Access to Justice and the Legal Complex: Building a Public Defenders’ Office in Brazil

Latin American democracies have developed institutions to empower citizens against the state. This article brings attention to an often overlooked, but key, actor in these processes: the legal complex. I argue that the content of reforms designed to strengthen the rule of law partially reflects the interests of politically influential collective legal actors. Political influence is defined as a function of alliances with civil society and embeddedness within decision-making arenas of the state. To develop this argument, the article analyses the slow building of Brazil’s Public Defenders’ Office (PDO). I argue that the office’s initial institutional weakness resulted from defenders’ fragile political position relative to that of prosecutors and the bar during Brazil’s constitutional transition. Its eventual strengthening sixteen years later resulted from changes to the legal complex alliance in its favour, the formation of connections between defenders and civil society, and increased PDO access to policymaking spaces.