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              Congressional                                              ______
           R'  fesearch Service






Foreign Ownership of U.S. Real Property:

Developments in Shen v. Simpson



March 4,   2024

As described in this CRS Legal Sidebar, lawmakers have considered and promoted various legislative
options to restrict ownership of land by certain foreign entities. One such law, Florida's SB 264,
establishes certain land ownership restrictions pertaining to foreign entities associated with certain
countries of concern. This country list includes the People's Republic of China (PRC), the Russian
Federation, and the Islamic Republic of Iran, among others. SB 264 creates further restrictions
specifically for the PRC and associated entities.
In February 2024, the U.S. Court of Appeals for the Eleventh Circuit (Eleventh Circuit) granted, in part, a
motion for an injunction pending appeal filed by a group of PRC citizens and a Florida corporation
challenging SB 264 on various grounds. The scope of the ruling is limited, with the court restricting SB
264 from being enforced against two of the plaintiffs while the court reviews a lower court decision
against such an enforcement limitation against all of the plaintiffs while their case proceeds in court. In
reaching this decision, however, the court concluded that the plaintiffs would likely prevail in their
argument that SB 264 is preempted by federal law. This Legal Sidebar summarizes the status of this
action and potential related considerations for Congress.

Enforcement of SB 264 Against Two Plaintiffs

Preliminarily Enjoined Pending Appeal

Following Florida's passage of SB 264, several plaintiffs, including PRC citizens with interests in Florida
property, challenged the state law on various grounds, including violations of equal protection under the
U.S. Constitution and preemption under federal regimes governing foreign affairs, foreign investment,
and national security. After the federal district court denied a preliminary injunction motion to ban
enforcement of SB 264 against the plaintiffs during the pendency of their legal challenge, the plaintiffs
appealed to the Eleventh Circuit. The Eleventh Circuit's February 2024 order granting, in part, the
plaintiffs' motion for an injunction pending appeal grounds the court's reasoning in the belief that
plaintiffs showed a substantial likelihood of success as to the claim that portions of SB 264 are
preempted by 50 U.S.C. § 4565, including the Foreign Investment Risk Review Modernization Act of
2018 (FIRRMA).  These laws authorize the activities of the Committee on Foreign Investment in the

                                                                Congressional Research Service
                                                                  https://crsreports.congress.gov
                                                                                    LSB11120

CRS Legal Sidebar
Prepared for Members and


Committees of Congress

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