Table of Contents

I.

 

Introduction

 ............................................................................................................... 1

II.

 

Summary of Principal Conclusions

 ...................................................................... 2

III.

 

The Purpose of Impeachment

 ............................................................................... 6

IV.

 

Impeachable Offenses

 .......................................................................................... 10

A.

 

Lessons from British and Early American History

 .......................................... 11

B.

 

Treason and Bribery

 ............................................................................................ 13 1. Impeachable Treason.......................................................................................... 14 2. Impeachable Bribery .......................................................................................... 14

C.

 

Abuse, Betrayal & Corruption

 ........................................................................... 17 1. Abuse of Power .................................................................................................. 17 2. Betrayal of the National Interest Through Foreign Entanglements ................... 22 3. Corruption of Office or Elections....................................................................... 24

D.

 

Conclusion

 ............................................................................................................ 28

V.

 

The Criminality Issue

 .............................................................................................. 31

A.

 

History

 ................................................................................................................... 31

B.

 

Constitutional Text and Structure

 ..................................................................... 34

C.

 

The Purpose of Impeachment

 ............................................................................. 36

D.

 

The Limited Relevance of Criminality

 ............................................................... 38

VI.

 

Addressing Fallacies About Impeachment

 ........................................................ 38

A.

 

The Impeachment Process

 .................................................................................. 38

B.

 

Evidentiary Considerations and Presidential Obstruction

 .............................. 41

C.

 

Abuse of Presidential Power is Impeachable

..................................................... 44

D.

 

Presidential Pretexts Need Not Be Accepted at Face Value

 ............................. 47

E.

 

Attempted Presidential Misconduct Is Impeachable

 ........................................ 49

F.

 

Impeachment is Part of Democratic Governance

 ............................................. 51

VII.

 

Conclusion

 ............................................................................................................ 52

 

 

Foreword by Mr. Nadler

 

I am pleased to make available a report prepared by the majority staff addressing constitutional grounds for presidential impeachment. The staff of the Committee on the Judiciary first produced a report addressing this topic in 1974, during the impeachment inquiry into President Richard M. Nixon, and that report was updated by the majority and minority staff in 1998, during the impeachment inquiry into President William Jefferson Clinton. Over the past several decades, however, legal scholars and historians have undertaken a substantial study of the subject. The earlier reports remain useful points of reference, but no longer reflect the best available learning on questions relating to  presidential impeachment. Further, they do not address several issues of constitutional law with particular relevance to the ongoing impeachment inquiry respecting President Donald J. Trump. For that reason, the majority staff of the Committee have prepared this report for the use of the Committee on the Judiciary. The views and conclusions contained in the report are staff views and do not necessarily reflect those of the Committee on the Judiciary or any of its members. Amy Rutkin, Chief of Staff Perry Apelbaum, Staff Director and Chief Counsel Aaron Hiller, Deputy Chief Counsel and Chief Oversight Counsel Barry Berke, Special Counsel  Norman Eisen, Special Counsel Arya Hariharan, Deputy Chief Oversight Counsel James Park, Chief Constitution Counsel Joshua Matz, Counsel Sophia Brill, Counsel Charles Gayle, Counsel Maggie Goodlander, Counsel Sarah Istel, Counsel Ted Kalo, Special Counsel Matthew Morgan, Counsel Matthew N. Robinson, Counsel Kerry Tirrell, Counsel Rachel Calanni, Professional Staff William S. Emmons, Professional Staff Priyanka Mara, Professional Staff Madeline Strasser, Chief Clerk