Liu v. Republic of China

• Decision Date: 11 August 1986
• Docket Number: No. C-85-7461 EFL.,C-85-7461 EFL.
• Citation: 642 F. Supp. 297
• Court: U.S. District Court — Northern District of California
• Parties: Helen LIU, in her individual capacity, as heir and special administrator of the estate of Henry Liu, and as guardian ad litem for George Liu, Plaintiff, v. The REPUBLIC OF CHINA, Wong HsiLing, Hu Yi-Min, Chen Hu-Men, Chen Chi-Li, Wu Tun and Tung Kuei-Sen, Defendants.

642 F. Supp. 297

Helen LIU, in her individual capacity, as heir and special administrator of the estate of Henry Liu, and as guardian ad litem for George Liu, Plaintiff, v. The REPUBLIC OF CHINA, Wong HsiLing, Hu Yi-Min, Chen Hu-Men, Chen Chi-Li, Wu Tun and Tung Kuei-Sen, Defendants.

No. C-85-7461 EFL.

United States District Court, N.D. California.

August 11, 1986.

John S. Martel, Farella, Braun & Martel, San Francisco, Cal. for defendant-Republic of China.

Jerome M. Garchik, San Francisco, Cal. for plaintiff.

Arthur L. Liman, Paul, Weiss, Rifkind, et al., New York City, for plaintiff-co-council.

Thomas G. Corcoran, Jr., Corcoran, Youngman & Rowe, Lloyd N. Cutler, Wilmer, Cutler & Pickering, Washington, D.C. for defendants-co-council.

ORDER DENYING MOTION TO DISMISS ON ACT OF STATE GROUNDS

LYNCH, District Judge.

Introduction

On October 15, 1984, Henry Liu was shot to death at his home in Daly City, California. Plaintiff, Helen Liu, suing in her individual capacity, as heir and special administrator of the estate of Henry Liu, and as guardian ad litem for George Liu, has filed this lawsuit alleging that the Republic of China ("ROC") and the named defendants are responsible for the death of her husband.

The complaint pleads six claims. Four claims seek recovery under various legal theories for the wrongful death of Henry Liu. A fifth claim seeks recovery for injury to Helen Liu, who was at home when the killing occurred. The final claim seeks recovery for the injury to Henry Liu for the initial assault on him by his killers.

The individual defendants named in the complaint have been tried and convicted by tribunals in the ROC of criminal conduct relating to the killing of Henry Liu.¹ The individual defendants include Vice Admiral Wong Hsi-ling, former director of the ROC's Defense Intelligence Bureau, as well as Major General Hu Yi-min and Colonel Chen Hu-men, also former officials of the Defense Intelligence Bureau. The remaining three defendants, Chen Chi-li, Wu Tun and Tung Kuei-sen, are ROC citizens who were allegedly recruited to assist in the killing of Henry Liu.

Currently before the Court is the ROC's motion to dismiss the claims against it on act of state grounds. The ROC does not argue that the actual killing of Henry Liu is an act of state which this Court may not review.² Rather, the ROC asserts the following:

The Republic of China does not dispute that Henry Liu's death was caused by the private individuals named in the Complaint. Indeed, the civilian and military courts of the ROC, in the course of convicting these individuals, have made formal findings to that effect. The present Complaint, however, does not rest on the facts and the published findings of the ROC courts. Instead, it alleges that the murder of Henry Liu was a deliberate official act of the ROC, that these individuals acted in concert with other unnamed ROC officials who approved and authorized their actions, and that the criminal proceedings before the ROC tribunals were part of a conspiracy to cover up these official acts.

The ROC has at all times repudiated the acts of the individual defendants. It vigorously denies that the Government had knowledge of, participated in, or condoned their conspiracy. This position has been fully sustained by exhaustive military and civilian trials and appeals following thorough investigation of the facts.

Nevertheless, the Complaint would have this Court go behind the findings and judgments of the ROC courts to investigate de novo the alleged events in the ROC in the hope that this Court may disagree with what the ROC's courts have duly found. This would require the Court to inquire into, and sit in judgment upon, the most sensitive areas of the ROC's governmental affairs, proceedings and motivation. The ROC is confident that if this Court performed such a function it would reach the same conclusion as did the ROC courts. But as the United States would undoubtedly assert if the circumstances were reversed, the ROC submits that the Act of State doctrine bars the very inquiry itself, regardless of its outcome.

ROC's Points and Authorities, at 1-2 (emphasis omitted).

In resolving this motion, the Court requested the parties to brief two additional issues that it felt may have a bearing on how the Court would rule. These issues are (1) whether this suit is barred, as to the ROC, by the Foreign Sovereign Immunities Act, 28 U.S.C. §§ 1602-11, and (2) whether the ROC may possibly be liable under respondeat superior for the activities of the individual defendants named in the complaint.

Having received the requested supplemental briefing and held oral argument on the matter, the Court denies ROC's motion to dismiss the complaint. For the reasons discussed below, the Court has concluded that it would be premature to dismiss plaintiff's complaint at this time. However, the Court notes that dismissal on act of state grounds may become necessary as the litigation of this matter progresses.

I. ACT OF STATE DOCTRINE

"The act of state doctrine declares that a United States court will not adjudicate a politically sensitive dispute which would require the court to judge the legality of the sovereign act of a foreign state." International Ass'n of Machinists v. OPEC, 649 F.2d 1354, 1358 (9th Cir.1981), cert. denied, 454 U.S. 1163, 102 S.Ct. 1036, 71 L.Ed.2d 319 (1982). The traditional formulation of the doctrine is as follows:

Every sovereign State is bound to respect the independence of every other sovereign State, and the courts of one country will not sit in judgment on the acts of the government of another done within its own territory. Redress of grievances by reason of such acts must be obtained through means open to be availed of by sovereign powers as between themselves.

Alfred Dunhill of London, Inc. v. Republic of Cuba, 425 U.S. 682, 691 n. 7, 96 S.Ct. 1854, 1859 n. 7, 48 L.Ed.2d 301 (1976) (quoting Underhill v. Hernandez, 168 U.S. 250, 252, 18 S.Ct. 83, 84, 42 L.Ed. 456 (1897)).

The act of state doctrine is not jurisdictional, as are questions of sovereign immunity, nor is its observance mandated by the Constitution. DeRoburt v. Gannett Co., Inc., 733 F.2d 701, 702-03 (1984), cert. denied, 469 U.S. 1159, 105 S.Ct. 909, 83 L.Ed.2d 923 (1985). Rather, the doctrine stems from a recognition by the "Judicial Branch that its engagement in the task of passing on the validity of the foreign acts of state may hinder rather than further this country's pursuit of goals both for itself and for the community of nations as a whole in the international sphere." Timberlane Lumber Co. v. Bank of America, 549 F.2d 597, 605 (9th Cir.1976), aff'd, 749 F.2d 1378 (9th Cir.1984), cert. denied, ___ U.S. ___, 105 S.Ct. 3514, 87 L.Ed.2d 643 (1985) (quoting Banco Nacional de Cuba v. Sabbatino, 376 U.S. 398, 423, 84 S.Ct. 923, 937, 11 L.Ed.2d 804 (1964)). In essence, it is a judicial doctrine of self restraint based on an acknowledgment that certain disputes involving foreign affairs should be be left for resolution by one of the other two branches of government. See International Ass'n of Machinists, 649 F.2d at 1358-59.

The very nature of the act of state doctrine makes it difficult to define. The Ninth Circuit has stated that the "doctrine does not suggest a rigid rule of application.... `Some aspects of international law touch more sharply on national nerves than do others; the less important the implications of an issue are for our foreign relations, the weaker the justification for exclusivity in the political branches.' The decision to deny access to judicial relief is not one we make lightly.... The `touchstone' or `crucial element' is the potential for interference with our foreign relations." Id. at 1360 (quoting in part Sabbatino, 376 U.S. at 428, 84 S.Ct. at 940) (citations omitted); see also DeRoburt, 733 F.2d at 704.

Obviously, a "successful act of state defense must rest on a factual showing that an act of state occurred...." Ramirez v. Weinberger, 745 F.2d 1500, 1534 (D.C.Cir. 1984), vacated on other grounds, ___ U.S. ___, 105 S.Ct. 2325, 86 L.Ed.2d 255 (1985). The ROC concedes, as it must, that the killing of an American citizen in the United States is not the type of activity to which the act of state doctrine has generally applied.³ Cf. Letelier v. Republic of Chile, 488 F.Supp. 665, 674 (D.D.C.1980) (suit against the Republic of Chile regarding assassination of Chilean dissident leader in United States not subject to act of state doctrine). The ROC argues that the act of state doctrine is nevertheless applicable because the plaintiff in this case "asks this Court to determine that those investigations, prosecutions, and court adjudications of the individual defendants not only were erroneous, but were so lacking in integrity as to constitute mere shams." ROC's Points and Authorities, at 9. This charge arises from the fact that contrary to the findings in the criminal prosecutions of the individual defendants, the plaintiff alleges that other members of the ROC government played a role in the killing of Henry Liu and that their role has been covered up by the ROC. The ROC also argues that the case must be dismissed on act of state grounds because litigation of the case would involve searching inquiries into the internal decisionmaking of the ROC and into ROC national security and intelligence matters. ROC's Points and Authorities, at 4.

Even assuming that the ROC's description of the ramifications of allowing this case to proceed is accurate, the applicability of the act of state doctrine is, for a number of reasons, not clear-cut.

First, it is not clear that the ROC has shown the existence of an act of state. Not all activities of a foreign sovereign state are acts of state for purposes of the doctrine. Timberlane, 549 F.2d at 606. Typically, "acts of state" involve acts by which a foreign state "has exercised its jurisdiction to give effect to its public interests." Id. at 607 (9th...