Dickie, Don, and Andy

July 28, 2017

Impeach 1

Andrew Johnson shortly before his death in 1869.

A former colleague of mine used to say that I could work Enos Slaughter, Harpo Marx, or Andrew Johnson into any conversation.

He might have been right, but where Johnson is concerned, I didn’t need any help to work him into the general discourse about the presidency of Donald Trump. Others did it for me by invoking the impeachment of Andrew Johnson as a precursor to what—in theory, at least—could be in store for the 45th president of the United States.

That was understandable. Once impeachment was added to the discussion, there were only three precedents to turn to—the cases of Johnson, Nixon, and Clinton. The impeachments of Johnson and Clinton and the likelihood that Nixon would have been impeached had he not resigned all arose from circumstances that were particular to the behavior of those three men. In Johnson’s case, the circumstances were also particular to that time in history—the immediate aftermath of the Civil War and the murder of Abraham Lincoln. There is a limit to the parallels that can be drawn between those three cases and that of Donald Trump.

Impeachment 2

Richard Nixon

There are parallels, though, limited as they might be. The myriad authorities—the former directors of this and the professors of that—who help TV faces torture and dissect the matter virtually around the clock—have frequently recalled Nixon’s dismissal of special Watergate prosecutor Archibald Cox as the sort of  decision that Trump might take regarding the investigation of Russian meddling in the last presidential election. And the authorities have speculated that such a decision on Trump’s part—with respect to special prosecutor Robert Mueller II, for example—would lead to the same sort of disaster that befell Nixon.

There is also this parallel—in this case concerning, if you’ll forgive me, Andrew Johnson. This has to do with the arms-length dust-up between Trump and his attorney-general, Jeff Sessions. Johnson also had a falling out with a member of his cabinet—the able secretary of war, Edwin M. Stanton, who had served in that capacity under Abraham Lincoln and as attorney-general under James Buchanan.

Johnson, although an admirable man in many respects, was famously the wrong person to succeed Lincoln at such a contentious and sensitive time in the nation’s history. There were several reasons for that, and one of them was that he was incapable of compromise. He and a Congress that was dominated by the Republican Party disagreed fundamentally about how the federal government should proceed with the defeated Confederate states and with the millions of black men and women who had been freed from lives of slavery.

Impeachment 3

Edwin M. Stanton

The short-hand version of this dispute is that the Republicans—led by the so-called Radical wing—wanted to put the southern states through a process of re-admission to the Union—including a period of military government—and extend to black Americans the same right to vote enjoyed by white Americans. Johnson, a southern Democrat who had stuck with the Union to the point of risking his life—wanted to restore the southern state governments with relatively little to-do, and he did not want to give the vote or much of anything else to the former slaves. Besides the obvious disagreements, there was an underlying difference with respect to the prerogatives the states and the prerogatives of the federal government—or the “general government,” as it was sometimes called in those days.

Included in the thrusts and parries of this contest was the Tenure of Office Act, a law passed by Congress, over Johnson’s veto, restricting the president’s power to remove from office, without the consent of the Senate, any federal officer the president had appointed with the consent of the Senate. That would include cabinet officers, of course, and it was designed to protect Stanton, who not only supported the whole Radical program but worked against the president’s agenda. This was a wry turn of events, because one of the bona fides Johnson could lay claim to was that he had retained Lincoln’s whole cabinet, even though Johnson was a conservative Democrat. In fact, he and others believed that he could not have violated the Tenure of Office Act by removing an officer he had not appointed in the first place.

Impeachment 4

Ulysses S. Grant

The law was in place, however, and it specifically provided that if the president suspended an officer while the Senate was not in session, the Senate, when it reconvened, could reinstate the rascal, and the president would have to keep him on. That provision meant a lot more then than it does now, because in the mid 19th century, Congress was not in session for most of the year.

Eventually, Johnson had enough of Stanton; while the Senate was in recess in August 1867, Johnson suspended Stanton and told him to turn the office over to Ulysses S. Grant—who not only opposed the suspension but disagreed with Johnson’s policies regarding reconstruction of the South. When the Senate returned in January, it did not uphold the suspension. Johnson believed, correctly, that the law was unconstitutional, and he decided to force the question in the courts. He removed Stanton and appointed in his place the comic-opera Adjutant-General Lorenzo Thomas who was not up to the fight when Stanton refused to leave office. When Johnson was impeached in February 1868, the charges against him boiled down to his violation of the Tenure of Office Act and his public challenges to the legitimacy of what he had referred to as a “rump Congress”—meaning that it represented only part of the country.

Johnson was acquitted by one vote, although some historians have maintained that several more Senators were prepared to vote for acquittal if there was a chance of conviction. Being partisan politicians, they weren’t about to climb out on that limb if it were not necessary.

The charges against Johnson regarding the dismissal of Stanton were flimsy, and the charges related to his public speeches were absurd. But impeachment is a political process, not a legal one, which is why—whenever the possibility of impeachment arises—the question of what constitutes an impeachable offense is argued anew. Gerald Ford once observed that grounds for impeachment are whatever Congress says they are; that’s true on a certain level, but the republic can’t stand if Congress can remove a president for expressing his opinion, much less for the color of his ties.

Many wished for the conviction of Andrew Johnson, but they might unwittingly have been wishing too for a serious jolt to the balance of powers intended by the founders.

 

 

 

 

 

ANDREW JOHNSON
The standoff between President Obama and the Republican majority in the House calls to my mind the struggle between President Andrew Johnson and the Republican majority after the Civil War and the murder of Abraham Lincoln. Johnson was a fine man in many respects, but if ever there was a wrong man at the wrong time in the presidency it was he. Johnson, who was from Tennessee, was the only U.S. senator who remained in his seat when his state seceded from the Union. He was elected vice president in 1864 on a fusion ticket with Lincoln and was vaulted into the presidency by Lincoln’s death. The Republicans were the progressive party at the time and the Democrats were not only conservative but identified with the slave-holding South. Johnson himself owned a few household slaves, although one of his daughters remarked that it was difficult sometimes to tell who was slave and who was master. Millions of words have been written about this, but suffice it to say that Johnson and the Republicans disagreed about how the former Confederates states and the former slaves should be treated by the federal government. As that dispute was boiling over, Congress passed a routine bill to fund the Army but attached an unrelated rider — which came to be known as the Tenure of Office Act — which provided that once the president had appointed a federal official with the consent of the Senate, he could not remove the official from office without the consent of the Senate.

EDWIN M. STANTON
Johnson believed that the Tenure of Office Act was an unconstitutional incursion on the powers of the president, but he wasn’t prepared to squelch it by vetoing the army appropriations bill. So he signed it, but afterward he deliberately violated it by removing from office Edwin M. Stanton, the secretary of war, who had served in the Lincoln administration in that role and as attorney-general. Because of vague wording in the law, it’s an open question whether Johnson had violated it at all. However, Stanton refused to leave, which led to a chain of events, including Stanton barricading himself in his office, that descended to the level of comic opera. Johnson’s presumed violation of the Tenure of Office Act was the centerpiece of the impeachment proceedings the Republicans brought against him. Johnson was acquitted and completed his term, but the balance of power between the executive and Congress had been disrupted. Congress repealed the Tenure of Office Act in 1887, and the U.S. Supreme Court, ruling on a similar law in 1926, said in an opinion written by Chief Justice and former President William Howard Taft, that the Tenure of Office act had been invalid.

WILLIAM HOWARD TAFT

WILLIAM HOWARD TAFT