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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.

Niger has been a base of international military operations for years as Islamic extremists have greatly expanded their reach in the Sahel. Those include Boko Haram in neighboring Nigeria and Chad, but the more immediate threat comes from growing activity in Niger’s border areas with Mali and Burkina Faso from the Islamic State in the Greater Sahara and the al-Qaida affiliate Jama’at Nusrat al-Islam wal-Muslimin, known as JNIM.

Mali’s military junta last month ordered the 15,000-strong United Nations peacekeeping mission to leave, claiming they had failed in their mission. However, Wagner forces remain there, accused by watchdogs of human rights atrocities.

The United States in early 2021 said it had provided Niger with more than $500 million in military assistance and training programs since 2012, one of the largest such support programs in sub-Saharan Africa. The European Union earlier this year launched a 27 million-euro ($30 million) military training mission in Niger.

The U.S. has operated drones out of a base it constructed in Niger’s remote north as part of counterterrorism efforts in the vast Sahel. The fate of that base and other U.S. operational sites in the country after this week’s coup isn’t immediately known.

West Africa’s Sahel region has become one of the world’s deadliest regions for extremism. West Africa recorded over 1,800 extremist attacks in the first six months of this year, resulting in nearly 4,600 deaths, a top regional official told the United Nations Security Council this week.

Niger is one of the world’s poorest countries, struggling with climate change along with migrants from across West Africa trying to make their way across the Sahara en route toward Europe. It has received millions of euros of investment from the EU in its efforts to curb migration via smugglers.

The Wagner group was thrust into the spotlight last year when three Russian journalists were killed in Central African Republic while investigating its alleged presence there.

Committee to Protect Journalists says 28 journalists have been killed in Russia since 2000

Libya’s interior ministry has said the aircraft included at least six MiG-29s and two Sukhoi 24s, and had flown to Libya from Hmeimim air base in Syria. Russia and the Wagner group have deployed forces in Syria to back president Bashar al-Assad in the country’s nine-year civil war.

Western diplomats view Russia’s role in Libya as opportunistic — a chance for Moscow to assert its influence in the region and expand its foothold in the east Mediterranean.

Diplomats say hundreds of Wagner fighters have been deployed to support Gen Haftar in Libya for some time. But more recently, an estimated 2,000 Syrian fighters have been dispatched to bolster Gen Haftar’s self-styled Libyan National Army.

Meanwhile, Turkey has increased its support for the government in Tripoli by dispatching several thousand Syrian militias and equipment, including Hawk air defence systems, that have negated Gen Haftar’s air superiority.

Fighters loyal to the UN-backed government took control of al-Watiya air base this month after a battle in which Turkish drones destroyed Russian-made Pantsir air-defence systems.

“That will be Russian mercenary pilots flying Russian-supplied aircraft to bomb Libyans.”

Frederic Wehrey, Libya specialist at the Carnegie Endowment for International Peace, described the Africom statement “as a major bold move against Russia” but expressed doubt on whether it would “translate into a more muscular US policy on Libya”.“The big unknown is the White House . . . because there are other allies that still have a hand in the fight like France and the Emirates, so will the US want to expend the political capital [by opposing those countries too].”

in Syria, other former rebels, dealing with the same deprivation, were being enticed to join the same war—but on the side of the commander Khalifa Haftar, the GNA’s main rival backed by Russia, the United Arab Emirates, and Egypt.

In March, Russia turned to Syria for reinforcements. It roped in its Syrian ally Assad to back its preferred Libyan warlord and began scouting for men willing to render services in a foreign conflict in exchange for cash.

Syrian rebels say the man tasked with leading this recruitment drive was Col. Alexander Zorin, who in 2016 served as the Russian defense ministry’s envoy at the Geneva-based task force on cessation of hostilities in Syria. Zorin is better known in Syria as “the godfather” of reconciliation deals between the regime and rebels in Ghouta, Daraa, and Quneitra.

In cooperation with Assad’s intelligence officials, Zorin is believed to have initiated negotiations with a number of rebel groups to send them to fight in Libya. Abu Tareq (his name has been changed for this article), the leader of a rebel group that fought the Islamic State in Quneitra in southern Syria, told Foreign Policy he met Zorin and agreed to go to Libya along with his fighters. “We met him, and he told us we were going to Libya with the security company [Wagner],” said Tareq from Syria. “He made a generous offer, $5,000 per month for a commander and $1,000 for a fighter. Of course, we agreed, because the financial situation is horrible in our area.”

amnesty for those who fled the draft and those against whom the regime kept a file for payback later.

Tareq and Mamtineh, and the men fighting for them, soon discovered they had been misled. They were lured with the assurance that they would merely guard oil installations in Haftar-controlled eastern Libya, but upon arrival at their training center in Homs, they found out that they were expected to fight and die for Haftar—and that the monthly salary would be much lower, only about $200. “Another Russian general at the base in Homs, I didn’t know his name, read out the terms of the contract before all of us. It wasn’t what Zorin promised. We refused and asked to be sent back home,”

Libyan analysts say Syrians are already in eastern Libya strengthening Haftar’s defenses. Anas El Gomati, the founder and director of the first public policy think tank established in Tripoli, Libya, said that, while Russian mercenaries of the Wagner Group led the offensive in Haftar’s yearlong attempt to conquer Tripoli, Syrians had been sent to back up the warlord in eastern Libya.

Mercenaries come at a cost, they don’t know the lay of the land, and are struggling to make ground in urban terrain

Like other Chadian rebels, the FACT’s goal has been to topple Deby. It derives most of its support from members of Mahadi’s tribe, the Goran – but not from all of them, since there are internal conflicts. Mahadi had also been fighting in Chad’s Tibesti region alongside Tubu rebels, and this has earned him support among the Tubu.

With Haftar also being backed by Russia, there have been rumours that the rebels were trained by Russian military contractor Wagner. There has been, however, no evidence that either Wagner or Haftar equipped the rebels to fight outside Libya. Still, questions are raised.

They reportedly deployed 400-450 cars with heavy military equipment, which surprised the Chadian army, even though the Chadian army has until now been able to repel the attack.

the fact the rebels were able to cross from Libya into Chad with all the equipment given over the years by Haftar, raises questions about Haftar’s loyalties, or at least his ability to control the foreign forces he has been hosting and backing.

Since Deby’s death, the FACT is likely to get more popular support among other rebel groups as well as in the wider Chadian population, but this will also depend on how much the movement succeeds in appearing to fight for more than one tribe, or ends up getting involved in tribal feuds.

Mahamat Deby, also known as Mahamat “Kaka”, is a general in his thirties. In recent years, he was commanding the General Direction of the Security Services of State Institutions (DGSSIE), or the elite guard under the presidency. Prior to this, he mostly earned his military reputation as deputy commander of the Chadian forces in Mali. This gave him, in spite of his young age, some legitimacy within the army. However, this does not mean that his new role at the transitional military council is unanimously backed by the Zaghawa tribe. But it does seem to have the support of France, in a missed opportunity to support a more inclusive, civilian-led transition.

During Ahmet Davutoğlu’s tenure as Turkey’s prime minister, relations between Ankara and the Tobruk-based parliament deteriorated to the point where all Turkish firms were expelled from Libya. 

Ankara's efforts to gain influence in Libya pale in comparison to the security assets that Moscow and Egypt may be preparing for a more expanded military presence in Libya. On November 7, 2018, Haftar and his senior staff visited Moscow for their latest meeting with Russia's defense minister Sergei Shoigu. Following the session, the Libyan Armed Forces released a video showing the presence of Yevgeny Prigozhin, an associate of Russian President Vladimir Putin and linked to several Russian private military companies, including the Wagner Group that allegedly participated in operations in Syria. Prigozhin's presence at the Haftar-Shoigu meeting has suggested to observers within Russia and beyond that Moscow may be gearing up for some form of increased intervention in Libya with operations similar to those conducted in Syria.

from November 3 to 16, Egypt hosted a two-week long joint exercise with the militaries of Saudi Arabia, the United Arab Emirates, Bahrain, Kuwait, and Jordan. Dubbed Arab Shield 1, the exercise involved land, naval, and air forces as well as Special Forces and took place at Egypt's base in Marsa Matrouh. While some view the exercises as a step toward creating an 'Arab NATO' to confront Iran, the massive joint Arab exercise on Egypt's Mediterranean coast sent a clear signal to Turkey and demonstrated the sort of coalition Egypt could muster should it decide to expand its military footprint in Libya

both Russia and Egypt have strategic incentives to escalate their support for the aging Libyan commander Field Marshal Khalifa Haftar.  In April 2018, the general suffered a stroke and required hospitalization in an intensive care unit in Paris.  Although two of Haftar's sons are commanders in the Libyan National Army, it is unclear whether either one of them could maintain the loyalty of the coalition of diverse factions that have united under the figure of Khalifa Haftar.  It would behoove both Moscow and Cairo to press their current advantage and deepen their respective positions in preparation for a post-Haftar era.

Moscow’s military presence in Libya would enable the Kremlin to complete a Russian ring around the southern half of the eastern Mediterranean. It is worth noting that Vladimir Putin's Russia is more popular than NATO in Greece and among Greek Cypriots. With only 195 nautical miles (360 km) separating Tobruk and Crete, Turkey thus faces the prospect of eventually finding itself encircled by a Russian presence among all of its regional adversaries

The change in the balance of power in North Africa in favor of Russia and Egypt inevitably and severely undermines Turkey's already challenging strategic position in the Eastern Mediterranean.

In September 2019, a few hundred Russian mercenaries joined the front-line effort near Tripoli in support of Haftar’s forces

forced a desperate GNA to sign a controversial maritime accord that granted Ankara notional gas-drilling rights in the eastern Mediterranean in return for Turkey launching a full-blown military intervention in support of the anti-Haftar camp

According to open-source data analyzed by aircraft-tracking specialist Gerjon, the Emiratis, since mid-January, have flown more than 100 cargo planes to Libya (or western Egypt, near the Libyan border). These planes likely carried with them thousands of tons of military hardware. Other clues suggest that the number of Emirati personnel on Libyan soil has also increased. All of this indicates that Haftar’s coalition and its allies are going to try, once again, to achieve total victory by force.

Few international actors are willing to contradict the UAE, and while the GNA’s isolation grows, no Western government wants to exert any meaningful pressure on Haftar

During January and February, at least three cargo ships from Turkey delivered about 3,500 tons’ worth of equipment and ammunition each. The Turkish presence on Libyan soil currently comprises several hundred men. They train Libyan fighters on urban warfare with an emphasis on tactics to fend off armored vehicles. Against attacks from the sky, Ankara relies on electronic-warfare technology and a combination of U.S.– and indigenously developed air defense systems. Similar protection has been set up at the air base of Misrata, a powerful anti-Haftar city to the west of Sirte, which the LNA took on Jan. 6.

Notwithstanding its attempt to tap underwater hydrocarbons in the Mediterranean, Ankara has no intention of renouncing its commercial interests in Libya or its wider geopolitical aspirations in the rest of Africa.

To counter Turkey’s new intervention, the pro-Haftar government in eastern Libya formalized its alignment with the Syrian regime of Bashar al-Assad, allowing the LNA to purchase technical advice from Damascus using material and diplomatic rewards. A few hundred Syrian contractors hired from pro-Assad militias are now reportedly in Libya, on Haftar’s side

Because Turkey’s presence and its arsenal have made it difficult for the UAE to fly its combat drones anymore, the LNA and its allies have begun a relentless shelling campaign using Grad rockets and other projectiles. Such salvos on Tripoli don’t just hit legitimate military targets—they also hit civilians. Unguided rockets are inherently indiscriminate, and the pro-GNA camp can do almost nothing to prevent this kind of attack

a philosophy of collective punishment

the pro-Haftar camp has been imposing a $1.5 billion-a-month oil blockade on Libya since mid-January. Fuel shortages may soon become more widespread as a result. Suppression of the nation’s only dollar-generating activity is also a means of cutting off the internationally recognized Central Bank in Tripoli and potentially supplanting it with an LNA-friendly alternative where all oil-export proceeds would be captured going forward

Moscow’s intervention in Libya is far more mercurial. In the last three months of 2019, Kremlin-linked paramilitary company Wagner shifted the balance of the conflict by joining the fight alongside Haftar. Then, in early January, several days before President Vladimir Putin took part in a request for a Libyan ceasefire, the Russian contingent on the Tripoli front line suddenly became less active.

The dynamic between Ankara and Moscow is as much rooted in their common disdain for Europe as it is in mutual animosity. That means Russia could tolerate Turkey a while longer if it feels its interests would be better served by doing so. Such an ebb-and-flow approach amplifies Moscow’s influence and could eventually push the Europeans out of the Libyan theater altogether. Russia may just as easily change its mind and invest into helping the LNA deliver a resounding defeat to Erdogan

since late December, more than 4,000 Turkish-backed Syrian mercenaries have arrived in Tripoli and its surrounding area. Most of them are battle-hardened Islamist fighters who belong to three large anti-government militias. Turkey is also busy upgrading its fleet of combat drones scattered across northwest Libya

the UAE has sought to bring about the emergence in Tripoli of a government that is void of any influence from political Islam writ large. Because of this, Abu Dhabi will not accept a negotiated settlement with Erdogan’s Islamist government. Making matters worse, neither the United States nor any EU country is willing to use its own regional clout to stand in the Emiratis’ way. Therefore, regardless of whether that endangers a great number of civilian lives, the Libyan war is likely to continue escalating before any political resolution is seriously explored.

the Middle East’s proxy wars and ideological rivalries have spilled across borders, ensnaring both the innocent and not so innocent — and perpetuating Libya’s vicious cycles of retribution

The Emiratis had been flying hundreds of drone sorties in support of Haftar since the start of his attack, and the resulting psychological impact on the GNA forces had been severe. The twisted remains of Toyota trucks at the Naqliya Camp were evidence of this. Fearing the drones, none of the GNA fighters slept in their trucks anymore, and hardly anyone used them for movement on the battlefield.

It would be another three months before the arrival of Russian mercenaries from the so-called Wagner Group would shift the momentum in Haftar’s favor by improving the precision of his artillery, and then another two months before a larger Turkish intervention, including drones and Syrian mercenaries, would arrive to save the embattled GNA and turn the tables once again

a breezy display of military jargon, one that I’d often encountered among Libya’s young militia commanders. Like many of them, bin Rajab’s military experience was gained through battles during and after the revolution. He rose through dint of charisma, patronage, and social ties rather than formal training

In Libya alone, countless citizens have lost their lives to the direct actions of foreign states like Emirati drone strikes, or indirect interference like the continued foreign backing of Libyan militias who murder and torture with impunity. Recently, there are signs of a softening of these harmful regional enmities, such as the end of the Saudi-led embargo of Qatar and Ankara’s quiet engagement with Cairo, Riyadh, and Abu Dhabi. But the damage caused by years of foreign interventions has yet to fully mend.

The massacre of up to a thousand Morsi supporters from the Muslim Brotherhood left Libyan Islamists fearing similar suppression in their own country. For their part, Libyan anti-Islamists were emboldened by the ascent of al-Sisi’s friendly regime next door

Libya was now split into two warring political camps: the anti-Haftar and Islamist factions in Tripoli, who called themselves “Libya Dawn,” and Haftar’s Operation Dignity based in the east. Foreign powers quickly joined, sending arms and advisers and conducting airstrikes. Egypt, the UAE, Saudi Arabia, Jordan, Russia, and France backed Haftar’s side, while Turkey and Qatar backed his opponents.

On the evening of their departure, an ambulance took the men to the runway at Jeddah’s international airport. During the drive, a Saudi doctor in a white coat asked bin Rajab questions about his health and took his blood pressure. As he exited the vehicle, someone was filming him with a camera. The Libyan consul, whom bin Rajab was told would be present, was nowhere to be seen. Bin Rajab tried to stall, but a Saudi military officer muscled him onto a Libyan military cargo plane. Inside, the Libyan soldiers who bound his mouth with tape spoke in the dialect of eastern Libya, the territory controlled by Haftar.

For over a year, Haftar had denied holding the three prisoners, causing GNA officials to suspect they were still in Saudi Arabia. It was not until Haftar’s LAAF swapped a prisoner with the GNA that an eyewitness, a fellow detainee in Benghazi, provided the first confirmation of their incarceration in eastern Libya. Then, in the spring of 2019, a delegation of elders from Az Zawiyah visited Haftar at his base outside Benghazi, who agreed to release the prisoners, reportedly under pressure from the Saudis. Bin Rajab told me that protests by the men’s friends and families in front of Saudi diplomatic facilities in Istanbul, Geneva, and London played a role, as did growing international scrutiny on the Kingdom in the wake of the Jamal Khashoggi killing. Human rights organizations and foreign diplomats were also raising the Libyans’ case with the Saudi government.

By mid-2020, Turkish-backed GNA fighters had forced Haftar’s LAAF out of western Libya and compelled him to accept a U.N.-brokered cease-fire.

The civil war erupted in May 2014, when Haftar and his militia allies launched a military campaign called Operation Dignity in Benghazi, framed as an effort to eliminate the city’s Islamists, including radical jihadists, and restore security. In fact, the operation was the first step in Haftar’s bid for national power. His public threats to expand his military campaign to Tripoli triggered a countermove by anti-Haftar and Islamist armed groups in western Libya.

Libyans have often told me that their fates are being decided abroad and that Libyan elites have all but surrendered their country’s sovereignty to their foreign patrons

Libyans still have agency to derail the best-laid plans of foreign capitals