Trump got caught up in a New York State election law statute that he wasn’t even directly charged with violating.
Section 17-152 of New York State law provides that “any two or more persons who conspire to promote or prevent the election of any person to a public office by unlawful means and which conspiracy is acted upon by one or more of the parties thereto, shall be guilty of conspiracy to promote or prevent an election.” Donald Trump was effectively but not actually convicted of violating this law as part of the “Russian nesting doll” element of the felony charges brought against him by Manhattan district attorney Alvin Bragg, Jr.
People are calling it a Russian nesting doll because of the confusing layers Bragg utilized to turn misdemeanor false business record charges into felonies, which also helped extend the statute of limitations so that it covered crimes committed eight years ago. To be clear, Trump wasn’t directly charged with violating Section 17-152. He was indicted on 34 separate charges of filing false business reports. These charges are ordinary treated as misdemeanors, but because Trump caused the filings in furtherance of a second crime (violating Section 17-152), the charges were brought as felonies.
The jury was unanimous on all 34 charges that Trump caused the business reports to be filed as part of an effort to promote his own election. In other words, by paying Stormy Daniels not to go public about their tryst before the 2016 election, his aim was to help his campaign. But how was this unlawful?
On this element, the jury was instructed by Judge Juan Merchan that it did not have to be unanimous. They were told that possible unlawful means could include violations of federal campaign finance law, New York State or federal tax law, or other false business record filings. As long as each juror found that Trump had violated at least one of those items on the menu, then the unlawful means requirement was satisfied, but they could differ on which one.
It’s hard to write about this in a clear and concise way, and it’s no wonder the jury asked the judge to read the instructions a second time while they were deliberating. The briefest way to explain it is that Trump caused 34 false business reports to be filed, and he did so to promote his own election. His promotion used unlawful means because it involved an impermissibly large campaign finance donation from Michael Cohen of $130,000 which was then covered up in a way that mischaracterized Cohen’s donation as legal services. Because this would cause Cohen to pay income tax for work he did not do, his repayment was “grossed up,” and this resulted in filing false tax documents.
So, it wasn’t illegal for Trump to enter into a non-disclosure agreement with Stormy Daniels but it was illegal for him to cause Cohen to pay her out of his own pocket because it was done to promote Trump’s campaign and was therefore an an illegally large campaign donation. Cohen actually went to prison in part for violating federal campaign finance law with his payment to Daniels. His donation was not reported by Trump’s campaign. When it came time to pay Cohen back, Trump’s corporation falsely claimed it was paying Cohen for legal services. Then tax documents were filed to that effect. All of this adds up to the menu of unlawful means the jury could choose from.
Supporters of Trump and even some dispassionate legal observers have various problems with how this was all structured, and in some cases on how the jury was instructed by Merchan. I can’t address all of these concerns in detail, but I want to clear about one thing. When you hear Trump supporters argue that the judge told the jury it did not need to be unanimous, that’s deeply deceptive. It’s a reference to Merchan’s instruction to the jury that “Although you must conclude unanimously that the defendant conspired to promote or prevent the election of any person to a public office by unlawful means, you need not be unanimous as to what those unlawful means were.”
The jury had to be unanimous that Trump used unlawful means, but it didn’t matter that they all agreed the unlawful means were campaign finance violations versus, say, filing false tax returns or business records. To some degree this matters because Trump’s defense will argue on appeal that New York State doesn’t have jurisdiction over federal elections, federal taxes or federal campaign finance law, and so these can’t be considered unlawful means. But the jury never even had to clarify that they unanimously found violations of federal law. The appeal will insist they had to defend against a moving target.
The overarching complaint about this case is that Trump has been convicted of nearly three dozen felonies for trying to promote his own campaign, and promoting your own campaign is what campaigns are supposed to do. Perhaps his campaign committed campaign finance violations but those are federal crimes and the federal government investigated this and declined to bring charges. Alvin Bragg didn’t charge him with finance violations either. As for filing false business reports, those are misdemeanor offenses for which the statute of limitations has long since passed, but here they are treated as felonies. And, finally, none of this would be possible without the determination that a second crime was committed, but the jury didn’t have to agree about the means by which that crime took place. Add it all up, and it looks like Trump is getting picked on. No one else would have faced these charges.
It’s true that Section 17-152 of New York State law is doing a lot of work here. It’s what makes it possible to consider it a crime to promote your own campaign. And as sketchy as it is to enter into a non-disclosure agreement to hide a tryst with a porn star, that is not a crime in and of itself, and it’s not ordinarily considered a crime even if you’re a candidate for office. The problem for Trump is mainly in how he paid Daniels. By using a third party private payment, he lost the ability to argue that he was making the payment himself. Instead, someone did it on his behalf, and clearly did it to help him get elected. Then, add to this that he orchestrated a fraud to conceal what he had done that involved deceiving New York State, the Federal Election Commission, and the Internal Revenue Service.
If Trump had written a private check to Daniels, none of these other problems would have arisen, but that would have risked direct exposure if his payment leaked. One question that isn’t clearly resolved here is if New York State believes the public had a legal right to know about Trump’s tryst with Daniels. It seems to me that Trump had a legal right to take steps to prevent the public from knowing, but that’s definitely being treated as suspect under Section 17-152.
In the end, it only matters politically, because the way Trump went about keeping the secret wasn’t legal, and that’s why he’s now a convict. Calling this election interference might seem like a stretch, but in a completely non-legal way it’s true that the success of the scheme was a necessary ingredient in Trump’s narrow Electoral College victory in 2016. If he had not done it, he may not have ever been president, so it’s a very big deal.
I don’t think there’s any doubt that Trump achieved this through unlawful means, and now Bragg has made him pay for it.
I can see why this seems unfair to supporters of Trump. But breaking the law in order to win the presidency opens you up to being held to account. If he were smarter, he would have gotten away with it.