it's the press that runs this "FBI recommendation" canard. To her credit, Lynch said that she'd accept the recommendation of a team that includes DOJ prosecutors and FBI investigators. In that team, the people with the role of recommending to proceed with a court case are the prosecutors. The only conclusion the FBI is competent to make is a finding of probable cause (or not) that a crime was committed.
Just to be complete, Lynch clarified the meaning of "accept the recommendation of the team" to mean that she, and she alone would be the person who decides whther or not to proceed with a case - and I'll add, assuming the FBI finds probable cause a crime was committed.
Good points on the mark.
Comey speaks for the FBI not the DOJ.