United States v. David Bowser

964 F.3d 26
CourtCourt of Appeals for the D.C. Circuit
DecidedJune 30, 2020
Docket18-3055
StatusPublished
Cited by1 cases

This text of 964 F.3d 26 (United States v. David Bowser) is published on Counsel Stack Legal Research, covering Court of Appeals for the D.C. Circuit primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
United States v. David Bowser, 964 F.3d 26 (D.C. Cir. 2020).

Opinion

United States Court of Appeals FOR THE DISTRICT OF COLUMBIA CIRCUIT

Argued March 9, 2020 Decided June 30, 2020

No. 18-3055

UNITED STATES OF AMERICA, APPELLANT

v.

DAVID G. BOWSER, APPELLEE

Consolidated with 18-3062, 19-3037

Appeals from the United States District Court for the District of Columbia (No. 1:16-cr-00059-1)

Leslie McAdoo Gordon argued the cause and filed the briefs for appellant/cross-appellee.

James Pearce, Attorney, U.S. Department of Justice, argued the cause for appellee/cross-appellant. With him on the briefs was Todd W. Gee, Deputy Chief. Elizabeth Trosman, Assistant U.S. Attorney, entered an appearance.

Before: HENDERSON, GRIFFITH, and WILKINS, Circuit Judges. 2 Opinion for the Court filed by Circuit Judge GRIFFITH.

GRIFFITH, Circuit Judge: A jury convicted David G. Bowser of charges that he obstructed an investigation by the Office of Congressional Ethics into his work as chief of staff to a Member of Congress. In this appeal, we affirm the jury’s verdict and the post-trial rulings of the district court from all challenges by Bowser and the Government.

I

A

The evidence at trial established the following. Bowser began working as the chief of staff for Paul Broun, a Member of the House of Representatives from Georgia, in January 2009. Representative Broun first joined Congress after winning a special election in 2007, and he was easily re-elected in 2008 and 2010.

In January 2012, Bowser was confident that Representative Broun would again retain his seat after the primary and general elections later that year. But even winning politicians have flaws, and Representative Broun’s was— according to Bowser—that he struggled with “messaging.” Trial Tr. 32:16 (Mar. 15, 2018), J.A. 573. So in February 2012, just as Representative Broun’s office was gearing up for another election, Bowser sought to hire a “messaging consultant” to help the Congressman “develop as a better communicator.” J.A. 672. Brett O’Donnell was a seasoned consultant with experience preparing President George W. Bush and Senator John McCain for presidential debates. On June 14, Bowser announced to the Congressman’s office that O’Donnell would join “Team Broun as a communications and messaging consultant to our official office.” J.A. 807. 3

Despite Bowser’s explanation that the new hire would help only with official duties, O’Donnell soon found himself working on the Congressman’s re-election campaign. In fact, on the same day that Bowser hired O’Donnell, he asked him to assist with the Congressman’s debate preparation. Just a week later, O’Donnell prepared Representative Broun for yet another debate. This shift in duties surprised O’Donnell. He testified at trial that he felt like Bowser pulled a “bait and switch” by retaining him “to do work for the official side” and then asking him to perform campaign functions. Trial Tr. 52:13-20 (Mar. 1, 2018), J.A. 294.

O’Donnell’s campaign duties soon decreased. In July 2012, the Congressman won the Republican primary, and he faced no serious opposition in the general election. But in early 2013, an incumbent Senator from Georgia announced his retirement, and Representative Broun decided to seek the vacant seat. O’Donnell once again found himself saddled with campaign duties. He helped prepare the Congressman for eight Republican primary debates and several campaign-related speeches and interviews. O’Donnell testified at trial that, in early 2013, he “was doing 60 percent official work, 40 percent campaign work”; by the end of 2013, he performed “easily 80 percent campaign work, 20 percent official work.” Trial Tr. 101:19-22 (Mar. 5, 2018), J.A. 320.

Nothing prevented O’Donnell from assisting the campaign as a volunteer or campaign employee, but House Rules forbade the Congressman’s office from paying O’Donnell out of the “Members’ Representational Allowance” (MRA). The MRA provides funds “to support the conduct of the official and representational duties of a Member of the House of Representatives,” 2 U.S.C. § 5341(a); see also IDA A. BRUDNICK, CONG. RESEARCH SERV., R40962, MEMBERS’ 4 REPRESENTATIONAL ALLOWANCE: HISTORY AND USAGE (2019), and the funds may not pay for campaign expenses. Between June 2012 and March 2014, O’Donnell was paid over $40,000 from the Congressman’s MRA funds. With one minor exception not relevant here, O’Donnell was paid only with MRA funds.

This possible misuse of congressional funds soon attracted media scrutiny. In March 2014, a reporter asked Representative Broun whether O’Donnell had been paid with taxpayer money to provide debate coaching. The Congressman allegedly slammed the door in the reporter’s face, and a local news outlet published a story with the descriptive title, “Congressman Slams Door on Channel 2 Reporter When Asked About Campaign Coach.” Because of this press report, O’Donnell was fired. He testified that Bowser informed him that “things [had] just gotten too hot with this story, that it would do damage to the campaign.” Trial Tr. 55:24-25, 56:1 (Mar. 5, 2018), J.A. 333-34. O’Donnell also testified that, during the same conversation, Bowser told him for the first time that he had been only a “volunteer with the campaign.” Id. at 56:16-24, J.A. 334 (emphasis added). On March 25, Bowser emailed the staff in the office to announce that Representative Broun “reluctantly accepted [O’Donnell’s] resignation.” J.A. 823.

This media attention also spurred an inquiry from the Office of Congressional Ethics (OCE or the “Office”). The OCE is “an independent office” within the House that reports to the House Committee on Ethics and investigates possible misconduct by Members of Congress or their employees. H.R. Res. 895, 110th Cong. § 1(a) (2008); see JACOB R. STRAUS, CONG. RESEARCH SERV., R40760, HOUSE OFFICE OF CONGRESSIONAL ETHICS: HISTORY, AUTHORITY, AND PROCEDURES (2019). The Speaker of the House and the House Minority Leader each appoint three private citizens to serve on 5 the Board, see H.R. Res. 895, 110th Cong. § 1(b) (2008), and the OCE hires additional staff to conduct its day-to-day business, see id. § 1(h). The Office may receive allegations of possible misconduct “from any source,” including news reports and submissions from the public. Trial Tr. 60:9-19 (Mar. 8, 2018), J.A. 458. And when two Board members authorize a “preliminary review,” the Office’s staff must review the allegations and make a recommendation to the Board. If the Board concludes that misconduct occurred, it may “recommend[]” that the investigated matter “requires further review” by the Ethics Committee itself. H.R. Res. 895, 110th Cong. § 1(c)(2)(B) (2008).

On April 1, 2014, OCE began such a preliminary review, informing Representative Broun that if he “misused funds from his [MRA]” to pay O’Donnell then “he may have violated House rules and federal law.” J.A. 679. Bowser promptly emailed O’Donnell to reiterate his view that any assistance on the campaign was voluntary; he had been paid for only official work. “We hired you,” Bowser wrote, “in an official capacity to help the Congressman improve his speaking abilities.” J.A. 824. “Any debate advice you wanted to give him on your own time, outside the official compound, has no bearing on the fact that we hired you to work in an official capacity . . . .” Id.

In June, the Office issued a series of “Requests for Information” (RFIs) to the Congressman’s staff, asking for “[a]ll files, records, notes, communications, and any other documents relating to Brett O’Donnell.” J.A. 683. Bowser’s interference continued. For instance, one staffer testified that he believed that Bowser instructed him to falsely certify that he “didn’t have any information relevant” to the review. Trial Tr. 67:10 (Mar. 12, 2018), J.A. 501.

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964 F.3d 26, Counsel Stack Legal Research, https://law.counselstack.com/opinion/united-states-v-david-bowser-cadc-2020.