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Unlike the Soviet Union, Russia is not a global ground combat power.

Russia has employed heavily armed mercenaries from the notorious Wagner Group and a range of other (PDF) government-cozy (and perhaps government-run) companies as the tip of the Russian foreign policy spear. In effect, Russia has outsourced its foreign policy in Libya, Syria, the Central African Republic, Madagascar, Mozambique, Sudan, Ukraine, Yemen, Burundi, and other global hot spots.

Dmitry Utkin, former commander of the Russian military intelligence directorate's (GRU's) Spetsnaz special forces units, allegedly founded the Wagner Group in 2014. Wagner and an elite GRU Spetsnaz unit reportedly share a military base in the Russian town of Molkino.

RAND's work on will to fight—the disposition and decision to fight, act, or persevere in conflict and war—and on Russian state power suggests that Russia is using mercenaries due in great part to its inherent military and civil weaknesses. Russian mercenaries (in fact, all mercenaries) also have behavioral limitations and vulnerabilities to influence. Dependence on mercenaries also reflects a vulnerability in Russian national will to fight. Both of these weaknesses can be exploited.

The employment of private forces within the spectrum of both domestic and interstate rivalry has been more norm than anomaly throughout most of recorded history.

Mercenary soldiers with the Wagner Group (formerly Moran Security Group, and then Slavonic Corps Limited) and other Russian mercenary groups like Patriot, took the lead in some of the more dangerous frontline operations in Syria while uniformed Russian soldiers guarded air and naval bases along Syria's coastline

In February 2018, Russian-hired mercenaries led (or at least closely accompanied) a Syrian militia force armed with artillery and heavy tanks to seize an oilfield near the city of Deir az-Zour in northeastern Syria. American Special Operations Forces and Marines decimated them with hours of precision air attacks, killing perhaps (PDF) hundreds and causing the rest of the force—including the mercenaries—to flee. As Russian-hired mercenary personnel retreated from the battlefield at Deir az-Zour, other teams of Russian private military actors had to call in helicopter teams to evacuate the wounded from the battlefield in the absence of state support.

Russian mercenaries have also performed poorly in Africa. In Mozambique, Wagner mercenaries stumbled through the kinds of partner-building efforts at which U.S. special operations forces tend to excel. They offended the locals and reportedly double-crossed allies to make money. Islamic State insurgents have successfully attacked and killed them on poorly secured roads. Mercenary disinformation tactics in Mozambique backfired. What was billed as a Russian power play in a former Soviet client state looks like a disaster in the making.

Wagner sent hundreds of trainers and security personnel to the Central African Republic to help Russian commercial interests secure mining rights and to support a complex regional diplomatic push to increase Russian influence. There has been little pretense in this operation: It is primarily a money-making venture. In one case, Wagner mercenaries reportedly helped the rebels they were hired to fight in order to help a Russian mining company gain access to diamond mines. Wagner has been linked to the suspicious deaths of three journalists who were nosing around its CAR operations. This Russian mercenary-led deployment has been partially successful in countering French influence, but it is not clear that reported successes on the ground outweigh the lasting, negative consequences of Wagner's cutthroat behavior.

Russia sent mercenaries and probably some active military forces to support Khalifa Haftar's anti-government forces in Libya. In early 2020, 1,000 Wagner mercenaries reportedly fled the front lines between pro- and anti-government forces after suffering a resounding defeat. Combat losses for Wagner in Libya are unknown but possibly significant.

as individuals and as a group, Russian mercenaries have repeatedly shown that they will pursue self-interest and commercial interests over state interests, and that they will quickly abandon partner forces—and perhaps each other—when the tactical risks fail to outweigh the financial rewards.

There is no shortage of genuine tough guys in groups like Wagner and Patriot. Under the will to fight factor of quality, many Russian mercenaries would earn high marks for fitness and resilience. But outright toughness and even elite military training alone cannot sustain the will to fight of an individual primarily motivated by money.

Together, the weaknesses within Russian mercenary forces and within the Russian state in relation to press-ganged youths, conscripts, and casualties may offer ready opportunities for exploitation in great-power competition. These broader weaknesses in Russian national will to fight could be examined to identify more ways to prevent Russia from aggressively undermining Western democracy.

"The army, from the beginning… beat people up, took them to jail, tortured them. There's a lot of Islamophobia [in the majority Muslim province of Cabo Delgado]. They're discriminated against because they're northerners - people think they're dumb. "The problem is that we have a youth bulge - and the young don't have jobs. If we solve… the abuse of force, corruption, and if we have a serious system of justice I'm sure we'll solve this very rapidly,"

concerns that the conflict, if mishandled, could spread into neighbouring Tanzania, and perhaps even to South Africa

nternational gas companies - poised to invest billions in the off-shore gas fields discovered along the coast of Cabo Delgado - are now getting cold feet, partly because of the rising insecurity, but also because of falling gas prices.

Many observers and analysts believe that, fundamentally, the solution to the conflict lies in good governance, and a transparent attempt to address deep-seated economic and social grievances, including fair access to land, jobs, and a share of any future gas revenues."Multi-nationals want to know they can take their share, but they have to consider local people," said the Bishop of Pemba. "And the government has to know that it is very necessary that Mozambique's natural resources must be used for the betterment of its people, not to cause corruption,"

A year after DP World finalized an agreement with the semiautonomous region of Somaliland to develop a $442 million commercial port in Berbera, Ethiopia inked a deal with the port operator and Somaliland's government to acquire a 19 percent stake in the port. There are reportedly plans for DP World to upgrade the connectivity infrastructure linking Berbera to the Ethiopian border that would allow Addis Ababa and potentially greater East Africa to reduce their sole dependence on Djibout

The intra-Gulf Cooperation Council crisis has added another destabilizing variable, as countries, parties, and elites in East Africa have been forced to choose sides

Along with the competition by outside players has come greater leverage for Horn of Africa countries, whose elites have long been adept at playing external patrons off one another. Ethiopia has to some degree succeeded in diluting Abu Dhabi's reliance on its enemy, Eritrea, by supporting its plans for the Berbera port. In 2015, after losing access to Djibouti for military operations, the UAE constructed a base in the coastal Eritrean city of Assab, which has been vital to its operations in southern Yemen. By supporting the UAE's military and commercial infrastructure plans in Somaliland, Ethiopia — the Horn of Africa's largest and most powerful country — also contributed to the fracturing of Somalia by encouraging the de facto consolidation of Somaliland's independence

In Sudan, the UAE and Saudi Arabia have led efforts to rehabilitate President Omar Bashir in the international community by lobbying for U.S. sanctions on Sudan to be lifted. Bashir agreed to cut ties with Iran and send troops to fight for the Saudi-led coalition in Yemen

Bashir also agreed to lease Turkey the Red Sea island of Suakin for development. Though Turkey has denied it, concerns quickly arose that Ankara planned to build a new military base on the island, which would be its second in the Horn of Africa with the first in the Somali capital of Mogadishu.

The confidence with which Horn of Africa elites are pursuing their own interests at the risk of angering new patrons underscores the high stakes for the participants in this so-called "new scramble for Africa," and also their long-term intent. Djibouti in particular emerged over the past decade as a strategic focal point next to the Bab el-Mandeb shipping lane, existential for the flow of Gulf energy to Europe and goods between Asia and Europe. It has leveraged its location for lucrative basing deals for current and emerging world powers alike. The United States, China, Japan, Saudi Arabia, and former colonial ruler France all have bases in Djibouti.

the UAE's longer-term interests — as well as those of its competitors — are economic and strategic. The country is working to make itself an essential component of China's Belt and Road Initiative and secure Dubai's Jebel Ali as the key logistics and trade hub linking Asia to Africa via DP World infrastructure, in the face of competition by a glut of new ports built by rivals with similar ambitions in Iran, Pakistan, Oman, and elsewhere along the Horn of Africa

ports projects in Rwanda, Mozambique, Algeria, and Mali

State-backed and private investors from the UAE have invested in a wide range of non-energy sectors, from finance and banking to construction, tourism, food, entertainment, and agri-business

The UAE is also trying to make the nature of its engagement more attractive for African governments and private sector partners: Rather than following the path of China, which has been perceived negatively as following a pseudo-colonial model in Africa, it is looking more toward the Turkish model. Investments such as DP World's in Somalia or military bases come with packages of infrastructure investment, training, and education for workers and security forces, as well as inducements such as greater numbers of visas to the UAE

Food and water security continues to be an important interest for the UAE and other Gulf countries in East Africa. Emirati companies are seeking to avoid the political pitfalls that have caused past investments in land for food production to fail. Privately owned Al Dahra Holding, which owns farmland in Africa, claims to use a 50-50 sharing formula for produce with local companies and hires local workers

Migration, however, was never much of a concern for the inhabitants of the Sahara. For the most part, they move freely across borders, and their economies depend heavily on the transit of people and goods.

What was meant to be “A dialogue on peace, development, security and human rights in the trans-border regions of Libya, Chad, and Niger,” according to the government’s agenda, became a failed attempt to co-opt some of the poorest people on the planet in a fight against migration from which they had little to gain.

The interior ministers of the three countries attended the gathering, as well as one vice president of the GNA—hardly a typical NGO summit. The summit was ostensibly organized by the Ara Pacis Initiative, a group that claims to be an “international not for profit organization based in Rome, dedicated to the human dimension of peace.” Its peculiar inspiration, according to its website, is the altar of peace built in Rome by emperor Augustus. The founder and sole active member of Ara Pacis is Maria Nicoletta Gaida, an Italian American former actress with little background in the humanitarian sector

The mysterious man with the ponytail started off with an offer meant to capture the goodwill of his audience: “We will ask for Italy’s commitment to immediately establish cultural identity centers for the trans-border tribes,” he said. Italy would staff these centers with teachers “that will keep alive the history and the culture of these great people.” He also promised health clinics connected via webcam to Italian hospitals. “These are small things,” he said, “for the seed from which the plant grows is always small.”

“After peace,” he said, “comes security and development.” The delegates should “deal with the issue of immigration and terrorism through border control mechanisms based on the optimization of reception centers that already exist in your countries.”

“My minister is ready to support any of your requests,” he said at one point. In return, he asked for the tribes’ backing in curbing migration: That would “give him the strength to go to Europe and defeat our enemies,” he said, without clarifying who those enemies might be.

At roughly the same time as the meeting near Rome, the Italian intelligence services reportedly brokered a multimillion-euro payment to Libyan militias involved in trafficking to enlist them as a coast guard force, a claim that Italy denies.

The International Organization for Migration manages one key pillar of the EU’s migration policy in Libya, namely the so-called voluntary repatriation of stranded migrants.

these agencies have repeatedly proved useless when it comes to defending the human rights of migrants in Libya. Indeed, the Associated Press revealed last month that the EU’s humanitarian spending has often been diverted to militias and traffickers—sometimes with the knowledge of U.N. officials.

Sergio De Caprio, known by the public as Capitano Ultimo, became a legend in Italy after arresting the godfather of the Sicilian mafia Totò Riina in 1993. His exploits inspired novels and a TV series. In 2016 and 2017, he was transferred to the secret service. While his anti-mafia record is legendary, his foreign-policy credentials are unknown. His appointment affirmed the Italian government’s belief that migration is essentially a criminal problem, and that smuggling rings can be fought in the same way as mafia organizations.

“The social components of southern Libya are many more than just Awlad Suleiman, Tebu, and Tuaregs,” he argued. Moreover, he said, “their representatives know their identity and history well and are perfectly able to preserve their traditions.”

“Rather than cultural centers,” he said, “let’s open factories, so that the youth can have a hope, an alternative to joining criminal gangs.”

Although the south of the Sahara is rich in oil, gold, and uranium, local populations suffer abject poverty. The Saharan delegates laid out their priorities: Negotiating peace was their main aim—and supposedly the reason they had flown all the way to Rome. They saw Italy as having a European mandate to mediate peace in Libya by virtue of its old colonial ties. But still the war raged on

if a border force was what Europe really wanted, the tribes could welcome military equipment. The United Arab Emirates, the Tuareg leader reminded De Caprio, had lent their helicopters and pilots for border patrol after just one meeting, and this was already their fifth visit to Italy.

There is no accountability for Europe’s multibillion-euro spending spree on projects to curb migration. In vast regions such as southern Libya that are inaccessible to diplomatic missions, let alone humanitarian agencies, officials are able to pocket the money for themselves. Migration spending thus ends up fostering corruption, rather than development.

when the Libyans sought ambitious development projects they were offered handicraft workshops instead

Humanitarian catastrophe looms over the wider Sahara region as Islamist insurgencies in the bordering Sahel region displace 4.2 million people. The Libyan war has escalated into an international conflict

The parties in the Libyan conflict store weapons “in close proximity” to migrant detention centers, according to the Office of the U.N. High Commissioner for Human Rights, so these become a target of the bombing

Italy and Europe’s credibility has been severely undermined by their single-minded pursuit of migration control when dealing with Libya and other African countries

At least 36,000 people have been returned to Libya as they attempted to leave the country since 2017 by a Libyan coast guard that Europe funded and equipped. Unsurprisingly, given the way they were recruited, coast guard officers have been found to be involved in such crimes as detaining and extorting ransoms from migrants, whipping shipwreck survivors, shooting migrants, sinking their dinghies, and ignoring distress calls

For several years the Community of Sant’Egidio, a Catholic organization of which Giro is a prominent member, had been mediating peace among the Saharan peoples. The association is involved in several conflict resolution initiatives around the world and has been credited with ending a bloody civil war in Mozambique in 1992.

Europe’s “migration obsession … a sickness that has infected all 28 EU countries

Mogherini’s tenure as EU foreign-policy chief will be remembered for its unprecedented callousness toward the plight of migrants and refugees; she now co-chairs a newly formed U.N. High-Level Panel on Internal Displacement

“Do you realize what it would mean if Libya fell into Turkish and Russian hands, at the expense of Europe? We would lose everything.” What would we lose? I asked him. “Everything! Control over migration, political control, economic control, the oil. … Eventually, we would lose it all.”

The UAE is also trying to make the nature of its engagement more attractive for African governments and private sector partners: Rather than following the path of China, which has been perceived negatively as following a pseudo-colonial model in Africa, it is looking more toward the Turkish model. Investments such as DP World’s in Somalia or military bases come with packages of infrastructure investment, training, and education for workers and security forces, as well as inducements such as greater numbers of visas to the UAE. Food and water security continues to be an important interest for the UAE and other Gulf countries in East Africa. Emirati companies are seeking to avoid the political pitfalls that have caused past investments in land for food production to fail. Privately owned Al Dahra Holding, which owns farmland in Africa, claims to use a 50-50 sharing formula for produce with local companies and hires local workers.

the sudden abrogation of DP World’s Doraleh concession also lays bare the growing risks for the aspiring regional powers. The deepening fissures of Somali politics, in no small measure due to Middle East powers’ attempts at influence, also illustrate the risks for Horn of Africa societies, whose strategic location and economic potential paradoxically may lead them on a more complex – and possibly treacherous – path.