Torture’s bureaucracy and the “legitimacy effect”

This article tells the story of one small department in the Israeli Ministry of Justice: “The Inspector for Complaints Against General Security Service (GSS) Interrogators” (in Hebrew: Mavtan). Tasked with examining complaints of torture in GSS interrogations, and determining whether they merit launching a criminal investigation, Mavtan has reviewed more than 1,450 complaints to date. None of these, however, had ever led to criminal charges. By analysing this failure, we tell a segment of the story of torture in Israel and, more broadly, of the legal bureaucracy that makes state and colonial violence possible. Despite the failure to produce concrete outcomes, Mavtan is a very industrious unit. We argue that this extensive bureaucratic labor creates a semblance of the rule of law by performing an adherence to hallmarks of good governance, such as transparency and accountability. Paraphrasing Mitchell (1999), we call this semblance the “legitimacy effect,” as it works to produce state legitimacy on two levels: internationally, to cordon off external interventions, and domestically, to defuse the internal tension between torture and democracy. It hence allows torture to emerge as a problem that may be addressed procedurally, without ever contending with the violence and the violations of international law it necessarily entails.