I'm not sure I buy that these actions are not criminal, but certainly Mueller didn't find conspiracy under the narrow definition he was allowed to look for.
Conspiracy is a separate statute from money laundering, aiding and abetting, and bribery. So there was A LOT hanging that Mueller wasn't focused on. Even the conspiracy part is leaving out connections for what looks to be spun-off to other investigations .Rosenstein's directive could have easily been interpreted as broad if you look at it. I don't understand why it was as narrow as it was.