In a letter to Suh explaining the decision to allow Suh to play on Sunday but fine him $70,000, Cottrell makes clear that he believes Suh knew he was standing on Rodgers leg.
'Although I accept that your feet may have been cold on a late December day in Green Bay, it is difficult for me to believe that you did not feel Aaron Rodgers leg under you as you stepped on him twice' Cottrell wrote. While you may not have consciously intended to cause injury to the opposing player that you stepped on, I nonetheless believe that you could have avoided and had the responsibility to avoid making such dangerous contact with your opponents leg twice. Your conduct was a clear violation of the Playing Rules and was outside the normal course of the game of football. It must be emphasized that illegal acts that jeopardize the safety of other players, as was certainly the case here, will not be tolerated in this League.
http://profootballtalk.nbcsports.com/2014/12/30/ted-cottrell-doesnt-believe-suh-didnt-feel-rodgerss-leg/