{"attribution":{"source":"legal.exploreworldai.com","canonical":"https://legal.exploreworldai.com/api/public/v1/judgment-text?id=us:cadc-26-5172-2026-06-15","cite_as":"NovaCopilot, legal.exploreworldai.com (https://legal.exploreworldai.com/api/public/v1/judgment-text?id=us:cadc-26-5172-2026-06-15)","license":"https://legal.exploreworldai.com/revision","version":"legal-2026-10-11","fingerprint":"ewai:us:e0b409","proof":"sha256:fafea9e0fc76a39dc179b4c710f407e959bc9dd79494613155658f9d91b6f8b3","jurisdiction":"us","lang":"en","publisher":"NovaCopilot by ExploreWorld Legal","terms":"https://legal.exploreworldai.com/om"},"brand_source":"Source: NovaCopilot","item":{"schema_version":"1.0.0","id":"us:cadc-26-5172-2026-06-15","jurisdiction":"us","lang":"en","brand_source":"Source: NovaCopilot","brand":{"product":"NovaCopilot","platform":"ExploreWorldAI","infrastructure":"ExploreWorld Legal","infrastructure_url":"legal.exploreworldai.com","legal_entity":"Valkiv Ventures 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matter","paragraphs":["para_1","para_2","para_3","para_4","para_5","para_6","para_7","para_8","para_9","para_10","para_11","para_12","para_13","para_14","para_15","para_16","para_17","para_18","para_19","para_20","para_21","para_22","para_23","para_24","para_25","para_26","para_27","para_28","para_29","para_30","para_31","para_32","para_33","para_34","para_35","para_36","para_37","para_38","para_39","para_40","para_41","para_42","para_43","para_44","para_45","para_46","para_47","para_48","para_49","para_50","para_51","para_52","para_53","para_54","para_55","para_56","para_57","para_58","para_59","para_60","para_61","para_62","para_63","para_64","para_65","para_66","para_67","para_68","para_69","para_70","para_71","para_72","para_73","para_74","para_75","para_76","para_77","para_78","para_79","para_80","para_81","para_82","para_83","para_84","para_85","para_86","para_87","para_88","para_89","para_90","para_91","para_92","para_93","para_94","para_95","para_96","para_97","para_98","para_99","para_100","para_101","para_102","para_103","para_104","para_105","para_106","para_107","para_108","para_109","para_110","para_111","para_112","para_113","para_114","para_115","para_116","para_117","para_118","para_119","para_120","para_121","para_122","para_123","para_124","para_125","para_126","para_127","para_128","para_129","para_130","para_131","para_132","para_133","para_134","para_135","para_136","para_137","para_138","para_139","para_140","para_141","para_142","para_143","para_144","para_145","para_146","para_147","para_148","para_149","para_150","para_151","para_152","para_153","para_154","para_155","para_156","para_157","para_158","para_159","para_160","para_161","para_162","para_163","para_164","para_165","para_166","para_167","para_168","para_169","para_170","para_171","para_172","para_173","para_174","para_175","para_176","para_177","para_178","para_179","para_180","para_181","para_182","para_183","para_184","para_185","para_186","para_187","para_188","para_189","para_190","para_191","para_192","para_193","para_194","para_195","para_196","para_197","para_198","para_199","para_200","para_201","para_202","para_203","para_204","para_205","para_206","para_207","para_208","para_209","para_210","para_211","para_212","para_213","para_214","para_215","para_216","para_217","para_218","para_219","para_220","para_221","para_222","para_223","para_224","para_225","para_226","para_227","para_228","para_229","para_230","para_231","para_232","para_233","para_234","para_235","para_236","para_237","para_238","para_239","para_240","para_241","para_242","para_243","para_244","para_245","para_246","para_247","para_248","para_249","para_250","para_251","para_252","para_253","para_254","para_255","para_256","para_257","para_258","para_259","para_260","para_261","para_262","para_263","para_264","para_265","para_266","para_267","para_268","para_269","para_270","para_271","para_272","para_273","para_274","para_275","para_276","para_277","para_278","para_279","para_280","para_281","para_282","para_283","para_284","para_285","para_286","para_287","para_288","para_289","para_290","para_291","para_292","para_293","para_294","para_295","para_296","para_297","para_298","para_299","para_300","para_301","para_302","para_303","para_304","para_305","para_306","para_307","para_308","para_309","para_310","para_311","para_312","para_313","para_314","para_315","para_316","para_317","para_318","para_319","para_320","para_321","para_322","para_323","para_324","para_325","para_326","para_327","para_328","para_329","para_330","para_331","para_332","para_333","para_334","para_335","para_336","para_337","para_338","para_339","para_340","para_341","para_342","para_343","para_344","para_345","para_346","para_347","para_348","para_349","para_350","para_351","para_352","para_353","para_354","para_355","para_356","para_357","para_358","para_359","para_360","para_361","para_362","para_363","para_364","para_365","para_366","para_367","para_368","para_369","para_370","para_371","para_372","para_373","para_374","para_375","para_376","para_377","para_378","para_379"],"kind":"front_matter"}],"paragraphs":[{"text":"United States Court of Appeals","paragraph_id":"para_1"},{"text":"FOR THE DISTRICT OF COLUMBIA CIRCUIT","paragraph_id":"para_2"},{"text":"____________","paragraph_id":"para_3"},{"text":"No. 26-5172 September Term, 2025","paragraph_id":"para_4"},{"text":"1:26-cv-00688-RJL","paragraph_id":"para_5"},{"text":"Filed On: June 15, 2026","paragraph_id":"para_6"},{"text":"Massimiliano Cali and L.C., a minor child, by","paragraph_id":"para_7"},{"text":"and through her father Massimilano Cali,","paragraph_id":"para_8"},{"text":"Appellees","paragraph_id":"para_9"},{"text":"v.","paragraph_id":"para_10"},{"text":"Donald J. Trump, President of the United","paragraph_id":"para_11"},{"text":"States, et al.,","paragraph_id":"para_12"},{"text":"Appellants","paragraph_id":"para_13"},{"text":"BEFORE: Henderson*, Katsas*, and Childs, Circuit Judges","paragraph_id":"para_14"},{"text":"O R D E R","paragraph_id":"para_15"},{"text":"Upon consideration of the emergency motion for a stay pending appeal, the","paragraph_id":"para_16"},{"text":"opposition thereto, and the reply; the motion for leave to file a surreply, the opposition","paragraph_id":"para_17"},{"text":"thereto, and the lodged surreply; and the motion for leave to participate as amicus","paragraph_id":"para_18"},{"text":"curiae and the lodged amicus brief submitted by the American Center for Law and","paragraph_id":"para_19"},{"text":"Justice, it is","paragraph_id":"para_20"},{"text":"ORDERED that the motion for leave to file a surreply be granted. The Clerk is","paragraph_id":"para_21"},{"text":"directed to file the lodged surreply. It is","paragraph_id":"para_22"},{"text":"FURTHER ORDERED that the motion to participate as amicus curiae be","paragraph_id":"para_23"},{"text":"granted. The Clerk is directed to file the lodged amicus brief. It is","paragraph_id":"para_24"},{"text":"FURTHER ORDERED that the partial administrative stay entered May 22, 2026,","paragraph_id":"para_25"},{"text":"be dissolved. It is","paragraph_id":"para_26"},{"text":"* A statement by Circuit Judge Katsas, joined by Circuit Judge Henderson, concurring in","paragraph_id":"para_27"},{"text":"this order, is attached.","paragraph_id":"para_28"},{"text":"United States Court of Appeals","paragraph_id":"para_29"},{"text":"FOR THE DISTRICT OF COLUMBIA CIRCUIT","paragraph_id":"para_30"},{"text":"____________","paragraph_id":"para_31"},{"text":"No. 26-5172 September Term, 2025","paragraph_id":"para_32"},{"text":"FURTHER ORDERED that the district court’s order entered May 13, 2026, be","paragraph_id":"para_33"},{"text":"stayed in part pending appeal. Appellants have satisfied the stringent requirements for","paragraph_id":"para_34"},{"text":"a stay pending appeal. See Nken v. Holder, 556 U.S. 418, 434 (2009); D.C. Circuit","paragraph_id":"para_35"},{"text":"Handbook of Practice and Internal Procedures 33 (2025). Pursuant to the stay,","paragraph_id":"para_36"},{"text":"appellants may implement and enforce the designation of Francesca Albanese as a","paragraph_id":"para_37"},{"text":"designated foreign national under Section 1(a)(ii)(A) of Executive Order 14203, except","paragraph_id":"para_38"},{"text":"that appellants may not take any action that violates the licenses regarding","paragraph_id":"para_39"},{"text":"Massimiliano Cali and L.C. issued by the Office of Foreign Assets Control.","paragraph_id":"para_40"},{"text":"Per Curiam","paragraph_id":"para_41"},{"text":"FOR THE COURT:","paragraph_id":"para_42"},{"text":"Clifton B. Cislak, Clerk","paragraph_id":"para_43"},{"text":"BY: /s/","paragraph_id":"para_44"},{"text":"Selena R. Gancasz","paragraph_id":"para_45"},{"text":"Deputy Clerk","paragraph_id":"para_46"},{"text":"Page 2","paragraph_id":"para_47"},{"text":"KATSAS, Circuit Judge, concurring: This case involves the","paragraph_id":"para_48"},{"text":"President’s imposition of economic sanctions on a non-resident","paragraph_id":"para_49"},{"text":"alien based on her speech outside the United States. The","paragraph_id":"para_50"},{"text":"district court preliminarily enjoined the sanctions as a likely","paragraph_id":"para_51"},{"text":"violation of the First Amendment. Because that Amendment","paragraph_id":"para_52"},{"text":"does not extend to the speech of aliens abroad, I vote to stay","paragraph_id":"para_53"},{"text":"the injunction pending the government’s appeal.","paragraph_id":"para_54"},{"text":"I","paragraph_id":"para_55"},{"text":"A","paragraph_id":"para_56"},{"text":"The International Emergency Economic Powers Act","paragraph_id":"para_57"},{"text":"(IEEPA) empowers the President to respond to “any unusual or","paragraph_id":"para_58"},{"text":"extraordinary threat” to United States national security or","paragraph_id":"para_59"},{"text":"foreign policy if the threat substantially arises from abroad and","paragraph_id":"para_60"},{"text":"the President declares a national emergency with respect to the","paragraph_id":"para_61"},{"text":"threat. 50 U.S.C. § 1701(a). To address such a declared","paragraph_id":"para_62"},{"text":"emergency, the President may regulate or prohibit transactions","paragraph_id":"para_63"},{"text":"in United States property owned by a foreign national. Id.","paragraph_id":"para_64"},{"text":"§ 1702(a)(1)(B).","paragraph_id":"para_65"},{"text":"President Trump invoked IEEPA to issue Executive Order","paragraph_id":"para_66"},{"text":"14203, Imposing Sanctions on the International Criminal","paragraph_id":"para_67"},{"text":"Court. 90 Fed. Reg. 9369 (Feb. 6, 2025). The President found","paragraph_id":"para_68"},{"text":"that the International Criminal Court (ICC)—a tribunal","paragraph_id":"para_69"},{"text":"headquartered in The Hague and not recognized by the United","paragraph_id":"para_70"},{"text":"States—“has engaged in illegitimate and baseless actions","paragraph_id":"para_71"},{"text":"targeting America and our close ally Israel.” Id. at 9369. The","paragraph_id":"para_72"},{"text":"President highlighted the ICC’s issuance of arrest warrants","paragraph_id":"para_73"},{"text":"against Israeli Prime Minister Benjamin Netanyahu and former","paragraph_id":"para_74"},{"text":"Israeli Defense Minister Yoav Gallant, as well as its","paragraph_id":"para_75"},{"text":"investigation of other Americans and Israelis. Id. The","paragraph_id":"para_76"},{"text":"President found that the ICC’s efforts “to investigate, arrest,","paragraph_id":"para_77"},{"text":"detain, or prosecute” Americans, Israelis, and citizens of other","paragraph_id":"para_78"},{"text":"allies that have not consented to ICC jurisdiction are an unusual","paragraph_id":"para_79"},{"text":"and extraordinary threat to United States national security and","paragraph_id":"para_80"},{"text":"2","paragraph_id":"para_81"},{"text":"foreign policy. Id. at 9370–71. The President declared a","paragraph_id":"para_82","court_paragraph":2},{"text":"national emergency with respect to this threat. Id. And to","paragraph_id":"para_83"},{"text":"address it, he prohibited giving “funds, goods, or services” to","paragraph_id":"para_84"},{"text":"any foreign national whom the Secretary of State has","paragraph_id":"para_85"},{"text":"determined “to have directly engaged in any effort by the ICC","paragraph_id":"para_86"},{"text":"to investigate, arrest, detain, or prosecute” Americans, Israelis,","paragraph_id":"para_87"},{"text":"or citizens of other allies in the absence of consent by the","paragraph_id":"para_88"},{"text":"targeted individual’s country of nationality. Id.","paragraph_id":"para_89"},{"text":"B","paragraph_id":"para_90"},{"text":"Francesca Albanese and her husband, Massimiliano Cali,","paragraph_id":"para_91"},{"text":"are Italian citizens. From 2012 to 2015, Albanese and Cali","paragraph_id":"para_92"},{"text":"lived in the United States while Cali worked at the World Bank","paragraph_id":"para_93"},{"text":"in Washington, D.C. During that time, Albanese gave birth to","paragraph_id":"para_94"},{"text":"a daughter, L.C. The family moved to Indonesia in 2015 and","paragraph_id":"para_95"},{"text":"then to Tunisia in 2021. They have not lived in the United","paragraph_id":"para_96"},{"text":"States for over a decade.","paragraph_id":"para_97"},{"text":"In 2022, the United Nations Human Rights Council","paragraph_id":"para_98"},{"text":"appointed Albanese as Special Rapporteur on the Palestinian","paragraph_id":"para_99"},{"text":"Territory. In that role, Albanese repeatedly has “urge[d] the","paragraph_id":"para_100"},{"text":"ICC” to “investigate the commission” of alleged “crimes of","paragraph_id":"para_101"},{"text":"genocide and apartheid by Israel.” Albanese, Genocide as","paragraph_id":"para_102"},{"text":"Colonial Erasure 32, U.N. Doc. A/79/384 (Oct. 1, 2024),","paragraph_id":"para_103"},{"text":"https://perma.cc/BF5P-WZ3M. After the ICC prosecutor filed","paragraph_id":"para_104"},{"text":"applications for arrest warrants targeting Netanyahu and","paragraph_id":"para_105"},{"text":"Gallant, Albanese filed an amicus brief urging the ICC to issue","paragraph_id":"para_106"},{"text":"the warrants and allow these Israeli officials to be prosecuted.","paragraph_id":"para_107"},{"text":"Situation in the State of Palestine, ICC-01/18-320, Amicus","paragraph_id":"para_108"},{"text":"Curiae Submission by U.N. Mandate Holders (Aug. 6, 2024),","paragraph_id":"para_109"},{"text":"https://perma.cc/5TRU-3JQH. In October 2024, she submitted","paragraph_id":"para_110"},{"text":"a report to the United Nations urging the ICC to investigate","paragraph_id":"para_111"},{"text":"various “prominent” Israeli government officials for genocide","paragraph_id":"para_112"},{"text":"or apartheid. Genocide as Colonial Erasure, supra, at 32. And","paragraph_id":"para_113"},{"text":"3","paragraph_id":"para_114"},{"text":"in July 2025, she submitted another report urging the ICC “to","paragraph_id":"para_115","court_paragraph":3},{"text":"investigate and prosecute” American companies and their","paragraph_id":"para_116"},{"text":"executives for providing Israel with “heavy machinery in","paragraph_id":"para_117"},{"text":"service of settler-colonial destruction” and with “weaponry and","paragraph_id":"para_118"},{"text":"technical support” for its efforts “to perpetuate apartheid.”","paragraph_id":"para_119"},{"text":"Albanese, From Economy of Occupation to Economy of","paragraph_id":"para_120"},{"text":"Genocide 7, 12, 27, U.N. Doc. A/HRC/59/23 (July 2, 2025),","paragraph_id":"para_121"},{"text":"https://perma.cc/JM8R-SM5Y.","paragraph_id":"para_122"},{"text":"One week after the last report, the Secretary of State","paragraph_id":"para_123"},{"text":"designated Albanese pursuant to the Executive Order. Rubio,","paragraph_id":"para_124"},{"text":"Sanctioning Lawfare that Targets U.S. and Israeli Persons,","paragraph_id":"para_125"},{"text":"U.S. Dep’t of State (July 9, 2025),","paragraph_id":"para_126"},{"text":"https://perma.cc/5D8WHN8H. The Secretary found that","paragraph_id":"para_127"},{"text":"Albanese had “directly engaged with” the ICC “in efforts to","paragraph_id":"para_128"},{"text":"investigate, arrest, detain, or prosecute nationals of the United","paragraph_id":"para_129"},{"text":"States or Israel, without the consent of those two countries.”","paragraph_id":"para_130"},{"text":"Id. He highlighted her “recommending” that the ICC issue","paragraph_id":"para_131"},{"text":"arrest warrants for Netanyahu and Gallant and prosecute","paragraph_id":"para_132"},{"text":"Americans for providing goods to Israel. Id.","paragraph_id":"para_133"},{"text":"To implement the designation, the Treasury Department’s","paragraph_id":"para_134"},{"text":"Office of Foreign Assets Control (OFAC) added Albanese to","paragraph_id":"para_135"},{"text":"its list of specifically designated nationals and blocked persons.","paragraph_id":"para_136"},{"text":"See OFAC, ICC-Related Designation, U.S. Dep’t of Treasury","paragraph_id":"para_137"},{"text":"(July 9, 2025), https://perma.cc/U9H3-MAPM. However,","paragraph_id":"para_138"},{"text":"OFAC issued two licenses permitting certain transactions with","paragraph_id":"para_139"},{"text":"Albanese. One license allows transactions “ordinarily incident","paragraph_id":"para_140"},{"text":"and necessary to” the maintenance and sale of a condominium","paragraph_id":"para_141"},{"text":"that Albanese and Cali own in Washington, D.C. L.C. by &","paragraph_id":"para_142"},{"text":"through Cali v. Trump, No. 26-cv-688 (D.D.C. May 13, 2026),","paragraph_id":"para_143"},{"text":"ECF Doc. 1-11. The other license allows transactions that are","paragraph_id":"para_144"},{"text":"“ordinarily incident and necessary to … Albanese’s role” as the","paragraph_id":"para_145"},{"text":"parent and legal guardian of L.C. ECF Doc. 1-12.","paragraph_id":"para_146"},{"text":"4","paragraph_id":"para_147"},{"text":"After the United Nations refused to permit Albanese to","paragraph_id":"para_148","court_paragraph":4},{"text":"challenge her designation, Cali and L.C. sued to do so. As","paragraph_id":"para_149"},{"text":"relevant here, their complaint alleges that the designation","paragraph_id":"para_150"},{"text":"violates Albanese’s First Amendment rights. Cali and L.C.","paragraph_id":"para_151"},{"text":"moved for a preliminary injunction.","paragraph_id":"para_152"},{"text":"The district court granted the motion. It held that Cali and","paragraph_id":"para_153"},{"text":"L.C. have standing to assert Albanese’s First Amendment","paragraph_id":"para_154"},{"text":"rights, that the designation likely violates those rights, and that","paragraph_id":"para_155"},{"text":"equitable considerations favor Cali and L.C. ECF Doc. 48.","paragraph_id":"para_156"},{"text":"The court preliminarily enjoined the government from","paragraph_id":"para_157"},{"text":"“implementing or enforcing” the designation of Albanese","paragraph_id":"para_158"},{"text":"pursuant to the Executive Order. ECF Doc. 49 at 1.","paragraph_id":"para_159"},{"text":"The government appealed and moved for a stay.","paragraph_id":"para_160"},{"text":"II","paragraph_id":"para_161"},{"text":"In considering the stay motion, we must assess whether (1)","paragraph_id":"para_162"},{"text":"the government is likely to succeed on the merits, (2) the","paragraph_id":"para_163"},{"text":"government will be irreparably harmed absent a stay, and (3) a","paragraph_id":"para_164"},{"text":"stay would serve the public interest. Nken v. Holder, 556 U.S.","paragraph_id":"para_165"},{"text":"418, 425–26, 435 (2009).","paragraph_id":"para_166"},{"text":"A","paragraph_id":"para_167"},{"text":"On the First Amendment claim, the district court began","paragraph_id":"para_168"},{"text":"with a premise that Albanese—who is not a United States","paragraph_id":"para_169"},{"text":"citizen—was sanctioned for speech that occurred “outside the","paragraph_id":"para_170"},{"text":"United States.” ECF Doc. 48 at 18. The court recognized that","paragraph_id":"para_171"},{"text":"“[f]oreign nationals outside the territory of the United States do","paragraph_id":"para_172"},{"text":"not, as a general matter, ‘possess rights under the U.S.","paragraph_id":"para_173"},{"text":"Constitution.’” Id. at 15 (quoting USAID v. All. for Open Soc’y","paragraph_id":"para_174"},{"text":"Int’l, Inc., 591 U.S. 430, 433 (2020) (AOSI)). But, the court","paragraph_id":"para_175"},{"text":"continued, aliens acquire constitutional rights when they","paragraph_id":"para_176"},{"text":"develop “substantial connections” to the United States, even","paragraph_id":"para_177"},{"text":"5","paragraph_id":"para_178"},{"text":"for conduct that occurs outside the country. Id. (quoting United","paragraph_id":"para_179","court_paragraph":5},{"text":"States v. Verdugo-Urquidez, 494 U.S. 259, 271 (1990)). And","paragraph_id":"para_180"},{"text":"it concluded that Albanese had such “substantial connections”","paragraph_id":"para_181"},{"text":"because she had lived in the United States, owns property here,","paragraph_id":"para_182"},{"text":"has a citizen daughter, and travels to the United States for","paragraph_id":"para_183"},{"text":"professional and speaking engagements. Id. at 16–17.","paragraph_id":"para_184"},{"text":"1","paragraph_id":"para_185"},{"text":"In this Court, the plaintiffs seek to challenge the premise","paragraph_id":"para_186","court_paragraph":1},{"text":"that Albanese was sanctioned for speech that occurred outside","paragraph_id":"para_187"},{"text":"the United States. Neither the designation nor the complaint","paragraph_id":"para_188"},{"text":"identifies the precise speech for which Albanese was","paragraph_id":"para_189"},{"text":"sanctioned, or where it occurred. But in opposing the","paragraph_id":"para_190"},{"text":"preliminary-injunction motion and in its subsequent stay","paragraph_id":"para_191"},{"text":"motion below, the government stated unequivocally that the","paragraph_id":"para_192"},{"text":"designation rested on “statements made outside the United","paragraph_id":"para_193"},{"text":"States.” ECF Doc. 26 at 25 (emphasis in original); see ECF","paragraph_id":"para_194"},{"text":"Doc. 51 at 5 (“the expression for which [Albanese] was","paragraph_id":"para_195"},{"text":"sanctioned occurred abroad”). In each of their responsive","paragraph_id":"para_196"},{"text":"filings, the plaintiffs said nothing to the contrary. See ECF","paragraph_id":"para_197"},{"text":"Doc. 32 at 2, 6–8; ECF Doc. 52 at 5–8. So, the district court","paragraph_id":"para_198"},{"text":"quite properly resolved the preliminary-injunction motion on","paragraph_id":"para_199"},{"text":"the premise that this case turns on speech by an alien outside","paragraph_id":"para_200"},{"text":"the United States. We reject the plaintiffs’ contrary contention,","paragraph_id":"para_201"},{"text":"which “rests on a factual premise that was not developed before","paragraph_id":"para_202"},{"text":"the District Court.” Mar. Int’l Nominees Establishment v.","paragraph_id":"para_203"},{"text":"Republic of Guinea, 693 F.2d 1094, 1102 n.12 (D.C. Cir.","paragraph_id":"para_204"},{"text":"1982).","paragraph_id":"para_205"},{"text":"There are other reasons to be skeptical of the newfound","paragraph_id":"para_206"},{"text":"contention that Albanese was sanctioned in part for speech in","paragraph_id":"para_207"},{"text":"the United States. The plaintiffs point to a press conference","paragraph_id":"para_208"},{"text":"that Albanese gave at the United Nations in connection with","paragraph_id":"para_209"},{"text":"her October 2024 report. But on the plaintiffs’ own account","paragraph_id":"para_210"},{"text":"6","paragraph_id":"para_211"},{"text":"below, Albanese was sanctioned “for writing reports, sending","paragraph_id":"para_212","court_paragraph":6},{"text":"letters, and signing an amicus brief”—not for any press","paragraph_id":"para_213"},{"text":"conferences. ECF Doc. 32 at 5. The plaintiffs now assert that","paragraph_id":"para_214"},{"text":"the report itself “was delivered in New York.” Appellees’ Stay","paragraph_id":"para_215"},{"text":"Opp. at 16. But the report indicates only that it was transmitted","paragraph_id":"para_216"},{"text":"from the Secretary-General to the General Assembly in New","paragraph_id":"para_217"},{"text":"York. See Situation of Human Rights in the Palestinian","paragraph_id":"para_218"},{"text":"Territories Occupied Since 1967, United Nations Digit. Libr.","paragraph_id":"para_219"},{"text":"(Oct. 1, 2024), https://perma.cc/V2ZE-3MEE. The report does","paragraph_id":"para_220"},{"text":"not say where Albanese—a resident of Tunisia—composed","paragraph_id":"para_221"},{"text":"and submitted it to the Secretary-General.","paragraph_id":"para_222"},{"text":"At any rate, even if the designation rested in part on speech","paragraph_id":"para_223"},{"text":"inside the United States, the record makes clear that Albanese’s","paragraph_id":"para_224"},{"text":"speech abroad more than sufficed to support the designation.","paragraph_id":"para_225"},{"text":"The Executive Order targets persons determined “to have","paragraph_id":"para_226"},{"text":"directly engaged in any effort by the ICC to investigate, arrest,","paragraph_id":"para_227"},{"text":"detain, or prosecute” United States or Israeli citizens, 90 Fed.","paragraph_id":"para_228"},{"text":"Reg. at 9370, and it specifically singles out the attempted","paragraph_id":"para_229"},{"text":"prosecution of Prime Minister Netanyahu and former Defense","paragraph_id":"para_230"},{"text":"Minister Gallant, id. at 9369. The Secretary’s designation","paragraph_id":"para_231"},{"text":"appropriately tracks the operative language in the Executive","paragraph_id":"para_232"},{"text":"Order. Rubio, supra. The October 2024 report and press","paragraph_id":"para_233"},{"text":"conference address alleged genocide in general, making only","paragraph_id":"para_234"},{"text":"one brief reference to ICC investigation of “prominent","paragraph_id":"para_235"},{"text":"individuals mentioned in the present report.” Genocide as","paragraph_id":"para_236"},{"text":"Colonial Erasure, supra, at 32. In contrast, Albanese filed her","paragraph_id":"para_237"},{"text":"amicus brief directly with the ICC itself, and that brief argued","paragraph_id":"para_238"},{"text":"at length for the arrest and prosecution of Israeli government","paragraph_id":"para_239"},{"text":"officials after the ICC prosecutor had targeted Netanyahu and","paragraph_id":"para_240"},{"text":"Gallant. Situation in the State of Palestine, supra. The","paragraph_id":"para_241"},{"text":"plaintiffs give us no reason to think that this brief, filed in The","paragraph_id":"para_242"},{"text":"Hague and signed by Albanese while a resident of Tunisia,","paragraph_id":"para_243"},{"text":"involved any speech in the United States. And of all her","paragraph_id":"para_244"},{"text":"provocative writings, the amicus brief most “directly engaged”","paragraph_id":"para_245"},{"text":"7","paragraph_id":"para_246"},{"text":"ICC efforts to arrest and prosecute Israeli government officials,","paragraph_id":"para_247","court_paragraph":7},{"text":"including Netanyahu and Gallant.","paragraph_id":"para_248"},{"text":"2","paragraph_id":"para_249"},{"text":"On the merits, the government is correct that the First","paragraph_id":"para_250","court_paragraph":2},{"text":"Amendment does not apply to the speech of non-resident aliens","paragraph_id":"para_251"},{"text":"abroad. As the district court itself recognized, “it is long","paragraph_id":"para_252"},{"text":"settled … that foreign citizens outside U.S. territory do not","paragraph_id":"para_253"},{"text":"possess rights under the U.S. Constitution.” AOSI, 591 U.S. at","paragraph_id":"para_254"},{"text":"433. For example, in AOSI, the Supreme Court held that","paragraph_id":"para_255"},{"text":"foreign organizations “operating abroad” have no First","paragraph_id":"para_256"},{"text":"Amendment right to challenge funding conditions that require","paragraph_id":"para_257"},{"text":"explicit opposition to prostitution. See id. at 431–36. In","paragraph_id":"para_258"},{"text":"Verdugo-Urquidez, the Court held that the Fourth Amendment","paragraph_id":"para_259"},{"text":"does not apply to searches and seizures of the foreign property","paragraph_id":"para_260"},{"text":"of non-resident aliens. 494 U.S. at 264–75. In Johnson v.","paragraph_id":"para_261"},{"text":"Eisentrager, 339 U.S. 763 (1950), the Court held that neither","paragraph_id":"para_262"},{"text":"the Fifth Amendment nor the Suspension Clause applies to the","paragraph_id":"para_263"},{"text":"military detention of alien enemy combatants abroad. Id. at","paragraph_id":"para_264"},{"text":"777–85.1 And just last Term, the Court again confirmed that","paragraph_id":"para_265"},{"text":"“foreign organizations operating abroad have no First","paragraph_id":"para_266"},{"text":"Amendment rights.” TikTok Inc. v. Garland, 604 U.S. 56, 69","paragraph_id":"para_267"},{"text":"n.2 (2025) (per curiam) (cleaned up). These cases reflect the","paragraph_id":"para_268"},{"text":"principle that “extraterritorial application of organic law” is","paragraph_id":"para_269"},{"text":"presumptively disfavored, and nothing in our constitutional","paragraph_id":"para_270"},{"text":"1 Boumediene v. Bush, 553 U.S. 723 (2008), qualified","paragraph_id":"para_271"},{"text":"Eisentrager by extending the Suspension Clause to foreign territory","paragraph_id":"para_272"},{"text":"subject to indefinite, complete, and total control by the United States,","paragraph_id":"para_273"},{"text":"such as the United States naval base at Guantanamo Bay, Cuba. See","paragraph_id":"para_274"},{"text":"AOSI, 591 U.S. at 434. There is no suggestion here that Boumediene","paragraph_id":"para_275"},{"text":"extends to foreign countries such as Italy, the Netherlands, or","paragraph_id":"para_276"},{"text":"Tunisia. Nor could there be. See Al Maqaleh v. Gates, 605 F.3d 84","paragraph_id":"para_277"},{"text":"(D.C. Cir. 2010) (Boumediene does not extend to United States","paragraph_id":"para_278"},{"text":"military base in Afghanistan).","paragraph_id":"para_279"},{"text":"8","paragraph_id":"para_280"},{"text":"text, history, or tradition suggests that the First, Second, Fourth,","paragraph_id":"para_281","court_paragraph":8},{"text":"Fifth, or Sixth Amendments apply extraterritorially to protect","paragraph_id":"para_282"},{"text":"the conduct of aliens abroad. Eisentrager, 339 U.S. at 784; cf.","paragraph_id":"para_283"},{"text":"Morrison v. Nat’l Austl. Bank Ltd., 561 U.S. 247, 255 (2010)","paragraph_id":"para_284"},{"text":"(Congress must give “clear indication” to apply federal statutes","paragraph_id":"para_285"},{"text":"extraterritorially).","paragraph_id":"para_286"},{"text":"To distinguish these cases, the district court cited Verdugo-","paragraph_id":"para_287"},{"text":"Urquidez for the proposition that “aliens receive constitutional","paragraph_id":"para_288"},{"text":"protections when they have come within the territory of the","paragraph_id":"para_289"},{"text":"United States and developed substantial connections with this","paragraph_id":"para_290"},{"text":"country.” 494 U.S. at 271. But as the conjunctive formulation","paragraph_id":"para_291"},{"text":"indicates, this means only that “foreign citizens in the United","paragraph_id":"para_292"},{"text":"States may enjoy certain constitutional rights.” AOSI, 591 U.S.","paragraph_id":"para_293"},{"text":"at 434 (emphasis in original); see, e.g., Kwong Hai Chew v.","paragraph_id":"para_294"},{"text":"Colding, 344 U.S. 590, 596 (1953) (Fifth Amendment applies","paragraph_id":"para_295"},{"text":"to lawful permanent resident who “remains physically present”","paragraph_id":"para_296"},{"text":"in the United States); Wong Wing v. United States, 163 U.S.","paragraph_id":"para_297"},{"text":"228, 238 (1896) (Fifth and Sixth Amendments apply to “all","paragraph_id":"para_298"},{"text":"persons within the territory of the United States”); Yick Wo v.","paragraph_id":"para_299"},{"text":"Hopkins, 118 U.S. 356, 369 (1886) (Fourteenth Amendment","paragraph_id":"para_300"},{"text":"due-process and equal-protection clauses apply to “all persons","paragraph_id":"para_301"},{"text":"within the territorial jurisdiction” of the United States). These","paragraph_id":"para_302"},{"text":"precedents, about the extent of constitutional protection for","paragraph_id":"para_303"},{"text":"aliens inside the United States, do not suggest that the First","paragraph_id":"para_304"},{"text":"Amendment applies extraterritorially to protect the speech of","paragraph_id":"para_305"},{"text":"aliens outside the United States.","paragraph_id":"para_306"},{"text":"The district court further reasoned that Albanese’s","paragraph_id":"para_307"},{"text":"ownership of property in the United States—a condominium","paragraph_id":"para_308"},{"text":"located in the District—triggers some constitutional protection.","paragraph_id":"para_309"},{"text":"ECF Doc. 48 at 18. The court was correct that aliens may","paragraph_id":"para_310"},{"text":"invoke the Fifth Amendment to safeguard their property","paragraph_id":"para_311"},{"text":"interests located in the United States. See Russian Volunteer","paragraph_id":"para_312"},{"text":"Fleet v. United States, 282 U.S. 481, 489, 492 (1931); Nat’l","paragraph_id":"para_313"},{"text":"9","paragraph_id":"para_314"},{"text":"Council of Resistance of Iran v. Dep’t of State, 251 F.3d 192,","paragraph_id":"para_315","court_paragraph":9},{"text":"204 (D.C. Cir. 2001) (NCRI). Under that principle, Albanese","paragraph_id":"para_316"},{"text":"perhaps could have argued that the government failed to afford","paragraph_id":"para_317"},{"text":"due process to support a designation encumbering her","paragraph_id":"para_318"},{"text":"condominium in the District. Cf. NCRI, 251 F.3d at 201 (alien","paragraph_id":"para_319"},{"text":"entity with “overt presence” in the United States may raise due-","paragraph_id":"para_320"},{"text":"process challenge to designation that encumbered its “small","paragraph_id":"para_321"},{"text":"bank account” here). Or perhaps Albanese could have argued","paragraph_id":"para_322"},{"text":"that the designation rose to the level of an unconstitutional","paragraph_id":"para_323"},{"text":"taking of the condominium. Cf. Russian Volunteer Fleet, 282","paragraph_id":"para_324"},{"text":"U.S. at 487–89 (“alien friend” in Russia may challenge alleged","paragraph_id":"para_325"},{"text":"taking of its United States property). But claims such as these","paragraph_id":"para_326"},{"text":"would involve no extraterritorial application of the Bill of","paragraph_id":"para_327"},{"text":"Rights. They do not suggest that the First Amendment applies","paragraph_id":"para_328"},{"text":"extraterritorially to protect the speech of aliens abroad.","paragraph_id":"para_329"},{"text":"B","paragraph_id":"para_330"},{"text":"Equitable considerations also favor granting a stay.","paragraph_id":"para_331"},{"text":"On the government’s side of the balance are weighty","paragraph_id":"para_332"},{"text":"foreign-policy and national-security interests. The Executive","paragraph_id":"para_333"},{"text":"Order and ensuing designation seek to deter the criminal","paragraph_id":"para_334"},{"text":"prosecution of a sitting Prime Minister of Israel and a former","paragraph_id":"para_335"},{"text":"Defense Minister of Israel for official acts that Israel undertook","paragraph_id":"para_336"},{"text":"in response to the October 7, 2023 terrorist attacks on that","paragraph_id":"para_337"},{"text":"important American ally. The significance of this foreign-","paragraph_id":"para_338"},{"text":"policy problem seems to me self-evident. And the President","paragraph_id":"para_339"},{"text":"undertook executive action supported both by express","paragraph_id":"para_340"},{"text":"congressional authorization in IEEPA, see 50 U.S.C. §§ 1701–","paragraph_id":"para_341"},{"text":"02, and by his independent Article II powers regarding foreign","paragraph_id":"para_342"},{"text":"policy and national security, see, e.g., United States v. Curtiss-","paragraph_id":"para_343"},{"text":"Wright Exp. Corp., 299 U.S. 304, 319–20 (1936). Faced with","paragraph_id":"para_344"},{"text":"injunctions barring this kind of executive action, we have often","paragraph_id":"para_345"},{"text":"found irreparable injury to the government. See NTEU v.","paragraph_id":"para_346"},{"text":"10","paragraph_id":"para_347"},{"text":"Trump, No. 25-5157, 2025 WL 1441563, at *2 (D.C. Cir. May","paragraph_id":"para_348","court_paragraph":10},{"text":"16, 2025) (per curiam); Am. Foreign Serv. Ass’n v. Trump, No.","paragraph_id":"para_349"},{"text":"25-5184, 2025 WL 1742853, at *3 (D.C. Cir. June 20, 2025)","paragraph_id":"para_350"},{"text":"(per curiam). Likewise, the public interest strongly supports","paragraph_id":"para_351"},{"text":"such executive action. See Trump v. Int’l Refugee Assistance","paragraph_id":"para_352"},{"text":"Project, 582 U.S. 571, 581 (2017) (per curiam) (“The interest","paragraph_id":"para_353"},{"text":"in preserving national security is an urgent objective of the","paragraph_id":"para_354"},{"text":"highest order.” (cleaned up)).","paragraph_id":"para_355"},{"text":"On the other side of the balance, any interim harms to the","paragraph_id":"para_356"},{"text":"plaintiffs and Albanese are modest. The designation","paragraph_id":"para_357"},{"text":"effectively restricts the family’s ability to travel to the United","paragraph_id":"para_358"},{"text":"States and use their condominium in the District. But the","paragraph_id":"para_359"},{"text":"family has lived outside the United States for over a decade,","paragraph_id":"para_360"},{"text":"now lives in Tunisia, and has expressed no concrete plans or","paragraph_id":"para_361"},{"text":"desire to travel to the United States during the time this appeal","paragraph_id":"para_362"},{"text":"runs its course. As for L.C.’s interest in support from her","paragraph_id":"para_363"},{"text":"mother, the government has largely accommodated that by","paragraph_id":"para_364"},{"text":"licensing “all transactions … that are ordinarily incident and","paragraph_id":"para_365"},{"text":"necessary” to Albanese’s “role as the parent and legal","paragraph_id":"para_366"},{"text":"guardian” of L.C., including the purchase, payment, and receipt","paragraph_id":"para_367"},{"text":"of “goods, services, and funds essential to the maintenance” of","paragraph_id":"para_368"},{"text":"L.C., “including, but not limited to, health and medical","paragraph_id":"para_369"},{"text":"expenses, transportation, telecommunication costs, housing","paragraph_id":"para_370"},{"text":"costs, food, clothing, insurance, and legal fees and expenses.”","paragraph_id":"para_371"},{"text":"ECF Doc. 1-12. We likewise accommodate that interest, in","paragraph_id":"para_372"},{"text":"requiring the license to remain in effect while the appeal","paragraph_id":"para_373"},{"text":"remains pending.","paragraph_id":"para_374"},{"text":"* * * *","paragraph_id":"para_375"},{"text":"In sum, the First Amendment claim that the plaintiffs seek","paragraph_id":"para_376"},{"text":"to raise on Albanese’s behalf lacks merit, and the equitable","paragraph_id":"para_377"},{"text":"balance favors the government. 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