by RONAN BERGMAN & MARK MAZZETTI
After 50 years of failure to stop violence and terrorism against Palestinians by Jewish ultranationalists, lawlessness has become the law.
This story is told in three parts. The first documents the unequal system of justice that grew around Jewish settlements in Gaza and the West Bank. The second shows how extremists targeted not only Palestinians but also Israeli officials trying to make peace. The third explores how this movement gained control of the state itself. Taken together, they tell the story of how a radical ideology moved from the fringes to the heart of Israeli political power.
Part I. Impunity
By the end of October, it was clear that no one was going to help the villagers of Khirbet Zanuta. A tiny Palestinian community, some 150 people perched on a windswept hill in the West Bank near Hebron, it had long faced threats from the Jewish settlers who had steadily encircled it. But occasional harassment and vandalism, in the days after the Oct. 7 Hamas attack, escalated into beatings and murder threats. The villagers made appeal after appeal to the Israeli police and to the ever-present Israeli military, but their calls for protection went largely unheeded, and the attacks continued with no consequences. So one day the villagers packed what they could, loaded their families into trucks and disappeared.
Who bulldozed the village after that is a matter of dispute. The Israeli Army says it was the settlers; a senior Israeli police officer says it was the army. Either way, soon after the villagers left, little remained of Khirbet Zanuta besides the ruins of a clinic and an elementary school. One wall of the clinic, leaning sideways, bore a sign saying that it had been funded by an agency of the European Union providing “humanitarian support for Palestinians at risk of forcible transfer in the West Bank.” Near the school, someone had planted the flag of Israel as another kind of announcement: This is Jewish land now.
Such violence over the decades in places like Khirbet Zanuta is well documented. But protecting the people who carry out that violence is the dark secret of Israeli justice. The long arc of harassment, assault and murder of Palestinians by Jewish settlers is twinned with a shadow history, one of silence, avoidance and abetment by Israeli officials. For many of those officials, it is Palestinian terrorism that most threatens Israel. But in interviews with more than 100 people — current and former officers of the Israeli military, the National Israeli Police and the Shin Bet domestic security service; high-ranking Israeli political officials, including four former prime ministers; Palestinian leaders and activists; Israeli human rights lawyers; American officials charged with supporting the Israeli-Palestinian partnership — we found a different and perhaps even more destabilizing threat. A long history of crime without punishment, many of those officials now say, threatens not only Palestinians living in the occupied territories but also the State of Israel itself.
Many of the people we interviewed, some speaking anonymously, some speaking publicly for the first time, offered an account not only of Jewish violence against Palestinians dating back decades but also of an Israeli state that has systematically and increasingly ignored that violence. It is an account of a sometimes criminal nationalistic movement that has been allowed to operate with impunity and gradually move from the fringes to the mainstream of Israeli society. It is an account of how voices within the government that objected to the condoning of settler violence were silenced and discredited. And it is a blunt account, told for the first time by Israeli officials themselves, of how the occupation came to threaten the integrity of their country’s democracy.
The interviews, along with classified documents written in recent months, reveal a government at war with itself. One document describes a meeting in March, when Maj. Gen. Yehuda Fox, the head of Israel’s Central Command, responsible for the West Bank, gave a withering account of the efforts by Bezalel Smotrich — an ultraright leader and the official in Prime Minister Benjamin Netanyahu’s government with oversight over the West Bank — to undermine law enforcement in the occupied territory. Since Smotrich took office, Fox wrote, the effort to clamp down on illegal settlement construction has dwindled “to the point where it has disappeared.” Moreover, Fox said, Smotrich and his allies were thwarting the very measures to enforce the law that the government had promised Israeli courts it would take.
This is a story, pieced together and told in full for the first time, that leads to the heart of Israel. But it begins in the West Bank, in places like Khirbet Zanuta. From within the village’s empty ruins, there is a clear view across the valley to a tiny Jewish outpost called Meitarim Farm. Built in 2021, the farm has become a base of operations for settler attacks led by Yinon Levi, the farm’s owner. Like so many of the Israeli outposts that have been set up throughout the West Bank in recent years, Meitarim Farm is illegal. It is illegal under international law, which most experts say doesn’t recognize Israeli settlements in occupied land. It is illegal under Israeli law, like most settlements built since the 1990s.
Few efforts are made to stop the building of these outposts or the violence emanating from them. Indeed, one of Levi’s day jobs was running an earthworks company, and he has worked with the Israel Defense Forces to bulldoze at least one Palestinian village in the West Bank. As for the victims of that violence, they face a confounding and defeating system when trying to get relief. Villagers seeking help from the police typically have to file a report in person at an Israeli police station, which in the West Bank are almost exclusively located inside the settlements themselves. After getting through security and to the station, they sometimes wait for hours for an Arabic translator, only to be told they don’t have the right paperwork or sufficient evidence to submit a report. As one senior Israeli military official told us, the police “exhaust Palestinians so they won’t file complaints.”
And yet in November, with no protection from the police or the military, the former residents of Khirbet Zanuta and five nearby villages chose to test whether justice was still possible by appealing directly to Israel’s Supreme Court. In a petition, lawyers for the villagers, from Haqel, an Israeli human rights organization, argued that days after the Oct. 7 Hamas attack, a raiding party that included settlers and Israeli soldiers assaulted village residents, threatened murder and destroyed property throughout the village. They stated that the raid was part of “a mass transfer of ancient Palestinian communities,” one in which settlers working hand in hand with soldiers are taking advantage of the current war in Gaza to achieve the longer-standing goal of “cleansing” parts of the West Bank, aided by the “sweeping and unprecedented disregard” of the state and its “de facto consent to the massive acts of deportation.”
The Supreme Court agreed to hear the case, and the relief the villagers are seeking — that the law be enforced — might seem modest. But our reporting reveals the degree to which decades of history are stacked against them: After 50 years of crime without punishment, in many ways the violent settlers and the state have become one.
Separate and Unequal
The devastating Hamas attacks in Israel on Oct. 7, the ongoing crisis of Israeli hostages and the grinding Israeli invasion and bombardment of the Gaza Strip that followed may have refocused the world’s attention on Israel’s ongoing inability to address the question of Palestinian autonomy. But it is in the West Bank where the corrosive long-term effects of the occupation on Israeli law and democracy are most apparent.
A sample of three dozen cases in the months since Oct. 7 shows the startling degree to which the legal system has decayed. In all the cases, involving misdeeds as diverse as stealing livestock and assault and arson, not a single suspect was charged with a crime; in one case, a settler shot a Palestinian in the stomach while an Israel Defense Forces soldier looked on, yet the police questioned the shooter for only 20 minutes, and never as a criminal suspect, according to an internal Israeli military memo. During our review of the cases, we listened to recordings of Israeli human rights activists calling the police to report various crimes against Palestinians. In some of the recordings, the police refused to come to the scene, claiming they didn’t know where the villages were; in one case, they mocked the activists as “anarchists.” A spokesman for the Israeli National Police declined to respond to repeated queries about our findings.
The violence and impunity that these cases demonstrate existed long before Oct. 7. In nearly every month before October, the rate of violent incidents was higher than during the same month in the previous year. And Yesh Din, an Israeli human rights group, looking at more than 1,600 cases of settler violence in the West Bank between 2005 and 2023, found that just 3 percent ended in a conviction. Ami Ayalon, the head of Shin Bet from 1996 to 2000 — speaking out now because of his concern about Israel’s systemic failure to enforce the law — says this singular lack of consequences reflects the indifference of the Israeli leadership going back years. “The cabinet, the prime minister,” he says, “they signal to the Shin Bet that if a Jew is killed, that’s terrible. If an Arab is killed, that’s not good, but it’s not the end of the world.”
Ayalon’s assessment was echoed by many other officials we interviewed. Mark Schwartz, a retired American three-star general, was the top military official working at the United States Embassy in Jerusalem from 2019 to 2021, overseeing international support efforts for the partnership between Israel and the Palestinian Authority. “There’s no accountability,” he says now of the long history of settler crimes and heavy-handed Israeli operations in the West Bank. “These things eat away at trust and ultimately the stability and security of Israel and the Palestinian territories. It’s undeniable.”
How did a young nation turn so quickly on its own democratic ideals, and at what price? Any meaningful answer to these questions has to take into account how a half-century of lawless behavior that went largely unpunished propelled a radical form of ultranationalism to the center of Israeli politics. This is the history that is told here in three parts. In Part I, we describe the origins of a religious movement that established Jewish settlements in the newly won territories of Gaza and the West Bank during the 1970s. In Part II, we recount how the most extreme elements of the settler movement began targeting not only Palestinians but also Israeli leaders who tried to make peace with them. And in Part III, we show how the most established members of Israel’s ultraright, unpunished for their crimes, gained political power in Israel, even as a more radical generation of settlers vowed to eliminate the Israeli state altogether.
Many Israelis who moved to the West Bank did so for reasons other than ideology, and among the settlers, there is a large majority who aren’t involved in violence or other illegal acts against Palestinians. And many within the Israeli government fought to expand the rule of law into the territories, with some success. But they also faced harsh pushback, with sometimes grave personal consequences. Prime Minister Yitzhak Rabin’s efforts in the 1990s, on the heels of the First Intifada, to make peace with Yasir Arafat, chairman of the Palestine Liberation Organization, gave rise to a new generation of Jewish terrorists, and they ultimately cost him his life.
The disagreement over how to handle the occupied territories and their residents has bred a complex and sometimes opaque system of law enforcement. At its heart are two separate and unequal systems of justice: one for Jews and another for Palestinians.
The West Bank is under the command of the I.D.F., which means that Palestinians are subject to a military law that gives the I.D.F. and the Shin Bet considerable authority. They can hold suspects for extended periods without trial or access to either a lawyer or the evidence against them. They can wiretap, conduct secret surveillance, hack into databases and gather intelligence on any Arab living in the occupied territory with few restrictions. Palestinians are subject to military — not civilian — courts, which are far more punitive when it comes to accusations of terrorism and less transparent to outside scrutiny. (In a statement, the I.D.F. said, “The use of administrative detention measures is only carried out in situations where the security authorities have reliable and credible information indicating a real danger posed by the detainee to the region’s security, and in the absence of other alternatives to remove the risk.” It declined to respond to multiple specific queries, in some cases saying “the events are too old to address.”)
According to a senior Israeli defense official, since Oct. 7, some 7,000 settler reservists were called back by the I.D.F., put in uniform, armed and ordered to protect the settlements. They were given specific orders: Do not leave the settlements, do not cover your faces, do not initiate unauthorized roadblocks. But in reality many of them have left the settlements in uniform, wearing masks, setting up roadblocks and harassing Palestinians.
All West Bank settlers are in theory subject to the same military law that applies to Palestinian residents. But in practice, they are treated according to the civil law of the State of Israel, which formally applies only to territory within the state’s borders. This means that Shin Bet might probe two similar acts of terrorism in the West Bank — one committed by Jewish settlers and one committed by Palestinians — and use wholly different investigative tools.
In this system, even the question of what behavior is being investigated as an act of terror is different for Jews and Arabs. For a Palestinian, the simple admission of identifying with Hamas counts as an act of terrorism that permits Israeli authorities to use severe interrogation methods and long detention. Moreover, most acts of violence by Arabs against Jews are categorized as a “terror” attack — giving Shin Bet and other services license to use the harshest methods at their disposal.
The job of investigating Jewish terrorism falls to a division of Shin Bet called the Department for Counterintelligence and Prevention of Subversion in the Jewish Sector, known more commonly as the Jewish Department. It is dwarfed both in size and prestige by Shin Bet’s Arab Department, the division charged mostly with combating Palestinian terrorism. And in the event, most incidents of settler violence — torching vehicles, cutting down olive groves — fall under the jurisdiction of the police, who tend to ignore them. When the Jewish Department investigates more serious terrorist threats, it is often stymied from the outset, and even its successes have sometimes been undermined by judges and politicians sympathetic to the settler cause. This system, with its gaps and obstructions, allowed the founders of groups advocating extreme violence during the 1970s and 1980s to act without consequences, and today it has built a protective cocoon around their ideological descendants.
Some of these people now run Israel. In 2022, just 18 months after losing the prime ministership, Benjamin Netanyahu regained power by forming an alliance with ultraright leaders of both the Religious Zionism Party and the Jewish Power party. It was an act of political desperation on Netanyahu’s part, and it ushered into power some truly radical figures, people — like Smotrich and Itamar Ben-Gvir — who had spent decades pledging to wrest the West Bank and Gaza from Arab hands. Just two months earlier, according to news reports at the time, Netanyahu refused to share a stage with Ben-Gvir, who had been convicted multiple times for supporting terrorist organizations and, in front of television cameras in 1995, vaguely threatened the life of Rabin, who was murdered weeks later by an Israeli student named Yigal Amir.
Now Ben-Gvir was Israel’s national security minister and Smotrich was Israel’s finance minister, charged additionally with overseeing much of the Israeli government’s activities in the West Bank. In December 2022, a day before the new government was sworn in, Netanyahu issued a list of goals and priorities for his new cabinet, including a clear statement that the nationalistic ideology of his new allies was now the government’s guiding star. “The Jewish people,” it said, “have an exclusive and inalienable right to all parts of the land of Israel.”
Two months after that, two Israeli settlers were murdered in an attack by Hamas gunmen near Huwara, a village in the West Bank. The widespread calls for revenge, common after Palestinian terror attacks, were now coming from within Netanyahu’s new government. Smotrich declared that “the village of Huwara needs to be wiped out.”
And, he added, “I think the State of Israel needs to do it.”
The New York Times for more