HANDBOOK
FOR
FEDERAL
GRAND
JURORS
Prepared for the use of grand jurors serving in
the United States district courts under the
supervision of the Judicial Conference of the United
States. Published by the Administrative Office of
the United States Courts, Washington, D.C. 20544.
CONTENTS
PURPOSE OF THIS HANDBOOK........................ 1
ORIGIN AND HISTORY OF THE GRAND JURY..... 1
NATURE OF THE GRAND JURY .......................... 3
(1) The Grand Jury’s Tasks ......................... 4
(2) Investigation ....................................... 5
SELECTION OF GRAND JURORS ........................ 6
ORGANIZATION, OATH, AND OFFICERS OF THE
FEDERAL GRAND JURY ..................................... 6
PROCEDURE .................................................... 7
(1) Quorum .............................................. 7
(2) Evidence Before the Grand Jury ............ 7
(3) Questioning the Witness ...................... 8
(4) Calling the Person Being Investigated by
the Government as a Witness ............... 9
(5) The Evidence Needed Before a “True Bill”
May Be Voted .................................... 10
(6) Deliberations ...................................... 11
SECRECY ........................................................ 12
PROTECTION OF GRAND JURORS ................... 13
PRACTICAL SUGGESTIONS FOR
GRAND JURORS .............................................. 13
GLOSSARY OF TERMS ..................................... 16
PURPOSE OF THIS HANDBOOK
This Handbook will acquaint persons who
have been selected to serve on a federal grand jury
with the general nature and importance of their
role as grand jurors. It explains some of the terms
that grand jurors will encounter during their service
and offers some suggestions helpful to them in
performing this important public service. It is
intended that this Handbook will, to a degree,
repeat and provide a permanent record of much of
the information presented in the grand jury
orientation film, The People’s Panel, which in most
districts is shown to grand jurors at the
commencement of their service. Grand jurors are
encouraged to refer to this Handbook periodically
throughout their service to reacquaint themselves
with their duties and responsibilities.
This Handbook is designed as an aid only to
persons serving on a federal - not a state - grand
jury. The federal grand jury is concerned only with
federal crimes; it derives its authority from the
Constitution of the United States, national laws,
and the rules of the federal courts. There are also
grand juries impaneled in many of the states, but
those grand juries investigate only state crimes;
they derive their authority from the constitutions,
laws, and rules of court of the states where they are
impaneled.
ORIGIN AND HISTORY OF THE
GRAND JURY
The grand jury has a long and honorable
tradition. It was recognized in the Magna Carta,
the first English constitutional document, which
King John granted in 1215 at the demand of his
subjects. The first English grand jury consisted of
twelve men selected from the knights or other
freemen, who were summoned to inquire into
crimes alleged to have been committed in their
local community. Thus, grand jurors originally
functioned as accusers or witnesses, rather than as
1
judges.
Over the years, the hallmarks of our modern
grand jury developed in England. For example,
grand jury proceedings became secret, and the
grand jury became independent of the Crown. As
a result, a grand jury is able to vote an indictment
or refuse to do so, as it deems proper, without
regard to the recommendations of judge,
prosecutor, or any other person. This
independence from the will of the government was
achieved only after a long hard fight. It can best be
illustrated by the celebrated English case involving
the Earl of Shaftasbury, who, in 1681, fell under
the suspicion of the Crown. Displeased with him,
the Crown presented to the grand jury a proposed
bill of indictment for high treason and
recommended that it be voted and returned. After
hearing the witnesses, the grand jury voted against
the bill of indictment and returned it to the King,
holding that it was not true.
When the English colonists came to America,
they brought with them many of the institutions of
the English legal system, including the grand jury.
Thus, the English tradition of the grand jury was
well established in the American colonies long
before the American Revolution. Indeed, the
colonists used it as a platform from which to assert
their independence from the pressures of colonial
governors. In 1735, for example, the Colonial
Governor of New York demanded that a grand jury
indict for libel John Zenger, editor of a newspaper
called “The Weekly Journal,” because he had held
up to scorn certain acts of the Royal Governor. The
grand jury flatly refused.
The grand jury as an institution was so firmly
established in the traditions of our forebears that
they included it in the Bill of Rights. The Fifth
Amendment to the Constitution of the United
States provides in part that “(n)o person shall be
held to answer for a capital, or otherwise infamous
crime, unless on a presentment or indictment of a
2
Grand Jury . . . .” Moreover, the grand jury system
is also recognized in the constitutions of many of
the states of the Union.
NATURE OF THE GRAND JURY
The powers and functions of the federal grand
jury differ from those of the federal trial jury, which
is called the petit jury. The petit jury listens to the
evidence offered by the prosecution and the
defense (if it chooses to offer any) during a
criminal trial and returns a verdict of guilty or not
guilty. The grand jury, on the other hand, does not
determine guilt or innocence, but only whether
there is probable cause to believe that a crime was
committed and that a specific person or persons
committed it. If the grand jury finds probable
cause to exist against a person suspected of having
committed the crime, then it will return a written
statement of the charges called an “indictment.”
After that, the person will go to trial.
The grand jury normally hears only that
evidence presented by a government attorney
which tends to show the commission of a crime.
The government attorney usually is the United
States Attorney or and Assistant United States
Attorney in the federal district. The grand jury
must determine from this evidence, and usually
without hearing evidence for the defense, whether
the person being investigated by the government
should be tried for a serious federal crime, referred
to in the Bill of Rights as an “infamous crime.” An
infamous crime is one which may be punished by
imprisonment for more than one year. As a
general rule, no one can be prosecuted for a
serious crime unless the grand jury decides that
the evidence it has heard so requires. In this way,
the grand jury operates both as a “sword,”
authorizing the government’s prosecution of
suspected criminals, and also as a “shield,”
protecting citizens from unwarranted or
inappropriate prosecutions. The person being
investigated by the government may, however,
3
waive grand jury proceedings and agree to be
prosecuted by a written charge of crime called an
information.
The grand jury is not completely free to
compel a trial of anyone it chooses. The
government attorney must sign the indictment
before one may be prosecuted. Thus, the
government and the grand jury act as checks upon
each other. This assures that neither may
arbitrarily wield the awesome power to indict a
person of a crime.
(1) The Grand Jury’s Tasks
As stated above, the federal grand jury’s
function is to determine whether the
person being investigated by the
government shall be tried for a serious
federal crime alleged to have been
committed within the district where it
sits. Matters may be brought to its
attention in three ways: (1) by the
government attorney; (2) by the court
that impaneled it; and (3) from the
personal knowledge of a member of the
grand jury or from matters properly
brought to a member’s personal
attention. In all these cases, the grand
jury must hear evidence before taking
action.
After it has received evidence against the
person being investigated, the grand jury
must decide whether the evidence
presented justifies an indictment, or
“true bill,” which is the formal criminal
charge returned by the grand jury. Upon
the indictment’s being filed in court, that
person must either plead guilty or nolo
contendere or stand trial.
If the evidence does not persuade the
grand jury that there is probable cause
to believe the person being investigated
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committed a crime, the grand jury will
vote a “no bill,” or “not a true bill.”
When this occurs, that person is not
required to plead to a criminal charge,
and no trial is required.
(2) Investigation
The major portion of the grand jury’s
work is concerned with evidence
brought to its attention by the
government attorney. The grand jury
may consider additional matters
otherwise brought to its attention, but
should consult with the government
attorney or the court before undertaking
a formal investigation of such matters.
This is necessary because the grand jury
has no investigative staff, and legal
assistance will be necessary in the event
an indictment is voted.
It should be borne in mind that a federal
grand jury can take action only upon
federal crimes that have been
committed within the district in which it
has been impaneled. Furthermore, a
federal grand jury (except a special
grand jury impaneled under 18 U.S.C.
§§ 3331-3334) is not authorized to
investigate situations involving the
conduct of individuals, public officials,
agencies or institutions that the grand
jury believes is subject to mere criticism
rather than a violation of federal
criminal statutes. Its concern must be
devoted solely to ascertaining whether
there is probable cause to believe that a
federal crime has been committed and
to report accordingly to the court.
5
SELECTION OF GRAND JURORS
Federal law requires that a grand jury be
selected at random from a fair cross section of the
community in the district or division in which the
federal grand jury convenes. Thus, all citizens have
an equal opportunity and obligation to serve.
Pursuant to law, the names of prospective
grand jurors are drawn at random from lists of
registered voters or lists of actual voters, or other
sources when necessary, under procedures
designed to ensure that all groups in the
community will have a fair chance to serve. Those
persons whose names have been drawn and who
are not exempt or excused from service are
summoned to appear for duty as grand jurors.
When these persons appear before the court, the
presiding judge may consider any further requests
to be excused. The judge will then direct the
selection of 23 qualified persons to become the
members of the grand jury.
ORGANIZATION, OATH, AND
OFFICERS OF THE FEDERAL GRAND
JURY
After the proper number of persons have
been qualified as grand jurors, the court will
appoint one of them to be the foreperson, or
presiding officer, of the grand jury. A deputy
foreperson will also be appointed, so that he or she
can act as presiding officer in the foreperson’s
absence.
The foreperson, the deputy foreperson, and
the remaining members of the grand jury are
sworn in by the Clerk of the Court. Those persons
who do not wish to swear may affirm.
The oath taken by the grand jurors binds
them to inquire diligently and objectively into all
federal crimes committed within the district of
which they have or may obtain evidence and to
conduct such inquiry without malice, fear, ill will,
6
or other emotion.
After the grand jurors have been sworn, the
presiding judge advises the grand jury of its
obligations and how best to perform its duties.
This is called the charge to the grand jury. Careful
attention must be paid to the charge, for it and any
additional instructions that may be given by the
court contain the rules and directions the grand
jury must follow during its term of service.
After the grand jury has been charged, it is
taken to the grand jury room, where it will hear
testimony and consider documentary evidence in
the cases brought to its attention by the
government attorney.
PROCEDURE
(1) Quorum
Sixteen of the 23 members of the grand
jury constitute a quorum for the
transaction of business. If fewer than
this number are present, even for a
moment, the proceedings of the grand
jury must stop. This shows how
important it is that each grand juror
conscientiously attend the meetings. If
an emergency will prevent a grand
juror’s attendance at the meeting, he or
she must promptly advise the grand jury
foreperson. If the juror’s absence will
prevent the grand jury from acting, the
grand juror should, if at all possible,
attend the meeting.
(2) Evidence Before the Grand Jury
Much of the grand jury’s time is spent
hearing testimony by witnesses and
examining documentary or other
evidence in order to determine whether
such evidence justifies an indictment.
Each federal court district has a United
States Attorney whose duty it is to
7
represent the United States in federal
matters within the district and to
prosecute those accused of federal
crimes. In the usual case, the United
States Attorney or one of the Assistant
United States Attorneys will present the
evidence of alleged violations of the law
to the grand jury. These government
attorneys also advise grand jurors as to
what witnesses should be called and
what documentary evidence should be
produced for examination by the grand
jury. The grand jury may ask that
additional witnesses be called if it
believes this necessary. The government
attorney will also prepare the formal
written indictments that the grand jury
wishes to present. But a government
attorney may not remain in the room
while the grand jury deliberates and
votes on an indictment.
(3) Questioning the Witness
Witnesses are called to testify one after
another. Upon appearing to give
testimony, each witness will be sworn
by the grand jury foreperson or, in the
foreperson’s absence, the deputy
foreperson. The witness will then be
questioned. Ordinarily, the government
attorney questions the witness first,
followed next by the foreperson of the
grand jury. Then, the other members of
the grand jury may question the witness.
All questions asked of each witness
must be relevant and proper, relating
only to the case under investigation. If
doubt should arise as to whether a
question is appropriate, the advice of the
government attorney may be sought. If
necessary, a ruling may be obtained
from the court.
8
Because of the need for secrecy,
described in more detail in the following
section, the law forbids anyone other
than authorized persons from being
present in the grand jury room while
evidence is being presented. This
means that only the grand jury, the
government attorney, the witness under
examination, the court reporter, and an
interpreter, if required, may be present.
If an indictment should ultimately be
voted, the presence of unauthorized
persons in the grand jury room could
invalidate it.
Occasionally, prior to answering a
question, a witness may ask to leave the
grand jury room to consult with his or
her attorney. The grand jury can not
hold such conduct against a witness, for
every witness has the right to confer
with counsel even though counsel may
not be present in the grand jury room.
In fact, a witness may confer with
counsel after each question, as long as
he or she does not make a mockery of
the proceedings or does not, by such,
make an attempt to impede the orderly
progress of the grand jury investigation.
Additionally, a witness who is appearing
before the grand jury may invoke the
Fifth Amendment privilege against self-
incrimination and refuse to answer a
question. In such a situation, the grand
jurors may bring the matter before the
court in order to obtain a ruling as to
whether or not the answer may be
compelled and under what
circumstances.
(4) Calling the Person Being Investigated by
the Government as a Witness
Normally, neither the person being
9
investigated by the government nor any
witness on behalf of that person will
testify before the grand jury.
Upon request, preferably in writing, the
person being investigated by the
government may be given the
opportunity by the grand jury to appear
before it. Such person who does so
appear cannot be forced to testify
because of the constitutional privilege
against self-incrimination. If the grand
jury attempts to force the person being
investigated to testify, an indictment
returned against that person may be
nullified.
Because the appearance of the person
being investigated by the government
before the grand jury may raise
complicated legal problems, a grand jury
that desires to request or to permit that
person to appear before it should
consult with the government attorney
and, if necessary, the court before
proceeding.
Even if the person being investigated by
the government is willing to testify
voluntarily, that the person must be
advised of the right not to testify. Also,
he or she is required to sign a formal
waiver of this right. The grand jury
should be completely satisfied that the
person being investigated fully
understands what he or she is doing.
(5) The Evidence Needed Before a “‘True
Bill” May Be Voted
It is the responsibility of the grand jury
to weigh the evidence presented to it in
order to determine whether this
evidence, usually without any
explanation being offered by the person
10
being investigated by the government,
persuades it that there is probable cause
to believe that a crime has been
committed and that the person being
investigated was the person who
committed it. Remember that the grand
jury is not responsible for determining
whether the person being investigated is
guilty beyond a reasonable doubt, but
only whether there is sufficient evidence
of probable cause to justify bringing the
that person to trial. Only the evidence
presented to the grand jury in the grand
jury room may be considered in
determining whether to vote an
indictment.
(6) Deliberations
When the grand jury has received all the
evidence on a given charge, all persons
other than the members of the grand
jury or an interpreter necessary to assist
a juror who is hearing or speech
impaired, must leave the room so that
the grand jury may begin its
deliberations. The presence of any other
person in the grand jury room while the
grand jury deliberates or votes may
nullify an indictment returned on the
accusation.
After all persons other than the grand
jury members and any interpreter for a
hearing or speech impaired juror have
left the room, the foreperson will ask the
grand jury members to discuss and vote
upon the question of whether the
evidence persuades the grand jury that a
crime has probably been committed by
the person person being investigated by
the government and that an indictment
should be returned. Every grand juror
has the right to express his or her view
of the matter under consideration, and
11
grand jurors should listen to the
comments of all their fellow grand jurors
before making up their mind. Only after
each grand juror has been given the
opportunity to be heard will the vote be
taken. It should be remembered that at
least 16 jurors must be present and 12
members must vote in favor of the
indictment before it may be returned.
The foreperson of the grand jury must
keep a record of the number of jurors
concurring in the finding of every
indictment and file the record with the
Clerk of the Court. If an indictment is
found, the grand jury, or its foreperson
or deputy foreperson, will report it to the
judge or a magistrate judge in open
court. It will likewise report any “not
true bills,” or decisions not to indict. A
decision not to indict should
immediately be reported to the court in
writing by the foreperson so that the
person being investigated by the
government may promptly be released
from jail or freed from bail.
SECRECY
The law imposes upon each grand juror a
strict obligation of secrecy. This obligation is
emphasized in the oath each grand juror takes and
in the charge given to the grand jury by the judge.
The tradition of secrecy continues as a vital
part of the grand jury system for many reasons. It
protects the grand jurors from being subjected to
pressure by persons who may be subjects of
investigations by the grand jury or associates of
such persons. It prevents the escape of those
against whom an indictment is being considered.
It encourages witnesses before the grand jury to
give full and truthful information as to the
commission of a crime. It also prevents tampering
12
with or intimidation of such witnesses before they
testify at trial. Finally, it prevents the disclosure of
investigations that result in no action by the grand
jury and avoids any stigma the public might attach
to one who is the subject of a mere investigation
by the grand jury.
Essentially, the grand jury may disclose
matters occurring before it only to the government
attorneys for use in the performance of their
duties, but even the government attorneys may not
be informed of what took place during the grand
jury’s deliberations and voting. The only other
time matters occurring before the grand jury may
be disclosed to anyone is when disclosure is
ordered by the court in the interests of justice.
Disclosure of such matters may never be made to
grand juror’s friends or family, including a grand
juror’s spouse.
PROTECTION OF GRAND JURORS
The secrecy imposed upon grand jurors is a
major source of protection for them. In addition,
no inquiry may be made to learn what grand jurors
said or how they voted, except upon order of the
court.
The law gives the members of a grand jury
broad immunity for actions taken by them within
the scope of their authority as grand jurors.
Because of this immunity, all grand jurors
must perform their duties with the highest sense of
responsibility.
PRACTICAL SUGGESTIONS FOR
GRAND JURORS
Each grand juror should attend the grand jury
sessions regularly, in order to ensure that a quorum
of 16 members will be present to conduct the
grand jury’s business.
Each grand juror should be on time for each
meeting so that others are not kept waiting.
13
The time of meetings should be scheduled so
as to be convenient for the grand jury, the
government attorney, and the witnesses.
Witnesses should be treated courteously
when they appear before the grand jury. Questions
should be put to them in an orderly fashion. The
government attorney should complete his or her
questioning of each witness before the foreperson
asks questions. The remaining grand jurors will
then have a chance to ask relevant and proper
questions.
Each grand juror has an equal voice in
determining whether or not an indictment should
be returned. Therefore, it is important that all
grand jurors pay close attention to the testimony
and other evidence presented.
Each grand juror must be absolutely fair in his
or her judgment of the facts. Otherwise, the grand
juror will defeat the democratic purpose the grand
jury is designed to serve.
During deliberations on a case, each grand
juror should feel free to express his or her opinion
based upon the evidence.
Each juror has equal duties and
responsibilities, and each is entitled to be satisfied
with the evidence before being called upon to vote.
No juror has the right to dismiss a witness or to
shut off proper discussion if other jurors wish to
pursue the matter further.
No grand jury should undertake to investigate
matters outside its proper scope merely because
someone suggested an investigation, or because
the investigation would be interesting.
No grand juror should discuss the cases under
investigation with anyone, except fellow grand
jurors and the government attorney, and then only
in the grand jury room. Of course, the grand jurors
may always seek the advice of the judge.
Finally, every citizen who is selected to serve
14
on a federal grand jury should bring to this task the
determination to participate in a responsible
manner and to make every effort to ensure that the
grand jury will be a credit not only to the
community it represents but to the United States.
15
GLOSSARY OF TERMS
Charge to the Grand Jury:
Given by the judge presiding over the
selection and organization of the grand jury, the
charge is the court’s instructions to the grand jury
as to its duties, functions, and obligations, and how
to best perform them.
Deliberations:
The discussion by the grand jury members as
to whether or not to return an indictment on a
given charge against an person being investigated
by the government. During deliberations no one
except the grand jury members or an interpreter
for a hearing or speech impaired juror may be
present.
District:
The geographical area over which the federal
district court where the grand jury sits and the
grand jury itself have jurisdiction. The territorial
limitations of the district will be explained to the
grand jury by the district judge.
Evidence:
Testimony of witnesses, documents, and
exhibits as presented to the grand jury by a
government attorney or otherwise properly
brought before it. In some instances, the person
person being investigated by the government may
also testify.
Federal:
The national government as distinguished
from the state governments.
Government Attorney:
Usually the United States Attorney or an
Assistant United States Attorney in the federal
district.
16
Grand Jurors’ Immunity:
Immunity is granted to all grand jurors for
their authorized actions while serving on a federal
grand jury and means that no grand juror may be
penalized for actions taken within the scope of his
or her service as a grand juror.
Indictment:
The written formal charge of a crime by the
grand jury, returned when 12 or more grand jurors
vote in favor of it.
Information:
The written formal charge of crime by the
government attorney, filed against the person being
investigated who, if charged with a serious crime,
must have knowingly waived the requirements that
the evidence first be presented to a grand jury.
“No Bill”:
Also referred to as “not a true bill,” the “no
bill” is the decision by the grand jury not to indict a
person being investigated by the government.
Petit Jury:
The trial jury, composed of 12 members, that
hears a case after indictment and renders a verdict
or decision after hearing the prosecution’s entire
case and whatever evidence the defendant chooses
to offer.
Person Being Investigated by the Government:
The person suspected of having committed a
federal crime. Use of this term does not imply the
person being investigated is guilty of any crime.
After a person is indicted by the grand jury, that
person is referred to as the “defendant.”
Probable Cause:
The finding necessary in order to return an
indictment against the person being investigated
by the government of a federal crime. A finding of
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probable cause is proper only when the evidence
presented to the grand jury, without any
explanation being offered by the person being
investigated, persuades 12 or more grand jurors
that a federal crime has probably been committed
by that person.
Quorum for Grand Jury to Conduct Business:
Sixteen of the 23 members of a federal grand
jury must at all times be present at a grand jury
session in order for the grand jury to be able to
conduct business.
United States Attorney:
The chief legal officer for the United States
government in each federal district.
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Administrative Office
of the
United States Courts
Washington, D.C. 20544
HB101
