Why did DA not prosecute Lindsey Graham, others?

The just-released Fulton County special grand jury report shows the Georgia citizens recommended prosecuting 39 people in the 2020 election subversion probe -- far more than the 19 DA Fani Willis ultimately decided to charge. Among those named but not indicted are Senator Lindsey Graham, former Senators David Perdue and Kelly Loeffler, and former Trump adviser Michael Flynn. Why did Willis not prosecute them? 

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