Framing and prosecutorial discretion: evidence from Brazil

Abstract

Prior studies in the United States argue that the discretionary decisions of federal prosecutors regarding which issues to prioritize are shaped by the politicians who appoint them, while studies on state prosecutors emphasize the role of press coverage and public opinion. However, these studies leave untheorized whether prosecutors’ discretionary decisions are also affected by how their peers frame issues within and beyond prosecution offices. Building on the scholarship of collective action frames, this study develops a framework to explain how prosecutors’ framing work affects their colleagues’ decisions about which issues to focus on. I draw on the case of Brazil, where federal prosecutors focused on crime-fighting and human rights, but in the mid-2010s switched focus to corruption following a large-scale investigation called Lava Jato. I compare Lava Jato with two similarly large investigations that failed to transform corruption into the dominant issue within the Public Prosecutor’s Office. Drawing on 131 original interviews, I show how federal prosecutors’ framing work can persuade their colleagues to focus on the same issue through two stages: (1) conceptualization of versatile frames that speak to problems a variety of issues prosecutors care about and (2) diffusion of frames through professional meetings – providing roadmaps for how other prosecutors can implement the new frame – and to the press, increasing public attention.