What kind of a Crime Has Many Thousands of Witnesses and No Complaint for Years

So, the private Clinton servers were up for years.  Presumably many thousands of people were getting emails from them, and even sending emails to them (I suspect even including Republicans).  They could presumably read sender headers.

No complaints (except concerns raised back to 2009 by the National Records and Archives administration about record keeping procedures).

Only at the end of Clinton’s tenure at State did a complaint get filed.

Does that make all who got or sent those emails co-conspirators — or does it mean that since it did not upset anyone for years that this is all massively overblown?