Contempt of Congress
{{Short description|Act of obstructing the US Congress's work}}
{{Use mdy dates|date=April 2014}}
Contempt of Congress{{Cite web|url=https://www.law.cornell.edu/wex/contempt_of_congress|title=Contempt of Congress|website=LII / Legal Information Institute|language=en|access-date=2020-01-21|archive-date=August 3, 2013|archive-url=https://web.archive.org/web/20130803060749/http://www.law.cornell.edu/wex/contempt_of_Congress|url-status=live}} is the misdemeanor act of obstructing the work of the United States Congress or one of its committees. Historically, the bribery of a U.S. senator or U.S. representative was considered contempt of Congress. In modern times, contempt of Congress has generally applied to the refusal to comply with a subpoena issued by a congressional committee or subcommittee—usually seeking to compel either testimony or the production of requested documents.{{cite web |title=Obstruction of Congress: A Brief Overview of Federal Law Relating to Interference with Congressional Activities |url=https://www.everycrsreport.com/reports/RL34304.html |publisher=EveryCRSReport.com |author=Congressional Research Service |access-date=19 December 2019 |date=27 December 2007 |quote=Obstruction of justice is the impediment of governmental activities. There are a host of federal criminal laws that prohibit obstructions of justice. The six most general outlaw obstruction of judicial proceedings (18 U.S.C. 1503), witness tampering (18 U.S.C. 1512), witness retaliation (18 U.S.C. 1513), obstruction of congressional or administrative proceedings (18 U.S.C. 1505), conspiracy to defraud the United States (18 U.S.C. 371), and contempt (a creature of statute, rule and common law). All but Section 1503 cover congressional activities. |archive-date=December 19, 2019 |archive-url=https://web.archive.org/web/20191219145643/https://www.everycrsreport.com/reports/RL34304.html |url-status=live }}
History
In the late 1790s, declaring contempt of Congress was considered an "implied power" of the legislature, in a similar manner as the British Parliament could make findings of contempt of Parliament—early Congresses issued contempt citations against numerous individuals for a variety of actions. Some instances of contempt of Congress included citations against:
- Robert Randal, for an attempt to bribe Representative William Smith of South Carolina in 1795.{{Cite web|url=http://founders.archives.gov/documents/Madison/01-16-02-0092|title=Founders Online: The Case of Robert Randall and Charles Whitney, 28 December 17 …|website=founders.archives.gov}}
- William Duane, a newspaper editor who refused to answer Senate questions in 1800.{{Cite web|url=https://www.senate.gov/artandhistory/history/minute/Senate_Holds_Editor_in_Contempt.htm|title=U.S. Senate: Senate Holds Editor in Contempt|website=www.senate.gov}}
- Nathaniel Rounsavell, another newspaper editor, for releasing sensitive information to the press in 1812.{{Cite web|url=https://www.govinfo.gov/content/pkg/GPO-HPREC-HINDS-V3/html/GPO-HPREC-HINDS-V3-2.htm|title=Hinds' Precedents, Volume 3 – Chapter 53 – Punishment of Witnesses for Contempt|website=www.govinfo.gov}}
In Anderson v. Dunn (1821),{{cite web|url=http://supreme.justia.com/us/19/204/case.html|title=Anderson v. Dunn 19 U.S. 204 (1821)|website=justia.com|access-date=May 18, 2017}} the Supreme Court of the United States held that Congress's power to hold someone in contempt was essential to ensure that Congress was "... not exposed to every indignity and interruption that rudeness, caprice, or even conspiracy, may mediate against it."
The historical interpretation that bribery of a senator or representative was considered contempt of Congress has long since been abandoned in favor of criminal statutes. In 1857, Congress enacted a law that made "contempt of Congress" a criminal offense against the United States.Act of January 24, 1857, Ch. 19, sec. 1, 11 Stat. 155.
In the Air Mail Scandal of 1934, William MacCracken, former Assistant Secretary of Commerce for Aeronautics, was sentenced to ten days of detention for destroying evidence under subpoena. MacCracken appealed his sentence to the Supreme Court in Jurney v. MacCracken. After losing his case, he surrendered to Chesley Jurney, Senate sergeant at arms, who detained him in a room at the Willard Hotel.
While it has been said that "Congress is handcuffed in getting obstinate witnesses to comply",{{cite news|last1=Wright|first1=Austin|title=Why Flynn could easily beat his Senate subpoena|url=http://www.politico.com/story/2017/05/15/flynn-senate-subpoena-russia-trump-238404|access-date=17 May 2017|work=Politico|date=15 May 2017}} cases have been referred to the United States Department of Justice.Congressional Research Service Report RL34097, [https://fas.org/sgp/crs/misc/RL34097.pdf Congress's Contempt Power and the Enforcement of Congressional Subpoenas: Law, History, Practice, and Procedure], Todd Garvey (May 12, 2017). The Office of Legal Counsel has asserted that the President of the United States is protected from contempt by executive privilege.Memorandum for the Attorney General from Theodore Olson, Re: [https://www.justice.gov/sites/default/files/olc/opinions/1984/05/31/op-olc-v008-p0101_0.pdf Prosecution for the Contempt of Congress of an Executive Branch Official Who Has Asserted a Claim of Executive Privilege] {{Webarchive|url=https://web.archive.org/web/20170225034358/https://www.justice.gov/sites/default/files/olc/opinions/1984/05/31/op-olc-v008-p0101_0.pdf |date=February 25, 2017 }}, 8 Op. Off. Legal Counsel 101 (1984)Memorandum for the Attorney General from Charles J. Cooper, Re: [https://www.justice.gov/sites/default/files/olc/opinions/1986/04/31/op-olc-v010-p0068_0.pdf Response to Congressional Requests for Information Regarding Decisions Made Under the Independent Counsel Act] {{Webarchive|url=https://web.archive.org/web/20191208071159/https://www.justice.gov/sites/default/files/olc/opinions/1986/04/31/op-olc-v010-p0068_0.pdf |date=December 8, 2019 }}, 10 Op. Off. Legal Counsel 68 (1986)
In March 2024, it was reported that Peter Navarro would be the first former White House official to be imprisoned for a contempt of Congress criminal conviction.{{cite news|url=https://www.politico.com/news/2024/03/19/peter-navarro-prison-miami-00147790|title='I'm pissed': Ex-Trump aide Peter Navarro blasts justice system before heading to federal prison|first1=Kimberly|last1=Leonard|first2=Kyle|last2=Cheney|publisher=Politico|date=March 19, 2024|accessdate=July 1, 2024}} Steve Bannon would then follow in July 2024.{{cite news|url=https://www.cnn.com/2024/07/01/politics/steve-bannon-report-to-prison/index.html|title=Steve Bannon begins serving 4-month sentence in federal prison for defying congressional subpoena|first1=Sara|last1=Murray|first2=Katelyn|last2=Polantz|first3=Devan|last3=Cole|publisher=CNN|date=July 1, 2024|accessdate=July 1, 2024}} Both Navarro and Bannon's contempt of Congress convictions and prison sentences were connected with their refusals to comply with subpoenas which required them testify before the now-defunct House Select Committee that investigated January 6, 2021.
Subpoenas
The Supreme Court affirmed in Watkins v. United States (1957) that "[the] power of the Congress to conduct investigations is inherent in the legislative process" and that "[it] is unquestionably the duty of all citizens to cooperate with the Congress in its efforts to obtain the facts needed for intelligent legislative action. It is their unremitting obligation to respond to subpoenas, to respect the dignity of the Congress and its committees and to testify fully with respect to matters within the province of proper investigation."{{cite journal |last1=Warren |first1=Earl |title=WATKINS v. UNITED STATES |journal=United States Reports |date=1957 |volume=554 |page=576 |url=https://www.law.cornell.edu/supremecourt/text/354/178 |access-date=August 24, 2020}} Congressional rules empower all its standing committees with the authority to compel witnesses to produce testimony and documents for subjects under its jurisdiction. Committee rules may provide for the full committee to issue a subpoena, or permit subcommittees or the chairman (acting alone or with the ranking member) to issue subpoenas.
As announced in Wilkinson v. United States (1961),{{cite web|url=http://supreme.justia.com/us/365/399/case.html|title=Wilkinson v. United States 365 U.S. 399 (1961)|website=justia.com|access-date=May 18, 2017}} a congressional committee must meet three requirements for its subpoenas to be "legally sufficient." First, the committee's investigation of the broad subject area must be authorized by its chamber; second, the investigation must pursue "a valid legislative purpose" but does not need to involve legislation and does not need to specify the ultimate intent of Congress; and third, the specific inquiries must be pertinent to the subject matter area that has been authorized for investigation.
The Court held in Eastland v. United States Servicemen's Fund (1975){{cite web|url=http://supreme.justia.com/us/421/491/case.html|title=Eastland v. United States Servicemen's Fund 421 U.S. 491 (1975)|website=justia.com|access-date=May 18, 2017}} that congressional subpoenas are within the scope of the Speech or Debate clause which provides "an absolute bar to judicial interference" once it is determined that Members are acting within the "legitimate legislative sphere" with such compulsory process. Under that ruling, courts generally do not hear motions to quash congressional subpoenas; even when executive branch officials refuse to comply, courts tend to rule that such matters are "political questions" unsuitable for judicial remedy. In fact, many legal rights usually associated with a judicial subpoena do not apply to a congressional subpoena. For example, attorney–client privilege and information that is normally protected under the Trade Secrets Act do not need to be recognized.{{cite web|url=https://www.mayerbrown.com/files/Publication/ec1203b2-a787-44ac-8344-5d5fab374ffa/Presentation/PublicationAttachment/11509b8b-df81-4db6-9e89-1d1b16c20856/White-Paper-Congressional-Subpoena.pdf |title=Understanding Your Rights in Response to a Congressional Subpoena |author= |access-date=24 April 2019}}
Procedures
Following the refusal of a witness to produce documents or to testify, the committee is entitled to report a resolution of contempt to its parent chamber. A committee may also cite a person for contempt but not immediately report the resolution to the floor. In the case of subcommittees, they report the resolution of contempt to the full committee, which then has the option of rejecting it, accepting it but not reporting it to the floor, or accepting it and reporting it to the floor of the chamber for action. On the floor of the House or the Senate, the reported resolution is considered privileged and, if the resolution of contempt is passed, the chamber has several options to enforce its mandate.
= Inherent contempt =
Under this process, the procedure for holding a person in contempt involves only the chamber concerned. Following a contempt citation, the person cited is arrested by the Sergeant-at-Arms of the House or Senate, brought to the floor of the chamber, held to answer charges by the presiding officer, and then subjected to punishment as the chamber may dictate (usually imprisonment for punishment, imprisonment for coercion, or release from the contempt citation).{{cite web |last=Garvey |first=Todd |title=Congress's Contempt Power and the Enforcement of Congressional Subpoenas: Law, History, Practice, and Procedure |publisher=Congressional Research Service |pages=10|date=12 May 2017 |url=https://fas.org/sgp/crs/misc/RL34097.pdf |access-date=30 April 2019 }}
Concerned with the time-consuming nature of a contempt proceeding and the inability to extend punishment further than the session of the Congress concerned (under Supreme Court rulings), Congress created a statutory process in 1857. While Congress retains its "inherent contempt" authority and may exercise it at any time, this inherent contempt process was last used by the Senate in 1934, in a Senate investigation of airlines and the U.S. Postmaster. After a one-week trial on the Senate floor (presided over by Vice President John Nance Garner, in his capacity as President of the Senate), William P. MacCracken Jr., a lawyer and former Assistant Secretary of Commerce for Aeronautics who was charged with allowing clients to remove or rip up subpoenaed documents, was found guilty and sentenced to 10 days imprisonment.{{cite web|url=http://www.ecommcode2.com/hoover/research/historicalmaterials/other/maccrack.htm|title=William P. Mac Cracken Jr. Papers|website=ecommcode2.com|access-date=May 18, 2017|url-status=usurped|archive-url=https://web.archive.org/web/20080421135250/http://www.ecommcode2.com/hoover/research/historicalmaterials/other/maccrack.htm|archive-date=April 21, 2008|df=mdy-all}}
MacCracken filed a petition of habeas corpus in federal courts to overturn his arrest, but after litigation, the U.S. Supreme Court ruled that Congress had acted constitutionally, and denied the petition in the case Jurney v. MacCracken.{{cite web|url=http://supreme.justia.com/us/294/125/case.html|title=Jurney v. MacCracken 294 U.S. 125 (1935)|website=justia.com|access-date=May 18, 2017|archive-date=August 11, 2011|archive-url=https://web.archive.org/web/20110811095052/http://supreme.justia.com/us/294/125/case.html|url-status=live}}{{cite web|url=http://judiciary.senate.gov/oldsite/5182000_pjl8.htm|title=This is the Statement of SEN. Patrick J. Leahy, Ranking Minority Member, before the Senate Judiciary Committee|website=senate.gov|access-date=May 18, 2017|archive-url=https://web.archive.org/web/20170318043216/https://www.judiciary.senate.gov/oldsite/5182000_pjl8.htm|archive-date=March 18, 2017|url-status=dead}}
The last attempt by the House of Representatives to use this inherent contempt process was on July 11, 2024, when they voted on a resolution that could have held Attorney General Merrick Garland in inherent contempt of Congress. The resolution would have imposed a fine of $10,000 per day on Garland for defying a congressional subpoena until he handed over audio of former special counsel Robert Hur’s interview with President Joe Biden.{{cite web |last1=Carney |first1=Jordain |title=House GOP fails to pass effort to fine Garland $10,000 per day |url=https://www.politico.com/live-updates/2024/07/11/congress/house-gop-flops-on-inherent-contempt-00167562 |publisher=Politico |access-date=23 September 2024 |date=11 July 2024}} This attempt fell short in a 204 to 210 vote by the House of Representatives and Garland was not found in inherent contempt, with four Republicans voting with all Democrats to oppose the measure.{{cite web |last1=Hubbard |first1=Kaia |title=Republican effort to hold Attorney General Merrick Garland in inherent contempt of Congress falls short |url=https://www.cbsnews.com/news/merrick-garland-inherent-contempt-of-congress/ |publisher=CBS News |access-date=23 September 2024 |date=11 July 2024}}
= Statutory proceedings =
Following a contempt citation, the presiding officer of the chamber is instructed to refer the matter to the U.S. Attorney for the District of Columbia;{{cite news| url=https://www.washingtonpost.com/wp-dyn/content/article/2007/04/10/AR2007041000839.html | newspaper=The Washington Post | first=Dan | last=Eggen | title=House Panel Issues First Subpoena Over Firings | date=April 11, 2007}} according to the law it is the duty of the U.S. Attorney to refer the matter to a grand jury for action.
The criminal offense of contempt of Congress is a misdemeanor, punishable by a fine of not more than $100,000 nor less than $100 and imprisonment in a common jail for not less than one month nor more than twelve months.
= Civil procedures =
Senate Rules authorize the Senate to direct the Senate Legal Counsel to file a civil action against any private individual found in contempt. Upon motion by the Senate, the federal district court issues another order for a person to comply with Senate process. If the subject then refuses to comply with the Court's order, the person may be cited for contempt of court and may incur sanctions imposed by the Court. The process has been used at least six times.
Partial list contempt resolutions since 1975
{{Expand section|date=September 2010}}
See also
References
{{Reflist}}
External links
- {{cite web |url= http://www.fas.org/sgp/crs/misc/RL34097.pdf |title= Congress's Contempt Power: Law, History, Practice, and Procedure |publisher= Congressional Research Service |date= May 12, 2017}}
- {{cite journal |first= Michael A. |last= Zuckerman |url= http://student.virginia.edu/~jalopy/uploads/Zuckerman%2025-1.pdf |archive-url= https://web.archive.org/web/20100415054530/http://student.virginia.edu/~jalopy/uploads/Zuckerman%2025-1.pdf |url-status=dead |archive-date= 2010-04-15 |title= The Court of Congressional Contempt |journal= Journal of Law and Politics |volume= 25 |pages= 41–81 |year= 2009 }}
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