That (maybe) RR and Mueller cut out the usual chain of command and procedure in order to make a "legal hit" close to Trump.
For what it’s worth, one at qanon.posts suggests that RR and Mueller kicked this Cohen activity into the NY state jurisdiction, because while the president may issue pardons for federal charges, only a governor can issue pardons for state charges.
A stretch on the motive for all this, but there it is.
Thanks.