    [Constitution, Jefferson's Manual, and the Rules of the House of Representatives, 107th Congress]
    [107th Congress]
    [House Document 106-320]
    [Jeffersons Manual of ParliamentaryPractice]
    [Pages 307-324]
    [From the U.S. Government Publishing Office, www.gpo.gov]

    * * * * *
                             sec. liii--impeachment

    Sec. 601. Jurisdiction of Lords and Commons as
    to impeachments.

      These are the  provisions of the Constitution of the United States
    on the subject of impeachments. The following is a sketch of some of the
    principles and practices of England on the same subject:

    [[Page 308]]

    the Lords, even by the Commons; and cites Fitzharris's case, 1681,
    impeached of high treason, where the Lords remitted the prosecution to
    the inferior court. 8 Grey's Deb., 325-7; 2 Wooddeson, 576, 601; 3
    Seld., 1604, 1610, 1618, 1619, 1641; 4 Blackst., 25; 9 Seld., 1656; 73
    Seld., 1604-18.
      Jurisdiction. The Lords can not impeach any to themselves, nor join in
    the accusation, because they are the judges. Seld. Judic. in Parl., 12,
    63. Nor can they proceed against a commoner but on complaint of the
    Commons. Ib., 84. The Lords may not, by the law, try a commoner for a
    capital offense, on the information of the King or a private person,
    because the accused is entitled to a trial by his peers generally; but
    on accusation by the House of Commons, they may proceed against the
    delinquent, of whatsoever degree, and whatsoever be the nature of the
    offense; for there they do not assume to themselves trial at common law.
    The Commons are then instead of a jury, and the judgment is given on
    their demand, which is instead of a verdict. So the Lords do only judge,
    but not try the delinquent. Ib., 6, 7. But Wooddeson denies that a
    commoner can now be charged capitally before

    Sec. 602. Parliamentary law as to accusation
    in impeachment.

      Accusation. The  Commons, as the grand inquest of the nation, becomes
    suitors for penal justice. 2 Wood., 597; 6 Grey, 356. The general course
    is to pass a resolution containing a criminal charge against the
    supposed delinquent, and then to direct some member to impeach him by
    oral accusation, at the bar of the House of Lords, in the name of the
    Commons. The person signifies that the articles will be exhibited, and
    desires that the delinquent may be sequestered from his seat, or be
    committed, or that the peers will take order for his appearance. Sachev.
    Trial, 325; 2 Wood., 602, 605; Lords' Journ., 3 June, 1701; 1 Wms., 616;
    6 Grey, 324.

    [[Page 309]]

    ing in the courts and the offenses did not relate to activities during
    the Vice President's term of office (Sept. 25, 1973, p. 31368; III, 2510
    (wherein the Committee on the Judiciary, to which the matter had been
    referred by privileged resolution, reported that the Vice President
    could not be impeached for acts or omissions committed prior to his term
    of office)). On the other hand, in 1826 the Vice President's request
    that the House investigate charges against his prior official conduct as
    Secretary of War was referred, on motion, to a select committee (III,
    1736). On September 9, 1998, an independent counsel transmitted to the
    House under 28 U.S.C. 595(c) a communication containing evidence of
    alleged impeachable offenses by the President. In the 106th Congress the
    House adopted a privileged resolution reported by the Committee on Rules
    referring the communication to the Committee on the Judiciary,
    restricting Members' access to the communication, and restricting access
    to committee meetings and hearings on the communication (H. Res. 525,
    Sept. 11, 1998, p. ----). Later, the House adopted a privileged
    resolution reported by the Committee on the Judiciary authorizing an
    impeachment inquiry by that committee (H. Res. 581, Oct. 8, 1998, p. --
    --). The authority to appoint an independent counsel under 28 U.S.C.
    595(c) expired on June 30, 1999.

    Sec. 603. Inception of impeachment proceedings in the
    House.

      In the  House there are various methods of setting an impeachment in
    motion: by charges made on the floor on the responsibility of a Member
    or Delegate (II, 1303; III, 2342, 2400, 2469; VI, 525, 526, 528, 535,
    536); by charges preferred by a memorial, which is usually referred to a
    committee for examination (III, 2364, 2491, 2494, 2496, 2499, 2515; VI,
    543); by a resolution dropped in the hopper by a Member and referred to
    a committee (Apr. 15, 1970, p. 11941; Oct. 23, 1973, p. 34873); by a
    message from the President (III, 2294, 2319; VI, 498); by charges
    transmitted from the legislature of a State (III, 2469) or territory
    (III, 2487) or from a grand jury (III, 2488); or from facts developed
    and reported by an investigating committee of the House (III, 2399,
    2444). In the 93d Congress, the Vice President sought to initiate an
    investigation by the House of charges against him of possibly
    impeachable offenses. The Speaker and the House took no action on the
    request since the matter was pend

    [[Page 310]]

    Sec. 604. A proposition to impeach a question of
    privilege.

      A direct  proposition to impeach is a question of high privilege in
    the House and at once supersedes business otherwise in order under the
    rules governing the order of business (III, 2045-2048, 2051, 2398; VI,
    468, 469; July 22, 1986, p. 17294; Aug. 3, 1988, p. 20206; May 10, 1989,
    p. 8814; Sept. 23, 1998, p. ----; see Procedure, ch. 14, sec. 1-5). It
    may not even be superseded by an election case, which is also a matter
    of high privilege (III, 2581). It does not lose its privilege from the
    fact that a similar proposition has been made at a previous time during
    the same session of Congress (III, 2408), previous action of the House
    not affecting it (III, 2053). As such, a report of the Committee on the
    Judiciary accompanying an impeachment resolution is filed from the floor
    as privileged (Dec. 17, 1998, p. ----), and is called up as privileged
    (Dec. 18, 1998, p. ----). The addition of new articles of impeachment
    offered by the managers but not reported by committee are also
    privileged (III, 2401), as is a proposition to refer to committee the
    papers and testimony in an impeachment of the preceding Congress (V,
    7261). To a privileged resolution of impeachment, an amendment proposing
    instead censure, which is not privileged, was held not germane (Dec. 19,
    1998, p. ----). On several occasions the Committee on the Judiciary,
    having been referred a question of impeachment, reported a
    recommendation that impeachment was not warranted and, thereafter,
    called up the report as a question of privilege (Deschler's Precedents,
    vol. 3, ch. 14, sec. 1.3). Under 28 U.S.C. 596(a) an independent counsel
    appointed to investigate the President may be impeached; and a
    resolution impeaching such independent counsel constitutes a question of
    the privileges of the House under rule IX (Sept. 23, 1998, p. ----).

      Propositions relating to an impeachment already made also are
    privileged (III, 2400, 2402, 2410; July 22, 1986, p. 17294; Dec. 2,
    1987, p. 33720; Aug. 3, 1988, p. 20206), such as resolutions providing
    for selection of managers of an impeachment (VI, 517; Dec. 19, 1998, p.
    ----), proposing abatement of impeachment proceedings (VI, 514),
    reappointing managers for impeachment proceedings continued in the
    Senate from the previous Congress (Jan. 3, 1989, p. 84; Jan. 6, 1999, p.
    ----), empowering managers to hire special legal and clerical personnel
    and providing for their pay, and to carry out other responsibilities
    (Jan. 3, 1989, p. 84; Dec. 19, 1998, p. ----; Jan. 6, 1999, p. ----),
    and replacing an excused manager (Feb. 7, 1989, p. 1726); but a
    resolution simply proposing an investigation, even though impeachment
    may be a possible consequence, is not privileged (III, 2050, 2546; VI,
    463).

      Where a resolution of investigation positively proposes impeachment or
    suggests that end, it has been admitted as of privilege (III, 2051,
    2052, 2401, 2402), such as a resolution reported by the Committee on the
    Judiciary authorizing an impeachment inquiry by that committee and
    investing the committee with special investigative authorities to
    facilitate the inquiry (III, 2029; VI, 498, 528, 549; Deschler's
    Precedents, vol. 3, ch. 14, secs. 5.8, 6.2; H. Res. 581, Oct. 8, 1998,
    p. ----). A committee to which has been referred privileged resolutions
    for the impeachment of an officer may call up as privileged resolutions
    incidental to consideration of the impeachment question, including
    conferral of subpoena authority and funding of the investigation from
    the contingent fund (now referred to as ``applicable accounts of the
    House described in clause 1(i)(1) of rule X'') (VI, 549; Feb. 6, 1974,
    p. 2349). Similarly, a resolution authorizing depositions by committee
    counsel in an impeachment inquiry is privileged under rule IX as
    incidental to impeachment (Speaker Wright, Oct. 3, 1988, p. 27781).

    [[Page 311]]

    Later, the House adopted a privileged resolution reported by the
    Committee on the Judiciary authorizing an impeachment inquiry by that
    committee (H. Res. 581, Oct. 8, 1998, p. ----).

    Sec. 605. Investigation of impeachment
    charges.

      The impeachment  having been made on the floor by a Member (III, 2342, 2400;
    VI, 525, 526, 528, 535, 536), or charges suggesting impeachment having
    been made by memorial (III, 2495, 2516, 2520; VI, 552), or even
    appearing through common fame (III, 2385, 2506), the House has at times
    ordered an investigation at once. At other times it has refrained from
    ordering investigation until the charges had been examined by a
    committee (III, 2364, 2488, 2491, 2492, 2494, 2504, 2513). Under the
    later practice, resolutions introduced through the hopper that directly
    call for the impeachment of an officer have been referred to the
    Committee on the Judiciary, while resolutions calling for an
    investigation by that committee or by a select committee with a view
    toward impeachment have been referred to the Committee on Rules (Oct.
    23, 1973, p. 34873). Upon receipt of a communication from an independent
    counsel transmitting to the House under 28 U.S.C. 595(c) a communication
    containing evidence of alleged impeachable offenses by the President,
    the House adopted a resolution reported by the Committee on Rules
    referring the communication to the Committee on the Judiciary to conduct
    a review (H. Res. 525, 106th Cong., Sept. 11, 1998, p. ----).

    Sec. 606. Procedure of committee in
    investigating.

      The House has  always examined the charges by its own committee before
    it has voted to impeach (III, 2294, 2487, 2501). This committee has
    sometimes been a select committee (III, 2342, 2487, 2494), sometimes a
    standing committee (III, 2400, 2409). In some instances the committee
    has made its inquiry ex parte (III, 2319, 2343, 2366, 2385, 2403, 2496,
    2511); but in the later practice the sentiment of committees has been in
    favor of permitting the accused to explain, present witnesses, cross-
    examine (III, 2445, 2471, 2518), and be represented by counsel (III,
    2470, 2501, 2511, 2516; 93d Cong., Aug. 20, 1974, p. 29219; H. Rept.
    105-830, Dec. 16, 1998). The Committee on the Judiciary having been
    directed by the House to investigate whether sufficient grounds existed
    for the impeachment of President Nixon, and the President having
    resigned following the decision of that committee to recommend his
    impeachment to the House, the chairman of the committee submitted from
    the floor as privileged the committee's report containing the articles
    of impeachment approved by the committee but without an accompanying
    resolution of impeachment. The House thereupon adopted a resolution (1)
    taking notice of the committee's action on a resolution and Articles of
    Impeachment and of the President's resignation; (2) accepting the report
    and authorizing its printing, with additional views; and (3) commending
    the chairman and members of the committee for their efforts (Aug. 20,
    1974, p. 29361).

    Sec. 606a. Procedure of House in
    considering.

      During the  pendency of an impeachment resolution, remarks in debate
    may include references to personal misconduct on the part of the
    President but may not include language generally abusive toward the
    President and may not include comparisons to the personal conduct of
    sitting Members of the House or Senate (Dec. 18, 1998, p. ----). A
    resolution setting forth four separate articles of impeachment may be
    divided among the articles (Dec. 19, 1998, p. ----).

    [[Page 312]]

    a resolution appointing managers. In the later practice the House
    considers together the resolution and articles of impeachment (VI, 499,
    500, 514; Mar. 2, 1936, pp. 3067-91) and following their adoption adopts
    resolutions electing managers to present the articles before the Senate,
    notifying the Senate of the adoption of articles and election of
    managers, and authorizing the managers to prepare for and to conduct the
    trial in the Senate (VI, 500, 514, 517; Mar. 6, 1936, pp. 3393, 3394;
    July 22, 1986, p. 17306; Aug. 3, 1988, p. 20206). These privileged
    incidental resolutions may be merged into a single indivisible
    privileged resolution (H. Res. 614, Dec. 19, 1998, p. ----; H. Res. 10,
    Jan. 6, 1999, p. ----).

    Sec. 607. Impeachment carried to the
    Senate.

      Its committee  on investigation having reported, the House may vote the
    impeachment (III, 2367, 2412; VI, 500, 514; Mar. 2, 1936, pp. 3067-91),
    and, after having notified the Senate by message (III, 2413, 2446), may
    direct the impeachment to be presented at the bar of the Senate by a
    single Member (III, 2294), or by two (III, 2319, 2343, 2367), or five
    Members (III, 2445) or nine (July 22, 1986, p. 17306) or 13 (Dec. 19,
    1998, p. ----). These Members in two notable cases represented the
    majority party alone (e.g., Dec. 19, 1998, p. ----), but ordinarily
    include representation of the minority party (III, 2445, 2472, 2505).
    Under early practice the House elected managers by ballot (III, 2300,
    2323, 2345, 2368, 2417). In two instances the Speaker appointed the
    managers on behalf of the House pursuant to an order of the House (III,
    2388, 2475). Since 1912 the House has adopted

    Sec. 608. Impeachment process in the
    Senate.

      Process. If the  party do not appear, proclamations are to be issued, giving
    him a day to appear. On their return they are strictly examined. If any
    error be found in them, a new proclamation issues, giving a short day.
    If he appear not, his goods may be arrested, and they may proceed. Seld.
    Jud. 98, 99.

    Sec. 608a. Senate impeachment proceedings against
    President Clinton.

      Under  an order of the Senate, the Secretary of the Senate
    informed the House and the Chief Justice that it was ready to receive
    the House managers for the purpose of exhibiting articles of impeachment
    against President Clinton (Jan. 6, 1999, p. ----). At the appointed hour
    the House managers were announced and escorted into the Senate chamber
    by the Senate Sergeant-at-Arms (Jan. 7, 1999, p. ----). The managers
    presented the articles of impeachment by reading two resolutions as
    follows: (1) the appointment of managers (H. Res. 10, Jan. 7, 1999, p.
    ----); and (2) the two articles of impeachment (H. Res. 611, Jan. 7,
    1999, p. ----). Thereupon, the managers requested the Senate take order
    for trial (Jan. 7, 1999, p. ----).

    [[Page 313]]

    arguments on such motions. The resolution then directed the Senate to
    dispose of any such motions and established a further timetable for (1)
    the House to make its presentation in support of the articles of
    impeachment (such argument to be confined to the record); (2) the
    President to make his presentation in opposition to the articles of
    impeachment; and (3) the Senators to question the parties. The
    resolution directed the Senate, upon completion of that phase of the
    proceedings, to dispose of a motion to dismiss, and if defeated, to
    dispose of a motion to subpoena witnesses or to present any evidence not
    in the record. The resolution further provided that, if the motion to
    call witnesses were adopted, the witnesses would first be deposed and
    then the Senate would decide which witnesses should testify. It further
    provided that if the Senate failed to dismiss the case, the parties
    would proceed to present evidence. Finally, the resolution directed the
    Senate to vote on each article of impeachment at the conclusion of the
    deliberations. The evidentiary record (summons, answer, replies, and
    trial briefs) was printed in the Record by unanimous consent (Jan. 14,
    1999, p. ----). Pursuant to the previous order of the Senate (S. Res.
    16, Jan. 8, 1999, p. ----), the House managers were recognized for 24
    hours to present their case in support of conviction and removal of
    President Clinton (Jan. 14, 1999, p. ----); counsel for the President
    was then recognized for 24 hours to present the President's defense
    (Jan. 19, 1999, p. ----); and Senators submitted questions in writing of
    either the House managers or the President's counsel (which were read by
    the Chief Justice, alternating between parties) for a period not to
    exceed 16 hours (Jan. 22, 1999, p. ----). The Chief Justice ruled that a
    House manager could not object to a question although he could object to
    an answer (Jan. 22, 1999, p. ----; Jan. 23, 1999, p. ----). The Senate
    adopted a motion to consider a motion to dismiss in executive session
    (Jan. 25, 1999, p. ----), and the motion to dismiss was defeated (Jan.
    27, 1999, p. ----). The Senate adopted a motion to consider a motion of
    the House managers to subpoena witnesses in executive session (Jan. 26,
    1999, p. ----). The Senate adopted that motion, which: (1) authorized
    the issuance of subpoenas for depositions of three witnesses; (2)
    admitted miscellaneous documents into the trial record; and (3)
    petitioned the Senate to request the appearance of President Clinton at
    a deposition (Jan. 26, 1999, p. ----).
      The Senate adopted a resolution governing the initial impeachment
    proceedings of President Clinton (S. Res. 16, Jan. 8, 1999, p. ----).
    Later it adopted a second resolution governing the remaining proceedings
    (S. Res. 30, Jan. 28, 1999, p. ----). The first resolution issued the
    summons in the usual form. It also provided a timetable for (1) the
    filing of an answer by the President; (2) the filing of a reply by the
    House, together with the record consisting of publicly available
    materials that had been submitted to or produced by the House Judiciary
    Committee (the resolution further directed that the record be admitted
    into evidence, printed, and made available to Senators); (3) the filing
    of a trial brief by the House; (4) the filing of any motions permitted
    under the rules of impeachment (except for motions to subpoena witnesses
    or to present evidence not in the record); (5) the filing of responses
    to any such motions; (6) the filing of a trial brief by the President;
    (7) the filing of a rebuttal brief by the House; and (8)

    [[Page 314]]

    tain depositions and to establish procedures for conducting depositions
    (S. Res. 30, Jan. 28, 1999, p. ----). The Senate adopted two parts of a
    divided motion as follows: (1) permitting the House managers to admit
    transcripts and videotapes of oral depositions into evidence (Feb. 4,
    1999, p. ----); and (2) permitting the parties to present before the
    Senate for an equally divided specified period of time portions of
    videotapes or oral depositions admitted into evidence, having first
    rejected a preemptive motion to restrict the House managers'
    presentation of evidence to written transcripts (Feb. 4, 1999, p. ----).
    The Senate rejected the portion of the divided motion that would have
    authorized a subpoena for the appearance of a named witness (Feb. 4,
    1999, p. ----). During debate on the motion, the Senate, by unanimous
    consent, permitted the House managers and counsel for the President to
    make references to videotaped oral depositions (Feb. 4, 1999, p. ----).
    The Senate rejected two additional motions as follows: (1) a motion to
    proceed directly to closing arguments and an immediate vote on the
    articles of impeachment (Feb. 4, 1999, p. ----); and (2) a motion that
    the House managers provide written notice to counsel for the President
    by a time certain of those portions of videotaped deposition testimony
    they planned to use during their evidentiary presentation or during
    closing arguments (Feb. 4, 1999, p. ----). By unanimous consent the
    Senate printed certain deposition transcripts in the Record and
    transmitted to the House managers and the counsel for the President
    deposition transcripts and videotapes (Feb. 4, 1999, p. ----). The Chief
    Justice held inadmissible a portion of a videotaped deposition not
    entered as evidence into the Senate record (other portions of which were
    admitted under an order of the Senate), and a unanimous consent request
    nevertheless to admit that portion of a deposition was objected to (Feb.
    6, 1999, p. ----). After closing arguments, the Senate adopted a motion
    to consider the articles of impeachment in closed session (Feb. 9, 1999,
    p. ----). After closed deliberations the Senate Clerk read the articles
    of impeachment against President Clinton in open session, and each
    Senator voted ``guilty'' or ``not guilty'' on each article (Feb. 12,
    1999, p. ----). By votes of 45-55 and 50-50 respectively, the Senate
    adjudged President Clinton not guilty on each article of impeachment
    (Feb. 12, 1999, p. ----). The Senate communicated to the House and the
    Secretary of State the judgment of the Senate (Feb. 12, 1999, p. ----).
      The Senate subsequently adopted a resolution governing the remaining
    impeachment proceedings as follows: (1) establishment of a timetable for
    conducting and reviewing depositions, resolving any objections made
    during the depositions, and considering motions to admit any portions of
    the depositions into evidence; (2) consideration of motions for
    additional discovery (if made by the two Leaders jointly); (3)
    disposition of motions governing the presentation of evidence or
    witnesses before the Senate and motions by the President's counsel
    (specifically precluding a motion to reopen the record and specifically
    permitting a motion to allow final deliberations in open session); (4)
    establishment of a timetable to vote on the articles of impeachment; and
    (5) authorization to issue subpoenas to take cer

      See S. Doc. 93-102, ``Procedure and Guidelines for Impeachment Trials
    in the United States Senate,'' for precedents relating to the conduct of
    Senate impeachments.

    [[Page 315]]

    ified. Sach. Tr., 325; 2 Wood., 602, 605; Lords' Journ., 3 June, 1701; 1
    Wms., 616.

    Sec. 609. Exhibition and form of
    articles.

      Articles. The accusation  (articles) of the Commons is substituted in place of an
    indictment. Thus, by the usage of Parliament, in impeachment for writing
    or speaking, the particular words need not be spec

      Having delivered the impeachment, the committee returns to the House
    and reports verbally (III, 2413, 2446; VI, 501). Formerly, the House
    exhibited its articles after the impeachment had been carried to the bar
    of the Senate; in the later practice, the resolution and articles of
    impeachment have been considered together and exhibited simultaneously
    in the Senate by the managers (VI, 501, 515; Mar. 10, 1936, pp. 3485-88;
    Oct. 7, 1986, p. 29126; Jan. 7, 1999, p. ----). The managers, who are
    elected by the House (III, 2300, 2345, 2417, 2448; VI, 500, 514, 517;
    Mar. 2, 1936, pp. 3393, 3394) or appointed by the Speaker (III, 2388,
    2475), carry the articles in obedience to a resolution of the House
    (III, 2417, 2419, 2448) to the bar of the Senate (III, 2420, 2449,
    2476), the House having previously informed the Senate (III, 2419, 2448)
    and received a message informing them of the readiness of the latter
    body to receive the articles (III, 2078, 2325, 2345; Aug. 6, 1986, p.
    19335; Jan. 6, 1999, p. ----). Having exhibited the articles the
    managers return and report verbally to the House (III, 2449, 2476).

      The articles in the Belknap impeachment were held sufficient, although
    attacked for not describing the respondent as one subject to impeachment
    (III, 2123). In the proceedings against Judge Ritter, objections to the
    articles of impeachment, on the ground that they duplicated and
    accumulated separate offenses, were overruled (Apr. 3, 1936, p. 4898;
    Apr. 17, 1936, p. 5606). These articles are signed by the Speaker and
    attested by the Clerk (III, 2302, 2449), and in form approved by the
    practice of the House (III, 2420, 2449, 2476).

      Articles of impeachment which have been exhibited to the Senate may be
    subsequently modified or amended by the House (VI, 520; Mar. 30, 1936,
    pp. 4597-99), and a resolution proposing to amend articles of
    impeachment previously adopted by the House is privileged for
    consideration when reported by the managers on the part of the House
    (VI, 520; Mar. 30, 1936, p. 4597).

      For discussion of substantive charges contained in articles of
    impeachment and the constitutional grounds for impeachment, see
    Sec. 175, supra (accompanying Const., art. II, sec. 4). For a discussion
    of the presentation of the House managers in support of the impeachment
    of President Clinton, and related matters, see Sec. 608a, supra.

    [[Page 316]]

    he answers, a lord in his place, a commoner at the bar, and not in
    custody, unless, on the answer, the Lords find cause to commit him, till
    he finds sureties to attend, and lest he should fly. Seld. Jud., 98, 99.
    A copy of the articles is given him, and a day fixed for his answer. T.
    Ray.; 1 Rushw., 268; Fost., 232; 1 Clar. Hist. of the Reb., 379. On a
    misdemeanor, his appearance may be in person, or he may answer in
    writing, or by attorney. Seld. Jud., 100. The general rule on accusation
    for a misdemeanor is, that in such a state of liberty or restraint as
    the party is when the Commons complain of him, in such he is to answer.
    Ib., 101. If previously committed by the commons, he answers as a
    prisoner. But this may be called in some sort judicium parium suorum.
    Ib. In misdemeanors the party has a right to counsel by the common law,
    but not in capital cases. Seld. Jud., 102, 105.

    Sec. 610. Parliamentary law as to appearance
    of respondent.

      Appearance. If he  appear, and the case be capital, he answers in custody;
    though not if the accusation be general. He is not to be committed but
    on special accusations. If it be for a misdemeanor only,

    [[Page 317]]

    Sec. 611. Requirements of the Senate as to
    appearance of respondent.

      This paragraph  of the parliamentary law is largely obsolete
    so far as the practice of the House and the Senate are concerned. The
    accused may appear in person or by attorney (III, 2127, 2349, 2424), and
    take the stand in his own behalf (VI, 511, 524; Apr. 11, 1936, pp. 5370-
    86; Oct. 7, 1986, p. 29149), or he may not appear at all (III, 2307,
    2333, 2393). In case he does not appear the House does not ask that he
    be compelled to appear (III, 2308), but the trial proceeds as on a plea
    of ``not guilty.'' It has been decided that the Senate has no power to
    take into custody the body of the accused (III, 2324, 2367). The writ of
    summons to the accused recites the articles and notifies him to appear
    at a fixed time and place and file his answer (III, 2127). In all cases
    respondent may appear by counsel (III, 2129), and in one trial, when a
    petition set forth that respondent was insane, the counsel of his son
    was admitted to be heard and present evidence in support of the
    petition, but not to make argument (III, 2333). For a discussion of
    answers, arguments, and presentations of the respondent in the Clinton
    impeachment proceedings, see Sec. 608a, supra.

      The chairman of the committee impeaches at the bar of the Senate by
    oral accusation (III, 2413, 2446, 2473), and the managers for the House
    attend in the Senate after the articles have been exhibited and demand
    that process issue for the attendance of respondent (III, 2451, 2478),
    after which they return and report verbally to the House (III, 2423,
    2451; VI, 501). The Senate thereupon issue a writ of summons, fixing the
    day of return (III, 2423, 2451; S. Res. 16, Jan. 8, 1999, p. ----); and
    in a case wherein the respondent did not appear by person or attorney
    the Senate published a proclamation for him to appear (III, 2393). But
    the respondent's goods were not attached. In only one case has the
    parliamentary law as to sequestration and committal been followed (III,
    2118, 2296), later inquiry resulting in the conclusion that the Senate
    had no power to take into custody the body of the accused (III, 2324,
    2367).

    Sec. 612. Answer of respondent.

      Answer. The  answer need not
    observe great strictness of the form. He may plead guilty as to part,
    and defend as to the residue; or, saving all exceptions, deny the whole
    or give a particular answer to each article separately. 1 Rush., 274; 2
    Rush., 1374; 12 Parl. Hist., 442; 3 Lords' Journ., 13 Nov., 1643; 2
    Wood., 607. But he cannot plead a pardon in bar to the impeachment. 2
    Wood., 615; 2 St. Tr., 735.

      In the Senate proceedings of the impeachment of President Andrew
    Johnson, the answer of the President took up the articles one by one,
    denying some of the charges, admitting others but denying that they set
    forth impeachable offenses, and excepting to the sufficiency of others
    (III, 2428). The form of this answer was commented on during preparation
    of the replication in the House (III, 2431). In the Senate proceedings
    on the impeachment of President Clinton, the answer of the President
    also took up the articles one by one, denying some of the charges and
    admitting others but denying that they set forth impeachable offenses
    (Jan. 14, 1999, p. ----). Blount and Belknap demurred to the charges on
    the ground that they were not civil officers within the meaning of the
    Constitution (III, 2310, 2453), and Swayne also raised questions as to
    the jurisdiction of the Senate (III, 2481). The answer is part of the
    pleadings, and exhibits in the nature of evidence may not properly be
    attached thereto (III, 2124). The answer of the respondent in
    impeachment proceedings is messaged to the House and subsequently
    referred to the managers on the part of the House (VI, 506; Apr. 6,
    1936, p. 5020; Sept. 9, 1986, p. 22317).

    [[Page 318]]

      For a chronology of arguments and presentations of the respondent in
    the Clinton impeachment proceedings, see Sec. 608a, supra.

    Sec. 613. Other pleadings.

      Replication, rejoinder,  &c. There
    may be a replication, rejoinder, &c. Sel. Jud., 114; 8 Grey's Deb., 233;
    Sach. Tr., 15; Journ. H. of Commons, 6 March, 1640-1.

      A replication is always filed (for the form of replication in modern
    practice, see Sept. 26, 1988, p. 25357), and in one instance the
    pleadings proceeded to a rejoinder, surrejoinder, and similiter (III,
    2455). A respondent has also filed a protest instead of pleading on the
    merits (III, 2461), but there was objection to this and the Senate
    barely permitted it. In another case respondent interposed a plea as to
    jurisdiction of offenses charged in certain articles, but declined to
    admit that it was a demurrer with the admissions pertinent thereto (III,
    2125, 2431). In the Belknap trial the House was sustained in averring in
    pleadings as to jurisdiction matters not averred in the articles (III,
    2123). The right of the House to allege in the replication matters not
    touched in the articles has been discussed (III, 2457). In the
    Louderback (VI, 522) and Ritter (Apr. 6, 1936, p. 4971) impeachment
    proceedings, the managers on the part of the House prepared and
    submitted the replication to the Senate without its consideration by the
    House, contrary to former practice (VI, 506). The Senate may consider in
    closed session various preliminary motions made by respondent (e.g., to
    declare the Senate rule on appointment of a committee to receive
    evidence to be unconstitutional, to declare beyond a reasonable doubt as
    the standard of proof in an impeachment trial, and to postpone the
    impeachment trial) prior to voting in open session to dispose of those
    motions (Oct. 7 and 8, 1986, pp. 29151 and 29412).

      For a chronology in the Senate of disposition of motions permitted
    under Senate impeachment rules, see Sec. 608a, supra.

    Sec. 614. Examination of witnesses.

      Witnesses. The  practice
    is to swear the witnesses in open House, and then examine them there; or
    a committee may be named, who shall examine them in committee, either on
    interrogatories agreed on in the House, or such as the committee in
    their discretion shall demand. Seld. Jud., 120, 123.

    [[Page 319]]

    Senate directed the appointment of a committee of twelve Senators to
    take evidence and testimony pursuant to rule XI of the Rules of
    Procedure and Practice in the Senate when Sitting on Impeachment Trials
    (S. Res. 481, Aug. 15, 1986, p. 22035); and in Nixon v. United States,
    113 S. Ct. 732 (1993), the Supreme Court refused to declare
    unconstitutional the appointment of such a committee to take evidence
    and testimony.
      In trials before the Senate witnesses have always been examined in
    open Senate, although examination by a committee has been suggested
    (III, 2217) and utilized (S. Res. 38, 101st Cong., Mar. 16, 1989, p.
    4533). In the 74th Congress, the Senate amended its rules for
    impeachment trials to allow the presiding officer, upon the order of the
    Senate, to appoint a committee to receive evidence and take testimony in
    the trial of any impeachment (May 28, 1935, p. 8309). In the trial of
    Judge Claiborne the

      For a chronology of motions to subpoena witnesses during the Senate
    impeachment proceedings against President Clinton, see Sec. 608a, supra.

    [[Page 320]]

    sidered, as is before stated, as the grand jury; for the conceit of
    Selden is certainly not accurate, that they are the patria sua of the
    accused, and that the Lords do only judge, but not try. It is undeniable
    that they do try; for they examine witnesses as to the facts, and acquit
    or condemn, according to their own belief of them. And Lord Hale says,
    ``the peers are judges of law as well as of fact;'' 2 Hale, P. C., 275;
    Consequently of fact as well as of law.

    Sec. 615. Relation of jury trial to
    impeachment.

      Jury. In the  case of Alice Pierce, 1 R., 2, a jury was impaneled for
    her trial before a committee. Seld. Jud., 123. But this was on a
    complaint, not on impeachment by the Commons. Seld. Jud., 163. It must
    also have been for a misdemeanor only, as the Lords spiritual sat in the
    case, which they do on misdemeanors, but not in capital cases. Id., 148.
    The judgment was a forfeiture of all her lands and goods. Id., 188.
    This, Selden says, is the only jury he finds recorded in Parliament for
    misdemeanors; but he makes no doubt, if the delinquent doth put himself
    on the trial of his country, a jury ought to be impaneled, and he adds
    that it is not so on impeachment by the Commons, for they are in loco
    proprio, and there no jury ought to be impaneled. Id., 124. The Ld.
    Berkeley, 6 E., 3, was arraigned for the murder of L. 2, on an
    information on the part of the King, and not on impeachment of the
    Commons; for then they had been patria sua. He waived his peerage, and
    was tried by a jury of Gloucestershire and Warwickshire. Id., 126. In 1
    H., 7, the Commons protest that they are not to be considered as parties
    to any judgment given, or hereafter to be given in Parliament. Id., 133.
    They have been generally and more justly con

      No jury is possible as part of an impeachment trial under the
    Constitution (III, 2313). In 1868, after mature consideration, the
    Senate overruled the old view of its functions (III, 2057), and decided
    that it sat for impeachment trials as the Senate and not as a court
    (III, 2057), and eliminated from its rules all mention of itself as a
    ``high court of impeachment'' (III, 2079, 2082). However, the modern
    view of the Senate as a court was evident during the impeachment trial
    of President Clinton. There the Senate convened as a ``Court of
    Impeachment'' (see, e.g.,  Jan. 7, 1999, p. ----). In response to an
    objection raised by a Senator, the Chief Justice held that the Senate
    was not sitting as a ``jury'' but was sitting as a ``court'' during the
    impeachment trial of President Clinton. As such, the House managers were
    directed to refrain from referring to the Senators as ``jurors'' (Jan.
    15, 1999, p. ----).

    Sec. 615a. The presiding officer.

      An anxiety lest  the Chief
    Justice might have a vote in the approaching trial of the President
    seems to have prompted this earlier action (III, 2057). There was
    examination of the question of the Chief Justice's power to vote (III,
    2098); but the Senate declined to declare his incapacity to vote, and he
    did in fact give a casting vote on incidental questions (III, 2067).
    Under the earlier practice, the Senate declined to require that the
    Chief Justice be sworn when about to preside (III, 2080); but the Chief
    Justice had the oath administered by an associate justice (III, 2422).
    The President pro tempore of the Senate, pursuant to an earlier order of
    the Senate, appointed a committee to escort the Chief Justice into the
    Senate chamber to preside over the impeachment trial of President
    Clinton, administered the oath to him, and the Chief Justice in turn
    administered the oath to the Senators (Jan. 7, 1999, p. ----).

    [[Page 321]]

      In impeachments for officers other than the President of the United
    States the presiding officer of the Senate presides, whether he be Vice
    President, the regular President pro tempore (III, 2309, footnote, 2337,
    2394) or a special President pro tempore chosen to preside at the trial
    only (III, 2089, 2477).

    Sec. 615b. Oath and quorum.

      Senators elected after  the
    beginning of an impeachment trial are sworn as in the case of other
    Senators (III, 2375). The quorum of the Senate sitting for an
    impeachment trial is a quorum of the Senate itself, and not merely a
    quorum of the Senators sworn for the trial (III, 2063). The vote
    required for conviction is two-thirds of those Senators present and
    voting (Oct. 20, 1989, p. 25335). In 1868, when certain States were
    without representation, the Senate declined to question its competency
    to try an impeachment case (III, 2060). The President pro tempore of the
    Senate administered the oath to the Chief Justice presiding over the
    impeachment trial of President Clinton, and the Chief Justice in turn
    administered the oath to the Senators (Jan. 7, 1999, p. ----).

    Sec. 616. Attendance of the Commons.

      Presence of  Commons.
    The Commons are to be present at the examination of witnesses. Seld.
    Jud., 124. Indeed, they are to attend throughout, either as a committee
    of the whole House, or otherwise, at discretion, appoint managers to
    conduct the proofs. Rushw. Tr. of Straff., 37; Com. Journ., 4 Feb.,
    1709-10; 2 Wood., 614. And judgment is not to be given till they demand
    it. Seld. Jud., 124. But they are not to be present on impeachment when
    the Lords consider of the answer or proofs and determine of their
    judgment. Their presence, however, is necessary at the answer and
    judgment in case capital Id., 58, 158, as well as not capital; 162. * *
    *.

    [[Page 322]]

    trial, it may attend (III, 2383, 2388, 2440). While it has frequently
    attended in Committee of the Whole, it may attend as a House (III,
    2338).

    Sec. 617. Attendance of the House of
    Representatives.

      The  House has consulted its own inclination and
    convenience about attending its managers at an impeachment. It did not
    attend at all in the trials of Blount, Swayne, Archbald. Louderback and
    Ritter (III, 2318, 2483; VI, 504, 516); and after attending at the
    answer of Belknap, decided that it would be represented for the
    remainder of the trial by its managers alone (III, 2453). At the trial
    of the President the House, in Committee of the Whole, attended
    throughout the trial (III, 2427), but this is exceptional. In the Peck
    trial the House discussed the subject (III, 2377) and reconsidered its
    decision to attend the trial daily (III, 2028). While the Senate is
    deliberating the House does not attend (III, 2435); but when the Senate
    votes on the charges, as at the other open proceedings of the

    Sec. 618. Voting on the articles in an impeachment
    trial.

      * * * The  Lords debate the judgment among themselves. Then the vote is
    first taken on the question of guilty or not guilty; and if they
    convict, the question, or particular sentence, is out of that which
    seemeth to be most generally agreed on. Seld. Jud., 167; 2 Wood., 612.

      The question in judgment in an impeachment trial has occasioned
    contention in the Senate (III, 2339, 2340), and in the trial of the
    President the form was left to the Chief Justice (III, 2438, 2439). In
    the Belknap trial there was much deliberation over this subject (III,
    2466). In the Chase trial the Senate modified its former rule as to form
    of final question (III, 2363). The yeas and nays are taken on each
    article separately (III, 2098, 2339) in the form ``Senators, how say
    you? is the respondent guilty or not guilty?'' (Oct. 9, 1986, p. 29871).
    But in the trial of President Johnson the Senate, by order, voted on the
    articles in an order differing from the numerical order (III, 2440),
    adjourned after voting on one article (III, 2441), and adjourned without
    day after voting on three of the eleven articles (III, 2443). In other
    impeachments, the Senate has adopted an order to provide the method of
    voting and putting the question separately and successively on each
    article (VI, 524; Apr. 16, 1936, p. 5558). For a discussion of the vote
    of the Senate on each article of impeachment of President Clinton, see
    Sec. 608a, supra.

    [[Page 323]]

    not framed to alter the law, but to carry it into more effectual
    execution against too powerful delinquents. The judgment, therefore, is
    to be such as is warranted by legal principles or precedents. 6 Sta.
    Tr., 14; 2 Wood., 611. The Chancellor gives judgment in misdemeanors;
    the Lord High Steward formerly in cases of life and death. Seld. Jud.,
    180. But now the Steward is deemed not necessary. Fost., 144; 2 Wood.,
    613. In misdemeanors the greatest corporal punishment hath been
    imprisonment. Seld. Jud., 184. The King's assent is necessary to capital
    judgments (but 2 Wood., 614, contra), but not in misdemeanors, Seld.
    Jud., 136.

    Sec. 619. Judgment in
    impeachments.

      Judgment. Judgments in  Parliament, for death have been strictly guided per
    legem terrae, which they can not alter; and not at all according to
    their discretion. They can neither omit any part of the legal judgment
    nor add to it. Their sentence must be secundum non ultra legem. Seld.
    Jud., 168, 171. This trial, though it varies in external ceremony, yet
    differs not in essentials from criminal prosecutions before inferior
    courts. The same rules of evidence, the same legal notions of crimes and
    punishments, prevailed; for impeachments are

      The Constitution of the United States (art. I, sec. 3, cl. 7) limits
    the judgment to removal and disqualification. The order of judgment
    following conviction in an impeachment trial is divisible for a separate
    vote if it contains both removal and disqualification (III, 2397; VI,
    512; Apr. 17, 1936, p. 5606), and an order of judgment (such as
    disqualification) requires a majority vote (VI, 512; Apr. 17, 1936, p.
    5607). Under earlier practice, after a conviction the Senate voted
    separately on the question of disqualification (III, 2339, 2397), but no
    vote is required by the Senate on judgment of removal from office
    following conviction, since removal follows automatically from
    conviction under article II, section 4 of the Constitution (Apr. 17,
    1936, p. 5607). Thus, the presiding officer directs judgment of removal
    from office to be entered and the respondent removed from office without
    separate action by the Senate where disqualification is not contemplated
    (Oct. 9, 1986, p. 29873). A resolution impeaching the President may
    provide only for his removal from office (H. Res. 1333, 93d Cong., Aug.
    20, 1974, p. 29361) or for both his removal and disqualification from
    holding any future office (H. Res. 611, 106th Cong., Dec. 19, 1998, p.
    ----).

    [[Page 324]]

    Journ., 23 Dec., 1790; Lord's Jour., May 15, 1791; 2 Wood., 618.

    Sec. 620. Impeachment not interrupted by
    adjournments.

      Continuance. An  impeachment is not discontinued by the dissolution of
    Parliament, but may be resumed by the new Parliament. T. Ray 383; 4 Com.

      In Congress impeachment proceedings are not discontinued by a recess
    (III, 2299, 2304, 2344, 2375, 2407, 2505, see also Sec. 592, supra). The
    following impeachment proceedings extended from one Congress to the
    next: (1) the impeachment of Judge Pickering was presented in the Senate
    on the last day of the Seventh Congress (III, 2320), and the Senate
    conducted the trial in the Eighth Congress (III, 2321); (2) the
    impeachment of Judge Louderback was presented in the Senate on the last
    day of the 72d Congress (VI, 515), and the Senate conducted the trial in
    the 73d Congress (VI, 516); (3) the impeachment of Judge Hastings was
    presented in the Senate during the second session of the 100th Congress
    (Aug. 3, 1988, p. 20223) and the trial in the Senate continued into the
    101st Congress (Jan. 3, 1989, p. 84). The impeachment of President
    Clinton was presented to the Senate after the Senate had adjourned sine
    die for the 105th Congress (Dec. 19, 1998, p. ----), and the Senate
    conducted the trial in the 106th Congress (Jan. 7, 1999, p. ----). While
    impeachment proceedings may continue from one Congress to the next, the
    authority of the managers appointed by the House expires at the end of a
    Congress; and the managers must be reappointed when a new Congress
    convenes (Jan. 6, 1999, p. ----).