' commands (citing Lanzetta New Jersey, 306 451, 59 618, 83 888 (1939)); 'inexplicably contradictory' Cardiff, 344 174, 73 189, 97 200 (1952)); certainly conduct constitutes 'active misleading' Johnson 318 197, 63 549, 553, 704 (1943)). 24 charged nonexistent prohibition, consider other issues presents. 25 Accordingly, affirmed. Affirmed. APPENDIX TO OPINION OF THE COURT. 27 statements connection foregoing opinion: 28 (1) Press Release 24, Dept. Bull. 178: 29 remaining 30 contemplates exceptions best newsmen businessmen previously established business interest. 31 'Permanent resident aliens obtained through Naturalization Service. 32 'Federal amended put requirements effect. 33 'These relations.' 34 (2) 341, 736: 35 taking additional steps warn risks Iron Curtain 36 'In announcement, procedure areas. consult consulates abroad ascertain dangers traveling where acceptable standards prevail objection perceived, authorized. 'All new follows: THIS PASSPORT IS NOT VALID FOR TRAVEL ALBANIA, BULGARIA, CHINA, CZECHOSLOVAKIA, HUNGARY, POLAND, RUMANIA OR UNION SOVIET SOCIALIST REPUBLICS UNLESS SPECIFICALLY ENDORSED UNDER AUTHORITY DEPARTMENT STATE AS BEING SUCH TRAVEL. 38 equally subject occasion permits.' 39 'Freedom Travel,' 1958 Report Special To Study Procedures Association Bar City York, characterized 'an honest admission lack enforce nature.' At 70. gave practical 1954 informed Bulgaria could 'use, affidavit lieu passport,' permit them entry, (would hold) objection.' Hearings Policies Relations, 85th Cong., 1st Sess. (1957), 65. 40 (3) 530 (1942) (1919 Germany restriction): 41 issuing issuance Germany. However, interposes important urgent transact there. situation, should understand own responsibility risk. guaranteed might expect conditions.' response bill particulars, individuals concerned possessed 'unexpired unrevoked Proclamation 3004, 67 C31, 180 (1949 1953 Comp.). current 'National Emergency' Dec. 1950. 2914, 64 A454, 99 (1949—1953 178. full Appendix opinion. cf. Healy, 376 75, 83, n. 7, 558, 527 (1964). exception rather engaged 121—123, 1115—1117, Jaffe, Right Travel: Problem, Affairs (1956). recites 'pursuant me Sections 124 126 7856, March 31, 1938 (3 F.R. 681, 687, 51.75 51.77) July hereby Presidential August 8, 1918, 1921. 1829 1359.) proclamations congressional extensions November 14, 1696), April (66 57, 96, 137, 333), date already See, 477, 1. Restriction 1919 2. 1950 Hungary 399). 3. 1951 Czechoslovakia (24 932). 4. (26 7). 5. East Union 736). Europe, Union, China restriction. texts announcements ,1. 1955 Albania, Bulgaria, North Korea, Viet Nam (33 777). 1956 (34 248). Egypt, Israel, Jordan, Syria (35 756, 8577). Syria, 13, recited basis. mention 215(b). 8577. Policies, 59. Subcommittee Constitutional Rights Judiciary, Travel, Sess., 86; see id., 62. below. testimony Investigate Internal Other Laws, S. 3243, 89th 2d (1966), 43. Branch Legal Division below unaware Travis 491, 583, 536; Worthy 328 F.2d 386 (C.A.5th Cir., 1964). Hearings, 91—95. e.g., Eisenhower's request legislation, H.R.Doc. 417, (1958). Administration's 4110, H.R. 13318. Commission Security, study among things (Public 304, 84th 69 595 (1955)), recommended 'Title U.S.C.A., 1185(b), invalid.' (S.Doc. 64, Cong.), 475. next year, York published report entitled Travel.' One authors Honorable Adrian Fisher, former Advisor concluded, 70, enforcement restrictions: discovered seems glaring omission seriously interested establishment controls. Knowing effective sanction, case.' most recent bill, introduced years study, 14895, (1966). 73. Some bills failed discussed

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