Might be similar to the last time this came up (i'm looking for it now, edit: found it[0]) where the developer worked with a sizable development-for-hire firm that were themselves associated with many other dev accounts, some of which ended up being suspended for ToS violations (possibly by this firm, possibly by the customer without the firm's knowledge). The anti-ban-evasion technology Google runs then effectively poisoned this firm's Play developer profile so that anyone working with them would be suspended for the potential ban evasion, eventually.
Note that, for this specific case, it might not be a firm but one of the developers themselves that has a poisoned account thanks to past dealings that violated ToS. I imagine the system only banning by associate if the $25 developer account itself ever uploads an app so that it doesn't ban associated Google accounts for non-play-developer purposes.
0: https://news.ycombinator.com/item?id=19124324 (comment explaining https://news.ycombinator.com/item?id=19124463 )