[Constitution, Jefferson's Manual, and the Rules of the House of Representatives, 109th Congress]
[109th Congress]
[House Document 108-241]
[Jeffersons Manual of ParliamentaryPractice]
[Pages 164-170]
[From the U.S. Government Publishing Office, www.gpo.gov]


 

                   sec. xiii--examination of witnesses


[[Page 165]]

Parl., 115; Grey, 16-22, 92; 8 Grey, 21, 23, 27, 45.



Sec. 341. Common fame as ground for 
investigation.

  Common  fame is a good ground for the House to proceed by 
inquiry, and even to accusation. Resolution House of Commons, 1 Car., 1, 
1625; Rush, L.



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Witnesses are not to be produced but where the House has previously 
instituted an inquiry, 2 Hats., 102, nor then are orders for their 
attendance given blank. 3 Grey, 51.

  In the House common fame has been held sufficient to justify procedure 
for inquiry (III, 2701), as in a case wherein it was stated on the 
authority of common rumor that a Member had been menaced (III, 2678). 
The House also has voted to investigate with a view to impeachment on 
the basis of common fame, as in the cases of Judges Chase (III, 2342), 
Humphreys (III, 2385), and Durell (III, 2506).



[[Page 166]]


  In the House witnesses are summoned in pursuance and by virtue of the 
authority conferred on a committee by the House to send for persons and 
papers (III, 1750). Even in cases wherein the rules give to certain 
committees the authority to investigate without securing special 
permission, authority must be obtained before the production of 
testimony may be compelled (IV, 4316). The rules require that subpoenas 
issued by order of the House be signed by the Speaker (clause 4 of rule 
I) and attested and sealed by the Clerk (clause 2 of rule II). However, 
in clause 2(m) of rule XI the House has authorized any committee or 
subcommittee to issue a subpoena when authorized by a majority of the 
members of the committee or subcommittee voting, a majority being 
present. A committee may also delegate the authority to issue subpoenas 
to the chairman of a full committee. Authorized subpoenas are signed by 
the chairman of the committee or by any other member designated by the 
committee. Sometimes the House authorizes issue of subpoenas during a 
recess of Congress and empowers the Speaker to sign them (III, 1806), 
and in one case the two Houses, by concurrent resolution, empowered the 
Vice President and Speaker to sign during a recess (III, 1763). (See 
McGrain v. Daugherty, 273 U.S. 135 (1927); Barry v. U.S. ex. rel. 
Cunningham, 279 U.S. 597 (1929); Sinclair v. United States, 279 U.S. 263 
(1929)). Under section 2954 of title 5, United States Code, an executive 
agency, if so requested by the Committee on Government Operations (now 
Government Reform), or any seven members thereof, shall submit any 
information requested of it relating to any matter within the 
jurisdiction of the committee.




Sec. 343. Examination of witnesses in the House and in 
committee.

  When  any person is examined before a committee or at the bar of 
the House, any Member wishing to ask the person a question must address 
it to the Speaker or chairman, who repeats the question to the person, 
or says to him, ``You hear the question--answer it.'' But if the 
propriety of the question be objected to, the Speaker directs the 
witness, counsel, and parties to withdraw; for no question can be moved 
or put or debated while they are there. 2 Hats., 108. Sometimes the 
questions are previously settled in writing before the witness enters. 
Ib., 106, 107; 8 Grey, 64. The questions asked must be entered in the 
Journal. 3 Grey, 81. But the testimony given in answer before the House 
is never written down; but before a committee, it must be, for the 
information of the House, who are not present to hear it. 7 Grey, 52, 
334.



[[Page 167]]

tive, legislative, or judicial branch of the Government of the United 
States (18 U.S.C. 1001).
  The Committee of the Whole of the House was charged with an 
investigation in 1792, but the procedure was wholly exceptional (III, 
1804), although a statute still empowers the Chairman of the Committee 
of the Whole, as well as the Speaker, chairmen of select or standing 
committees, and Members to administer oaths to witnesses (2 U.S.C. 191; 
III, 1769). Most inquiries, in the modern practice, are conducted by 
select or standing committees, and these in each case determine how they 
will conduct examinations (III, 1773, 1775). Clause 2(k) of rule XI, 
contains provisions governing certain procedures at hearings by 
committees (Sec. 803, infra). In one case a committee permitted a Member 
of the House not of the committee to examine a witness (III, 2403). 
Usually these investigations are reported stenographically, thus making 
the questions and answers of record for report to the House. To sustain 
a conviction of perjury, a quorum of a committee must be in attendance 
when the testimony is given (Christoffel v. United States, 338 U.S. 84). 
Certain criminal statutes make it a felony to give perjurious testimony 
before a congressional committee (18 U.S.C. 1621), to intimidate 
witnesses before committees (18 U.S.C. 1505), or to make false 
statements in any matter within the jurisdiction of the execu


  Another provision of the Federal criminal code (18 U.S.C. 6005) 
provides for ``use'' immunity for certain witnesses before either House 
or committees thereof as follows:


                 ``Sec. 6005. Congressional Proceedings.

  ``(a) In the case of any individual who has been or may be called to 
testify or provide other information at any proceeding before or 
ancillary to either House of Congress, or any committee, or any 
subcommittee of either House, or any joint committee of the two Houses, 
a United States district court shall issue, in accordance with 
subsection (b) of this section, upon the request of a duly authorized 
representative of the House of Congress or the committee concerned, an 
order requiring such individual to give testimony or provide other 
information which he refuses to give or provide on the basis of his 
privilege against self-incrimination, such order to become effective as 
provided in section 6002 of this part.

  ``(b) Before issuing an order under subsection (a) of this section, a 
United States district court shall find that--

          ``(1) in the case of a proceeding before or ancillary to 

        either House of Congress, the request for such an order has been 

        approved by an affirmative vote of a majority of the Members 

        present of that House;

          ``(2) in the case of a proceeding before or ancillary to a 

        committee or a subcommittee of either House of Congress or a 

        joint committee of both Houses, the request for such an order 

        has been approved by an affirmative vote of two-thirds of the 

        members of the full committee; and

          ``(3) ten days or more prior to the day on which the request 

        for such an order was made, the Attorney General was served with 

        notice of an intention to request the order.


  ``(c) Upon application of the Attorney General, the United States 
district court shall defer the issuance of any order under subsection 
(a) of this section for such period, not longer than twenty days from 
the date of the request for such order, as the Attorney General may 
specify.''.


[[Page 168]]

courts (III, 1685). In examinations at its bar the House has adopted 
forms of procedure as to questions (II, 1633, 1768), providing that they 
be asked through the Speaker (II, 1602, 1606) or by a committee (II, 
1617; III, 1668). And the questions to be asked have been drawn up by a 
committee, even when put by the Speaker (II, 1633). In the earlier 
practice the answer of a witness at the bar was not written down (IV, 
2874); but in the later practice the answers appear in the journal (III, 
1668). The person at the bar withdraws while the House passes on an 
incidental question (II, 1633; III, 1768). (See McGrain v. Dougherty, 
273 U.S. 135 (1927); Barry v. U.S. ex. rel. Cunningham, 279 U.S. 597 
(1929); Jurney v. MacCracken, 294 U.S. 125 (1935)).



Sec. 344. Earlier and later practice as to inquiries at 
the bar of the House.

  The  House, in its earlier years, arraigned and tried 
at its bar persons, not Members, charged with violation of its 
privileges, as in the cases of Randall, Whitney (II, 1599-1603), 
Anderson (II, 1606), and Houston (II, 1616); but in the case of Woods, 
charged with breach of privilege in 1870 (II, 1626-1628), the respondent 
was arraigned before the House, but was heard in his defense by counsel 
and witnesses before a standing committee. At the conclusion of that 
investigation the respondent was brought to the bar of the House while 
the House voted his punishment (II, 1628). The House also has arraigned 
at its bar contumacious witnesses before taking steps to punish by its 
own action or through the




Sec. 345. Procuring attendance of a witness in custody of 
the other House.

  If  either House have occasion for the presence of a 
person in custody of the other, they ask the other their leave that he 
may be brought up to them in custody. 3 Hats., 52.





Sec. 346. Members as witnesses.

  A  Member, in his place, 
gives information to the House of what he knows of any matter under 
hearing at the bar. Jour. H. of C., Jan. 22, 1744-5.



  At an examination at the bar of the House in 1795 both the written 
information given by Members and their verbal testimony were required to 
be under oath (II, 1602). In a case not of actual examination at the 
bar, but wherein the House was deliberating on a proposition to order 
investigation, it demanded by resolution that certain Members produce 
papers and information (III, 1726, 1811). Members often give testimony 
before committees of investigation, and in at least one case the Speaker 
has thus appeared (III, 1776). But in a case wherein a committee 
summoned a Member to testify as to a statement made by him in debate he 
protested that it was an invasion of his constitutional privilege (III, 
1777, 1778; see also H. Rept. 1372, 67th Cong. and Cong. Rec. 5, 1923, 
pp. 2415-23). In one instance the chairman of an investigating committee 
administered the oath to himself and testified (III, 1821). The House, 
in an inquiry preliminary to an impeachment trial, gave leave to its 
managers to examine Members, and leave to its Members to attend for the 
purpose (III, 2033).


[[Page 169]]

to express clearly the purpose of attendance, that no improper subject 
of examination may be tendered to him. The House then gives leave to the 
Member to attend, if he choose it; waiting first to know from the Member 
himself whether he chooses to attend, till which they do not take the 
message into consideration. But when the peers are sitting as a court of 
criminal judicature, they may order attendance, unless where it be a 
case of impeachment by the Commons. There it is to be a request. 3 
Hats., 17; 9 Grey, 306, 406; 10 Grey, 133.



Sec. 347. Method of obtaining testimony of a Member of 
the other House.

  Either  House may request, but not command, the attendance of 
a Member of the other. They are to make the request by message of the 
other House, and



  The House and the Senate have observed this rule; but it does not 
appear that they have always made public ascertainment of the 
willingness of the Member to attend (III, 1790, 1791). In one case the 
Senate laid aside pending business in order to comply with the request 
of the House (III, 1791). In several instances House committees, after 
their invitations to Senators to appear and testify had been 
disregarded, have issued subpoenas. In such cases the Senators have 
either disregarded the subpoenas, refused to obey them, or have appeared 
under protest (III, 1792, 1793). In one case, after a Senator had 
neglected to respond either to an invitation or a subpoena the House 
requested of the Senate his attendance and the Senate disregarded the 
request (III, 1794). Where Senators have responded to invitations of 
House committees, their testimony has been taken without obtaining 
consent of the Senate (III, 1793, 1795, footnote).




Sec. 348. Admission of counsel.

  Counsel  are to be heard only 
on private, not on public, bills and on such points of law only as the 
House shall direct. 10 Grey, 61.



[[Page 170]]

nesses and others have been arraigned at the bar of the House for 
contempt, the House has usually permitted counsel (II, 1601, 1616; III, 
1667), sometimes under conditions (II, 1604, 1616); but in a few cases 
has declined the request (II, 1608; III, 1666, footnote). In 
investigations before committees counsel usually have been admitted 
(III, 1741, 1846, 1847), sometimes even to assist a witness (III, 1772), 
and clause 2(k)(3) of rule XI now provides that witnesses at hearings 
may be accompanied by their own counsel for the purpose of advising them 
concerning their constitutional rights (Sec. 803, infra). In 
examinations preliminary to impeachment counsel usually have been 
admitted (III, 1736, 2470, 2516) unless in cases wherein such 
proceedings were ex parte. During impeachment investigations against 
President Nixon and President Clinton, the Committee on the Judiciary 
admitted counsel to the President to be present, to make presentations 
and to examine witnesses during investigatory hearings (H. Rept. 93-
1305, Aug. 20, 1974, p. 29219; H. Rept. 105-830, Dec. 16, 1998, p. 
27819).
  In 1804 the House admitted the counsel of certain corporations to 
address the House on pending matters of legislation (V, 7298), and in 
1806 voted that a claimant might be heard at the bar (V, 7299); but in 
1808, after consideration, the House by a large majority declined to 
follow again the precedent of 1804 (V, 7300). In early years counsel in 
election cases were heard at the bar at the discretion of the House (I, 
657, 709, 757, 765); but in 1836, after full discussion, the practice 
was abandoned (I, 660), and, with one exception in 1841 (I, 659), has 
not been revived, even for the case of a contestant who could not speak 
the English language (I, 661). Counsel appear before committees in 
election cases, however. Where wit




  At one time the House required all counsel or agents representing 
persons or corporations before committees to be registered with the 
Clerk (III, 1771). The Federal Regulation of Lobbying Act (Title III of 
the Legislative Reorganization Act of 1946) requires all lobbyists to 
register with the Clerk of the House and the Secretary of the Senate (2 
U.S.C. 1601).