
Trump clearly possesses the authority to pardon associates and family members under Article II, Section 2 of the U.S. Constitution, which states that the president “shall have power to grant reprieves and pardons for offenses against the United States, except in cases of impeachment.” Although presidents have tended to wait for convictions before issuing pardons, Trump can do so in anticipation of federal charges. In Ex parte Garland in 1866, the Supreme Court ruled that the pardon power “may be exercised at any time after its commission, either before legal proceedings are taken, or during their pendency, or after conviction and judgment.” That is precisely what Gerald Ford did when he pardoned Richard Nixon before any charges were brought against him.
Pardoning his associates at this stage would clearly have a tactical benefit, but the historical and political costs of that would be immense. The most obvious reason for issuing pardons now would not be to protect any of the key people from jail but to limit Mueller’s leverage over witnesses. Mueller has selected a team of prosecutorial heavies, some of whom are known for flipping witnesses and using pressure to secure their cooperation. A pardon removes that option and reinforces the ability of close associates to take a hard line with investigators.
Of course, the use of the pardon power to protect the president’s political allies and family members would be legitimately decried as an abuse. It would not, however, be unprecedented.
The most recent abuse of pardon power was by Clinton. He waited until his last day in office to pardon billionaire Marc Rich, generally considered one of the least worthy recipients of a pardon in history. Jimmy Carter denounced the abuse of the pardon power for Rich as “disgraceful” and attributed Clinton’s decision to “his large gifts.” Worse yet, on the same day, Clinton pardoned his half-brother, Roger Clinton, in an open abuse of pardon power to benefit his family.
Some of Trump’s aides could obviously use a pardon. Paul Manafort and Michael T. Flynn are facing credible claims of violating the Foreign Agents Registration Act. However, FARA violations are almost uniformly addressed administratively, not through criminal prosecutions. Indeed, there have been only three prosecutions under FARA since 1966, when the law was last revised. Nevertheless, prosecutors could threaten a FARA charge to induce cooperation. Likewise, Donald Trump Jr. and Jared Kushner will be questioned before congressional committees starting next week; the risk of false or misleading statements will be at their apex. One such false statement to investigators can be charged as a violation of 18 U.S.C. 1001, or a false statement under oath to the committees can be charged as perjury. That can be considerable leverage for prosecutors.
But pardons would not end the investigation. Even if everyone were pardoned, Mueller could — and probably would — issue a report to Congress. Likewise, the congressional investigations would continue. Indeed, with pardons, witnesses could lose protections against self-incrimination and could more easily be forced to testify. New crimes such as perjury could fall outside of the pardon, and such a pardon would not protect against state charges. Finally, the difference could be that the focus would shift from potential counts for indictment to counts for impeachment. That change is not an improvement. The existing claims of criminal conduct on Trump’s part are relatively weak and speculative. To move from the legal to the political forum is to leave strategic high ground for a quagmire.
Tactical pardons are like burning bridges to slow an investigation. That has rarely stopped a determined foe. Indeed, it tends to encourage and swell the ranks of opponents.
In the end, a pardon of Trump’s allies and family — let alone himself — would destroy any legacy of Trump’s and demean his office. The presidential pardon remains one of the most majestic and storied powers of our Constitution. Hamilton once stated that the unfettered power given to a president reflects its foundation in “humanity and good policy.” Neither would justify pardons at this stage of the investigation.
