"High crimes and misdemeanors", in the legal and common parlance of England in the 17th and 18th centuries, is corrupt activity by those who have special duties that are not shared with common persons.[5] Toward the end of the 1700s, "High crimes and misdemeanors" acquired a more technical meaning. As Blackstone says in his Commentaries: The first and principal high misdemeanor...was mal-administration of such high offices as are in public trust and employment.[6]
The notion that only criminal conduct can constitute sufficient grounds for impeachment does not comport with either the views of the founders or with historical practice.[1] Alexander Hamilton, in Federalist 65, described impeachable offenses as arising from "the misconduct of public men, or in other words from the abuse or violation of some public trust."[7] Such offenses were "political, as they relate chiefly to injuries done immediately to the society itself."[7] According to this reasoning, impeachable conduct could include behavior that violates an official's duty to the country, even if such conduct is not necessarily a prosecutable offense. Indeed, in the past both houses of Congress have given the phrase "high Crimes and Misdemeanors" a broad reading, finding that impeachable offenses need not be limited to criminal conduct.[1][8]
The purposes underlying the impeachment process also indicate that non-criminal activity may constitute sufficient grounds for impeachment.[1][9] The purpose of impeachment is not to inflict personal punishment for criminal activity. Instead, impeachment is a "remedial" tool; it serves to effectively "maintain constitutional government" by removing individuals unfit for office.[1][10] Grounds for impeachment include abuse of the particular powers of government office or a violation of the "public trust"—conduct that is unlikely to be barred via statute.[1][8][10]
In drawing up articles of impeachment, the House has placed little emphasis on criminal conduct.[1] Less than one-third of the articles that the House have adopted have explicitly charged the violation of a criminal statute or used the word "criminal" or "crime" to describe the conduct alleged.[1] Officials have been impeached and removed for drunkenness, biased decision-making, or inducing parties to enter financial transactions, none of which is specifically criminal.[1] Two of the articles against President Andrew Johnson were based on rude speech that reflected badly on the office: President Johnson had made "harangues" criticizing the Congress and questioning its legislative authority, refusing to follow laws, and diverting funds allocated in an army appropriations act, each of which brought the presidency "into contempt, ridicule, and disgrace".[11] A number of individuals have been impeached for behavior incompatible with the nature of the office they hold.[1] Some impeachments have addressed, at least in part, conduct before the individuals assumed their positions: for example, Article IV against Judge Thomas Porteous related to false statements to the FBI and Senate in connection with his nomination and confirmation to the court.[1]
