NOONAN, Circuit Judge:
The Republic of the Philippines (the Republic) brought a civil suit against its former president, Ferdinand Marcos, and his wife Imelda (the Marcoses), asserting claims under the Racketeer Influenced and Corrupt Organizations Act (RICO), 18 U.S. [1358]*1358C. §§ 1961 et seq., and other applicable law. The district court on June 25, 1986 entered a preliminary injunction enjoining the Mar-coses from disposing of any of their assets save for the payment of attorney fees and normal living expenses. The Marcoses appealed. A panel of this court reversed, 2-1. 818 F.2d 1473 (9th Cir.1987). We took the case en banc and now affirm the district court.
Federal Jurisdiction
The Republic alleges that the Marcoses engaged in mail fraud, wire fraud, and the transportation of stolen property in the foreign or interstate commerce of the United States. The acts alleged are crimes under 18 U.S.C. §§ 1341, 1343, and 2315. The Republic alleges that the acts were repeated, forming a pattern of predicate acts under RICO, 18 U.S.C. § 1961, and thereby giving rise to civil liability under RICO, 18 U.S.C. § 1964.
Contrary to the contention of the Marcoses, the Republic as a governmental body is a person within the meaning of 18 U.S.C. § 1961(3). Illinois Department of Revenue v. Phillips, 771 F.2d 312 (7th Cir.1985). The foreign nature of the Republic does not deprive it of statutory personhood. Cf. Pfizer, Inc. v. Government of India, 434 U.S. 308, 98 S.Ct. 584, 54 L.Ed.2d 563 (1978). Accordingly the Republic has standing to assert the RICO claims.
Contrary to the contention of the Marcoses, the complaint, as interpreted by the district court, sufficiently alleges a RICO offense. The Republic alleges that the Marcoses and the other defendants arranged for the investment in real estate in Beverly Hills, California of $4 million fraudulently obtained by the Marcoses; that the Marcoses arranged for the creation of two bank accounts in the name of Imelda Marcos at Lloyds Bank of California totaling over $800,000 also fraudulently obtained by the Marcoses; and that the Marcoses transported into Hawaii money, jewels, and other property worth over $7 million also fraudulently obtained by them. Criminal conduct under RICO “forms a pattern if it embraces criminal acts that have the same or similar purposes, results, participants, victims, or methods of commission, or otherwise are interrelated by distinguishing characteristics and are not isolated events.” Sedima, S.P.R.L. v. Imrex Co., Inc., 473 U.S. 479, 496 n. 14, 105 S.Ct. 3275, 3285, n. 14, 87 L.Ed.2d 346 (quoting 18 U.S.C. § 3575(e)). The purposes of the acts here alleged are the same — to invest and to conceal fraudulently-obtained booty. The results are the same — the investment of the booty. The principals are the same —the Marcoses. The victim is the same— the Republic. The episodes are not isolated events. They represent a plan and a practice of getting the fruits of fraud out of the Philippines and into the assumed safety of the United States. If proved, the allegations show acts that form a pattern.
Contrary to the contention of the Marcoses, the complaint as read by the district court also alleges a RICO enterprise. A RICO enterprise has been found to consist of “a group of individuals associated in fact for the purpose of illegally trafficking in narcotics ..., utilizing the United States mail to defraud ..., and corruptly influencing ... the outcome of state court proceedings.” United States v. Turkette, 452 U.S. 576, 579, 101 S.Ct. 2524, 2526, 69 L.Ed.2d 246 (1981). Here there is alleged to be a group of individuals associated in fact for the purpose of illegally investing the fruits of fraud and illegally using the mails and wire and illegally transporting in interstate commerce the fruits of the fraud.
The effect on the commerce of the United States of engaging in mail or wire fraud or bringing stolen property into the country is palpable. The Marcoses are mistaken in arguing that such criminal acts have no consequences for commerce to or in this country. The criminal enterprise which they are charged with conducting consisted in operations taking place within the United States. These operations had multiple effects on the domestic and foreign commerce of this country. If the operations were criminal, the operators incurred criminal liability under our law. [1359]*1359United States v. Stratton, 649 F.2d 1066, 1075 (5th Cir.1981) (appearance of out-of-state litigants before court that was a criminal RICO enterprise); United States v. Altomare, 625 F.2d 5 (4th Cir.1980) (interstate telephone calls perpetuating RICO enterprise affected interstate commerce). The Republic’s allegations are sufficient to establish federal jurisdiction. 18 U.S.C. § 1964.
Pendent Jurisdiction
The gravamen of the Republic’s entire case is the allegation that the Marcoses stole public money:
During his twenty years as President of the Philippines, Mr. Marcos used his position of power and authority to convert and cause to be converted, to his use and that of his friends, family, and associates, money, funds, and property belonging to the Philippines and its people. Complaint, ¶ 12 (emphasis added).
This common allegation supports not only plaintiff’s RICO claims but also the eight claims for conversion, fraud and deceit, constructive fraud, constructive trust, breach of implied contract, quiet title, accounting, and subrogation. The claims for a constructive trust, to quiet title, an accounting, and subrogation merely set forth different forms of relief for the same underlying wrongs.
The Republic’s strategy of bringing suit in a number of other jurisdictions is not decisive of the question whether the claims are such that they would ordinarily be tried in one judicial proceeding. The present location of the sought-for funds in banks in various countries is not determinative as to the underlying wrongs alleged in the complaint. The claims brought in this suit would ordinarily be tried in a single case. In both the RICO and non-RICO claims, the Republic alleges that the Marcoses converted public funds while in office. The district court concluded:
This Court has pendent jurisdiction over plaintiff’s other claims under state and foreign law in that such claims arise from a common nucleus of operative fact and are so intertwined with other matters pending before the court as to make the exercise of such jurisdiction over these claims appropriate.
The district court was correct in asserting pendent jurisdiction over these claims. They derive from “a common nucleus of operative fact” and are such that a plaintiff “would ordinarily be expected to try them all in one judicial proceeding.” United Mine Workers v. Gibbs, 383 U.S. 715, 725, 86 S.Ct. 1130, 1138, 16 L.Ed.2d 218 (1966). The power of a federal court to decide pendent claims is “wide-ranging.” See Carnegie-Mellon Univ. v. Cohill, — U.S. -, 108 S.Ct. 614, 618, 98 L.Ed.2d 720 (1988). The exercise of the power is discretionary but ordinarily the power if it exists is exercised; only exceptionally is the power not employed. See C. Wright, A. Miller & E. Cooper 13B Federal Practice and Procedure § 3567.1 (1984 and 1988 Supp.).
The common nucleus of operative facts that binds the RICO and non-RICO claims together is pleaded in paragraph 12, which is incorporated by reference into each claim for relief. To prove the predicates for RICO that allegedly occurred in this country, the Republic will have to prove theft, the acceptance of bribes, extortion, conspiracy, and similar acts in the Marcoses’ conduct of the government in the Philippines. For example, to prove that stolen money was unlawfully transported in the United States, the Republic will have to prove theft in the Philippines. The operative facts necessary as part of the proof of the RICO claim are also the facts necessary to prove the theft. The RICO claims cannot be proved without getting deeply into the pendent claims and proving some or all of them. Because the acts charged, if proved, support both the RICO and the non-RICO claims, the district court has subject matter jurisdiction over all claims in the Republic’s complaint.
True, the pendent claims may involve more property than that which entered into or affected the foreign or domestic commerce of the United States. The dissent appears to assume that jurisdiction over the pendent claims cannot extend beyond [1360]*1360this property. But that is not the law. Properly pendent claims need not be for the identical property involved in the federal cause of action. The pendent claims remain within the court’s jurisdiction if the vital facts that must be proved as predicates of the RICO claims are the same as those that must be proved to establish the extortion, bribery, theft, fraud, and conversions alleged by the pendent claims.
At “every stage of the proceeding” the district court must exercise discretion as to the pendent claims: See Carnegie-Mellon Univ. v. Cohill, 108 S.Ct. at 618. In light of a more fully developed record than that now before this court, the district judge may conclude that some or all of the pendent claims should be dismissed notwithstanding our holding that the district court has the power to assert jurisdiction over those claims. Gibbs, 383 U.S. at 727, 86 S.Ct. at 1139. See also 3A J. Moore, W. Taggert & J. Wicker, Moore’s Federal Practice 1Í 18.07[l.-3] at 18-36-37 (2d ed. 1987). As of the record now before us, pendent jurisdiction exists and supports an injunction based on the pendent claims.
Act of State and Political Question
Before determining whether issuance of an injunction was appropriate we consider two defenses which, if accepted, would block trial of the case: the Marcoses maintain, first, that their acts are insulated because they were acts of state not reviewable by our courts; and second, that any adjudication of these acts would involve the investigation of political questions beyond our courts’ competence.
Acts of State. The classification of certain acts as “acts of state” with the consequence that their validity will be treated as beyond judicial review is a pragmatic device, not required by the nature of sovereign authority and inconsistently applied in international law. Banco Nacional de Cuba v. Sabbatino, 376 U.S. 398, 421-22, 84 S.Ct. 923, 936-37, 11 L.Ed.2d 804 (1964). The purpose of the device is to keep the judiciary from embroiling the courts and the country in the affairs of the foreign nation whose acts are challenged. Minimally viewed, the classification keeps a court from making pronouncements on matters over which it has no power; maximally interpreted, the classification prevents the embarrassment of a court offending a foreign government that is “extant at the time of suit.” Id. at 428, 84 S.Ct. at 940.
The “continuing vitality” of the doctrine depends on “its capacity to reflect the proper distribution of functions between the judicial and political branches of the Government on matters bearing upon foreign relations.” Id. at 427-28, 84 S.Ct. at 939-40. Consequently, there are “constitutional underpinnings” to the classification. Id. at 423, 84 S.Ct. at 938. A court that passes on the validity of an “act of state” intrudes into the domain of the political branches. The proper application of the doctrine is illustrated by Occidental Petroleum Corp. v. Buttes Gas & Oil Co., 331 F.Supp. 92 (C.D.Cal.1971), aff'd per curiam, 461 F.2d 1261 (9th Cir.), cert. denied, 409 U.S. 950, 93 S.Ct. 272, 34 L.Ed.2d 221 (1972).
As a practical tool for keeping the judicial branch out of the conduct of foreign affairs, the classification of “act of state” is not a promise to the ruler of any foreign country that his conduct, if challenged by his own country after his fall, may not become the subject of scrutiny in our courts. No estoppel exists insulating a deposed dictator from accounting. No guarantee has been granted that immunity may be acquired by an ex-chief magistrate invoking the magic words “act of state” to cover his or her past performance.
The classification might, it may be supposed, be used to prevent judicial challenge in our courts to many deeds of a dictator in power, at least when it is apparent that sustaining such challenge would bring our country into a hostile confrontation with the dictator. Once deposed, the dictator will find it difficult to deploy the defense successfully. The “balance of considerations” is shifted. Sabbatino, 376 U.S. at 428, 84 S.Ct. at 940. A fortiori, when a ruler’s former domain has turned [1361]*1361against him and seeks the recovery of what it claims he has stolen, the classification has little or no applicability. The act of state doctrine is supple, flexible, ad hoc. The doctrine is meant to facilitate the foreign relations of the United States, not to furnish the equivalent of sovereign immunity to a deposed leader.
In the instant case the Marcoses offered no evidence whatsoever to support the classification of their acts as acts of state. The burden of proving acts of state rested upon them. Alfred Dunhill of London, Inc. v. Republic of Cuba, 425 U.S. 682, 695, 96 S.Ct. 1854, 1861, 48 L.Ed.2d 301 (1976). They did not even undertake the proof. The United States, invited by the court to address this matter as an amicus, assures us that the Executive does not at present see the applicability of this defense. Brief of the United States of America as Amicus Curiae, p. 11. The act of state doctrine, the Executive declares, has “no bearing” on this case as it stands. As the doctrine is a pragmatic one, we cannot exclude the possibility that, at some later point in the development of this litigation, the Marcoses might produce evidence that would warrant its application. On the present record, the defense does not apply.
Political Questions. Bribetaking, theft, embezzlement, extortion, fraud, and conspiracy to do these things are all acts susceptible of concrete proofs that need not involve political questions. The court, it is true, may have to determine questions of Philippine law in determining whether a given act was legal or illegal. But questions of foreign law are not beyond the capacity of our courts. See Zschernig v. Miller, 389 U.S. 429, 461, 88 S.Ct. 664, 681, 19 L.Ed.2d 683 (1968) (Harlan, J. concurring); Fed.R.Civ.P. 44.1 (allowing consideration of foreign law materials). The court will be examining the acts of the president of a country whose immediate political heritage is from our own. Although sometimes criticized as a ruler and at times invested with extraordinary powers, Ferdinand Marcos does not appear to have had the authority of an absolute autocrat. He was not the state, but the head of the state, bound by the laws that applied to him. Our courts have had no difficulty in distinguishing the legal acts of a deposed ruler from his acts for personal profit that lack a basis in law. As in the case of the deposed Venezuelan ruler, Marcos Perez Jimenez, the latter acts are as adjudicable and re-dressable as would be a dictator’s act of rape. Jimenez v. Aristeguieta, 311 F.2d 547 (5th Cir.1962).
The Convenience of the Forum
The Marcoses maintain that the Republic’s action should have been dismissed, even if the district court had jurisdiction, on the ground of forum non conve-niens. They point to the foreign character of the plaintiff, the nature of the Republic’s claims about the Marcoses’ conduct in office, and the fact that the court will be called upon to decide questions of Philippine law. The inconvenience of the forum was argued by the Marcoses to the district court. But the court did not address the argument. On the present record the district court did not abuse its discretion in refusing to dismiss the Republic’s action on forum non conveniens grounds before issuing the preliminary injunction.
Injunction Rather Than Attachment
Fed.R.Civ.P. 64 makes available all remedies for the seizure of property “in the manner provided by the law of the state in which the district court is held.” The Mar-coses argue that the freeze of their assets is an attachment and that California law permits attachment only in connection with a claim based upon a contract. Cal.Civ. Proc.Code § 483.010(c). The Marcoses are mistaken. While a freeze of assets has the effect of an attachment, it is not an attachment. F.T.C. v. H.N. Singer, Inc., 668 F.2d 1107, 1112 (9th Cir.1982). The court has power to preserve the status quo by equitable means. A preliminary injunction is such a means. F.T.C., 668 F.2d at 1112.
The Standard for Issuance of the Injunction
The issuance of the preliminary injunction was not an abuse of discretion by the [1362]*1362district court if that court properly concluded that the Republic had shown the probability of success on the merits of its pendent claims and the possibility of irreparable injury, or that the pendent claims raised serious questions and the balance of hardships tipped sharply in favor of the Republic. Hoopa Valley Tribe v. Christie, 812 F.2d 1097, 1102 (9th Cir.1987). “These are not two distinct tests, but rather the opposite ends of a single ‘continuum in which the required showing of harm varies inversely with the required showing of meritoriousness.’ ” Rodeo Collection, Ltd. v. West Seventh, 812 F.2d 1215, 1217 (9th Cir.1987) (quoting San Diego Committee Against Registration and the Draft v. Governing Board of the Grossmont Union High School Dist., 790 F.2d 1471, 1473 n. 3 (9th Cir.1986)). “The critical element in determining the test to be applied is the relative hardship to the parties. If the balance of harm tips decidedly toward the plaintiff, then the plaintiff need not show as robust a likelihood of success on the merits as when the balance tips less decidedly.” Benda v. Grand Lodge of Int’l Assoc. of Machinists & Aerospace Workers, 584 F.2d 308, 315 (9th Cir.1978), cert. dismissed, 441 U.S. 937, 99 S.Ct. 2065, 60 L.Ed.2d 667 (1979) (citation omitted).
For the purposes of injunctive relief, “serious questions” refers to questions which cannot be resolved one way or the other at the hearing on the injunction and as to which the court perceives a need to preserve the status quo lest one side prevent resolution of the questions or execution of any judgment by altering the status quo. Serious questions are “substantial, difficult and doubtful, as to make them a fair ground for litigation and thus for more deliberative investigation.” Hamilton Watch Co. v. Benrus Watch Co., 206 F.2d 738, 740 (2d Cir.1952) (Frank, J.). Serious questions need not promise a certainty of success, nor even present a probability of success, but must involve a “fair chance of success on the merits.” National Wildlife Fed’n v. Coston, 773 F.2d 1513, 1517 (9th Cir.1985) (Duniway, J.). Applying these principles and definitions to this case, we conclude that the district court did not abuse its discretion in granting the preliminary injunction.
The district court stated orally that “the hardship is clearly on the side of the plaintiff.” The district court also made the written finding that there was more than a mere possibility of irreparable harm; in fact, it concluded that the Republic “would be irreparably injured if [the injunction] were not issued.” (emphasis added). The Marcoses have offered no evidence of any hardship they would suffer if the injunction were issued. Indeed, the district court stipulated in the injunction that the Marcos-es may use their assets to cover normal living expenses and legal fees. Irreparable injury was weighed against zero evidence of hardship. On this record, the balance of hardships tipped decidedly in the Republic’s favor.
The district court also concluded that the Republic had a “substantial likelihood” of prevailing on the merits. Although we do not read this as a finding of probability of success, we do believe that it represents a finding that the Republic has at least a fair chance of success, which is all that is required. See Benda, 584 F.2d at 315. We agree with the district court that the Republic has at least a fair chance of prevailing on the merits, including on the merits of its constructive trust claim.
The Republic presented evidence that in February 1986 the Marcoses had transported from the Philippines to Hawaii $8.2 million worth of cash, negotiable instruments, jewelry, and other property, allegedly derived from the Marcoses’ wrongdoing in the Philippines. Ferdinand Marcos swore by affidavit that it had not been his intention to go to Hawaii and that he had been taken there involuntarily by the government of the United States. But as he sought to recover from United States Customs all of these items he clearly intended to introduce them into the United States. He used the United States mail and telephone services for this purpose.
The Republic also presented evidence that since at least 1968 the Marcoses had a checking account at a bank in Beverly [1363]*1363Hills, California and that this account was used to make payments of $200,000 to “William Saunders” and $100,000 to “Jane Ryan.” The Republic introduced evidence that these names were aliases under which Ferdinand Marcos and Imelda Marcos acted. The Republic presented evidence of the creation by the Marcoses in 1970 of a Lichtenstein entity entitled the “Sandy Foundation,” which in effect was a trust to make investments for the benefit of the Marcoses and their children, Imelda, Ferdinand, and Irene, and which was funded by the Marcoses with an initial capital of 100,-000 Swiss francs. The Republic presented evidence that “Jane Ryan” and “William Saunders” transferred their accounts to this trust and that Credit Suisse, a Zurich bank, was “the administering bank” of the trust. The Republic presented evidence of correspondence by the Marcoses as customers of that bank and the use by Imelda Marcos of the alias of Jane Ryan in dealing with that bank.
According to the Republic’s evidence, a code was worked out for contacts between the Marcoses and the trust. According to a copy of a memorandum signed by Ferdinand Marcos, if he cabled “Happy Birthday” to the bank, its Hong Kong representative, Ralph Klein, would proceed to Manila and “contact him through Col. Fabian C. Ver.” (Colonel Ver is now General Ver, associated with the Marcoses in power and in their flight from the Philippines.)
In addition to this evidence of secretive dealings in substantial sums of money in the course of which the Marcoses used a bank in California, the Republic submitted a statement by the Minister of the Budget of the Philippines as to the total salaries authorized to be paid Ferdinand Marcos as president from 1966 to 1985 and Imelda Marcos as a minister of government from 1976 to 1985. The total authorized amount is P 2,288,750, in dollars less than $800,000. The Republic submitted what purports to be a balance sheet signed by Ferdinand Marcos as part of a tax return stating his assets as of December 31, 1966 as P 150,-000, in dollars less than $60,000. The Republic submitted the sworn deposition, executed June 16, 1986, of Rafael Fernando, Representative and Coordinator on the West Coast of the United States of the Presidential Commission on Good Government of the Republic of the Philippines. Fernando declares that Swiss bank authorities have documented to the government of the Republic the existence of bank accounts owned by Ferdinand Marcos in the amount of $200 million and have reported to the Republic the existence of other accounts held for or on behalf of him in the amount of approximately $1.3 billion.
The Marcoses’ clandestine dealings with Credit Suisse and the Lichtenstein trust and the discrepancy between the purported balance sheet of 1966 and the reported assets of 1986, coupled with the reported authorized salaries of the Marcoses as members of the government of the Republic, give rise to the inference that very large sums of money were amassed by the Marcoses by the unlawful means alleged by the Republic. The inference depends in part on the hearsay statements of Fernando. It was within the discretion of the district court to accept this hearsay for purposes of deciding whether to issue the preliminary injunction. Flynt Distrib. Co., Inc. v. Harvey, 734 F.2d 1389, 1394 (9th Cir.1984) (“The urgency of obtaining a preliminary injunction necessitates a prompt determination and makes it difficult to obtain affidavits from persons who would be competent to testify at trial. The trial court may give even inadmissible evidence some weight, when to do so serves the purpose of preventing irreparable harm before trial.”); see also K-2 Ski Co. v. Head Ski Co., 467 F.2d 1087, 1088 (9th Cir.1972) (trial court may consider allegations in verified complaint in issuing preliminary injunction). No affidavits countering the inference were presented by the Marcoses. See K-2 Ski Co., 467 F.2d at 1089. The Republic’s case remains to be proved. The Republic has put forward enough to show a fair chance of succeeding with its proof.
The Scope of the Injunction
The injunction is directed against individuals, not against property; it enjoins the Marcoses and their associates from [1364]*1364transferring certain assets wherever they are located. Because the injunction operates in personam, not in rem, there is no reason to be concerned about its territorial reach. See, e.g., Steele v. Bulova Watch Co., 344 U.S. 280, 289, 73 S.Ct. 252, 257, 97 L.Ed. 319 (1952) (district court “in exercising its equity powers may command persons properly before it to cease to perform acts outside its territorial jurisdiction”) (citations omitted).
A court has the power to issue a preliminary injunction to prevent a defendant from dissipating assets in order to preserve the possibility of equitable remedies. See, e.g., F.T.C. v. H.N. Singer, Inc., 668 F.2d 1107, 1112 (9th Cir.1982) (preliminary injunction appropriate to preserve the possibility of equitable remedies). The injunction here enjoins the defendants from secreting those assets necessary to preserve the possibility of equitable relief.
Although the gravamen of the complaint is that the Marcoses converted public property to their own use, the seventh claim for relief, which alleges a constructive trust, states an equitable cause of action and seeks equitable relief: “[The Marcoses], by virtue of their position as President of the Philippines and Governor of Manila, respectively, occupied positions of trust as to the Philippines and its people. [The Marcoses] violated said trust by their numerous acts of conversion, fraud, deceit, constructive fraud, civil conspiracy, acts of racketeering, and other unlawful acts.” As the result of these asserted violations of trust, the Marcoses acquired specific funds and real property, including the accounts with Lloyds Bank, the real property in Beverly Hills, the deposits with the Swiss banks and the property brought into Hawaii. Complaint, till 62-67. In granting the preliminary injunction, the district court specifically found “that the Philippines will be entitled to an accounting for, and to impose a constructive trust upon, the property subject to this Order.” The district court found the preliminary injunction necessary to preserve the possibility of equitable relief. On this record, the district court did not abuse its discretion in entering an injunction of this scope.
The district court remains free to modify or dissolve the preliminary injunction if warranted by developments in this case subsequent to the noticing of this appeal. Lyng v. Northwest Indian Cemetery Protective Assoc., — U.S. -, 108 S.Ct. 1319, 1330, 99 L.Ed.2d 534 (1988). See also 7 J. Moore, W. Taggert & J. Wicker, Moore’s Federal Practice ¶ 65.07 at 65-114 (2d ed. 1987).
In Summation. Jurisdiction to hear the Republic’s claims and to enter the preliminary injunction exists. A serious question of liability has been presented and the Republic has a fair chance of success on the merits of its case. The Marcoses have not presented any preclusive defense. The scope of the injunction is justified. It was imperative for the district court to preserve the status quo lest the defendants prevent resolution of the case by putting their property beyond the reach of the court. Hardship to the Republic would have been great and irreparable if the district court had not taken its prudent, amply justified action to keep the Marcoses’ assets from disappearing.
AFFIRMED.