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The changing global order has created an enabling environment for the recent spike of takeovers in Africa’s ‘coup belt’ – with Russia and newly assertive middle powers offering themselves as partners to putschists  Coups d’états have returned to Africa. In the 1990s and 2000s, the number of forced takeovers of power on the continent fell; but the figure began to creep back up around 15 years ago. This deterioration has come to particular prominence with the emergence of a ‘coup belt’ spanning from Sudan to Niger (and mostly recently Gabon), where eight coups have taken place in the last three years.   The drivers behind coups range from state fragility to weak economic development. But such factors were also a constant in the decades immediately after the end of the cold war – when Africa experienced fewer coups.  The overlooked factor is the weakening of global order and the coup-enabling international environment it has created. Policymakers should consider, in particular, the role that activist ‘middle powers’ and Russia are now playing in taking advantage of an increasingly lawless international setting. US retrenchment, selective AU enforcement As the United States retrenches to pursue its strategic competition with China, its capacity to invest seriously in both strategic imperatives and values-led foreign policy objectives is coming under strain. With the essential taking precedence over the good, upholding democracy in Africa has slipped down the list of America’s strategic priorities.  Africa’s own system for deterring takeovers has also weakened considerably. The African Union’s  enforcement of its coup-prohibiting rules grew increasingly inconsistent during the same period, during which time it began to enforce only selectively, due to the whims of powerful AU member states. This started with the coup in Mauritania in 2008, and was followed by President Sisi’s post-coup election in Egypt, and more recently by coups in Chad and Sudan. The interregnum and the rise of the middle powers To paraphrase Gramsci, the international rules-based order has not yet died so the new order cannot be born. The world thus finds itself in an interregnum in which the rules-based order is fraying but where the next iteration of global order is yet to emerge.  Aware that the world around them is changing, African leaders worry that a new version of cold war is developing, and that they are at risk of being forced to choose a side – America or China. But a cold war-style scenario is not a given, which means African leaders may be preparing for the wrong thing. This risks obscuring a major challenge created by the interregnum: the rise of assertive middle powers.    With global order in flux, middle powers seek to maximise their sovereignty and expand their influence. For middle powers in the Gulf, to Egypt and Turkey, those twin ambitions translate into treating the Horn of Africa as their near abroad. Russia surges into the coup belt sharing the same middle power motivations, but it differs on one count: desire to undermine the West. The opportunity generated by coups determines where Russia chooses to engage. But pursuing its rivalry with the West provides a second motive for Russia’s focus on the western half of the coup belt: it works to push back the strongest European influence, namely France’s presence in francophone Sahel states.  Naturally, Russia’s and middle powers’ engagement in Africa pre-dates the interregnum, but the opportunity presented by the evolving global order supercharges their interventions. Russia and middle powers exploit US retrenchment and eroding AU norms by offering themselves as partners to putschists. Seeing the opportunity to gain influence in power-grabs, they move in and back their preferred horse. These include the UAE, Saudi Arabia, Qatar, and Turkey throughout the Horn of Africa, where Turkey is more focused on Somalia; the UAE, Saudi Arabia, and Qatar are more focused on Sudan. In the Sahel, Turkey is tentatively exploring economic and security cooperation in Niger, Burkina Faso, and Mali. Russia plays a role across the Horn of Africa and Sahel sections of the coup belt; its deepest footprint is in Mali and Burkina Faso. All active middle powers are eyeing the prize of Libya as part of the strategic rationale for getting involved in its bordering countries.  With increasing numbers of autocratic political entrepreneurs in the coup belt bidding for power, the opportunities for engagement multiply. Middle powers – and Russia, to a lesser degree – place serious political and financial capital behind their engagement as well as no-questions-asked security support. This creates outsize impact compared to the mid-level Western official engagement and more conditional provision of financial and security support. Even though they wield greater firepower, the abilities of middle powers’ diplomatic and security institutions have yet to catch up with the demands placed on them by their political masters’ robust will to act. The impact can be of the bull in the china shop variety.  Russia and middle powers create an enabling environment for Africa’s autocrats by making their international and African-regional isolation impossible. The previous, unipolar period allowed the US, with European flanking, all behind an African lead (generally the AU), to deploy carrots and sticks while corralling other external powers. But middle powers’ assertive go-it-alone policies hamper the formation of a critical mass of international support to disincentivise rule-breaking.  How to navigate this new landscape African leaders grasp that changing global order is creating greater interest in Africa. They encourage new partners as a welcome means of diversification beyond the former confined choice of the US, old colonial powers such as France and Britain, or China. But the impact of Russian and middle power engagement in the coup belt demonstrates the pitfalls of such diversification. Rather than creating an additionality of options for Africa’s benefit, Russian and middle power engagement strengthens African autocrats and feeds state destabilisation.  There will be no return to the unipolar US-led order; no American linchpin to hold together the rules-based order against coups in Africa. Even if the US were to reallocate political capital to this end, the interregnum phase has already created shifts in global order of a magnitude that makes assertive middle powers and Russia near impossible to contain.  Nor can muscular engagement by France in its former colonies – the Sahel swathe of the coup belt – fill the US leadership gap. As much as France struggles to retain its primus inter pares role among European powers in the Sahel, the fever-pitch of anti-French sentiment in its former Sahel colonies constrains its efficacy.  When encouraging all-comers to support development in their countries, African leaders may have lingered too little on the drawbacks of Russia’s and middle powers’ engagement. If their fear was of Africa’s instrumentalisation by China and the US, then Russia and middle powers are not creating greater African agency. As it stands, they simply add to the number of actors instrumentalising Africa. That is the true wake-up call sounded by the Niger coup.

The apparent assassination of Yevgeny Prigozhin in the crash of his private jet between Moscow and St. Petersburg represents an inflection point in Russian-African relations. Prigozhin, as leader of the notorious Wagner Group, had been the point man for Russia in Africa since Wagner first began operations on the continent in 2017. More than a single entity, the Wagner Group is an amalgamation of shell companies deploying paramilitary forces, disinformation and political interference in Ukraine, Syria and Africa. Its leaders have been sanctioned by 30 countries for the group’s destabilising activities.  Prigozhin was believed to be living on borrowed time after he led a short-lived insurrection – part of a power struggle with the Russian military leadership – in June. While he quickly backed down, the action embarrassed Russian president Vladimir Putin and triggered chatter that Putin’s perceived weakness would embolden other challengers to his authority. Prigozhin advanced Russian influence in Africa by propping up politically isolated and unpopular authoritarian leaders. As a result of Wagner’s support, these leaders were beholden to Russian interests. Wagner’s backing took a variety of irregular forms, like paramilitary forces, disinformation campaigns, election interference, intimidation of political opponents, and arms for resources deals. Prigozhin referred to this interlocking set of influence operations as “The Orchestra”, which he conducted. Wagner deployed forces to Libya, the entral African Republic, Mali and Sudan. It has also been interfering in domestic politics and information narratives in some two dozen African countries. I research the role of governance in advancing security and development as well as the influence of external actors in Africa, including Russia. Democratic transitions and institutions of democratic accountability are among my interests. The breadth of Russian political interference in Africa points to Russia’s strategic objectives for the continent. It aims to secure a foothold in North Africa and the Red Sea, undermine western influence, normalise authoritarianism and displace the UN-based international system. None of these objectives are about making Africa more prosperous or stable. Rather, the continent is primarily a theatre to advance Russia’s geostrategic interests. Attempting to maintain the lucrative and influential operations of the Wagner Group in Africa after Prigozhin’s death will make it hard for Russia to deny that it uses irregular and illegal actions to extend its influence. Maintaining Wagner without Prigozhin The Wagner model has seen Russian influence expand rapidly in Africa. That’s despite Russia investing very little on the continent. Most of Wagner’s costs have been covered through cash and mineral concessions provided by host regimes. By some accounts revenues from mining operations in the Central African Republic and Sudan generate billions. It is no surprise that Russia would want to keep the Wagner enterprise going. Tellingly, on the day of Prigozhin’s plane crash, deputy defence minister Yunus-Bek Yevkurov was in Libya to reassure warlord Khalifa Haftar of Russia’s ongoing support. Yevkurov later visited the military juntas in Mali and Burkina Faso to deliver the same message. The question will be whether the Russian military has the capacity. Russia needs soldiers in Ukraine. So, it may not have experienced fighters to spare in Africa. It is also an open question whether Wagner troops will agree to sign contracts with the Russian defence ministry, given the way their leader was dispatched. The Russian government would also need to recreate the multidimensional dealings that made Wagner’s operations effective in shoring up client regimes. For years, Russia has promoted hybrid warfare – the fusion of conventional and subversive tools. Synchronising this across multiple African contexts will require greater dexterity than the Russian security bureaucracy is likely capable of, however. Finally, Russia has benefited from the plausible deniability that Wagner has provided while doing Putin’s bidding. In every context in which Wagner forces have been deployed, they have been credibly accused of human rights abuses including rape, torture and extrajudicial killings. In Mali, Wagner is linked to more than 320 incidents of human rights abuses and hundreds of civilian deaths. Wagner has also been accused of driving away local communities where it has secured mining concessions, effectively annexing African territory. By directly taking over the mantle of Wagner operations in Africa, the Russian government can no longer claim ignorance or impotence to do anything about these unlawful and destabilising actions. Russia has largely escaped serious reputational costs for Wagner’s thuggish activities in Africa. But this will change when it owns the repressive tactics Wagner has deployed. Reassessments in Africa What of Wagner’s African clients? Leaders of these regimes have come to power through extraconstitutional means. They restrict opposition voices and media. They are isolated internationally. Simply put, they cannot survive without Moscow’s support. So, we should not expect a change in receptivity from the military juntas in Mali, Sudan, Burkina Faso, the co-opted leadership in the Central African Republic, or the Libyan warlord, Haftar. What will be telling is the reaction from other governments on the continent. Some will continue to see value in flirting with Russia as a way of hedging against international criticism. Russia’s reach in Africa may be exceeding its grasp, however. There is a growing awakening on the continent of how little Russia actually brings to Africa in terms of investment, trade, jobs creation or security. Its deployment of mercenaries, disinformation, political interference and arms for resources deals mean it actually amplifies instability on the continent. The symbolism of this was vividly brought home in the days before the Russia-Africa Summit at the end of July. Russia pulled out of the Black Sea grain deal that had enabled 33 million tonnes of grain to get from Ukraine to Africa and other parts of the world. The deal had eased supply chain restrictions caused by Russia’s invasion of Ukraine in 2022. Not only did Russia scuttle the deal: it bombed the Ukrainian ports that were exporting the grain, wasting 180,000 tonnes in the process. The contempt Putin showed for African interests by this action was hard to ignore. This disregard, coupled with recognition that Russia offers relatively little to Africa, contributed to only 17 African heads of state attending the St. Petersburg summit. By comparison 43 African heads of state attended the Russia-Africa Summit in Sochi in 2019. The way that Prigozhin was eliminated must also give African leaders pause. Putin speaks often of his desire to create a new international order. Russia’s lawlessness at home and abroad is bringing into sharp focus what his world order would look like. And that’s not a vision many African leaders share.

한국어로 읽기Leer en españolIn Deutsch lesen Gap اقرأ بالعربيةLire en françaisЧитать на русском The Wagner Group has maintained an active and controversial presence in Africa since 2017, where it has contributed to regional instability, countered Western influence, and exacerbated human rights abuses. Despite the death of its figurehead in 2023, the emergence of the Africa Corps indicates that Russia’s covert geopolitical strategies in the region will persist. The Wagner Group has gained significant attention since its involvement in the 2022 Russian invasion of Ukraine. As a paramilitary organisation with deep ties to the Russian government, Wagner’s operations blur the lines between state and non-state actions. This ambiguity challenges traditional frameworks of accountability and international law, complicating efforts to address its activities on the global stage. Ukraine is not the group’s only violent contribution to the destabilization of peaceful nations. Wagner has maintained an active presence across Africa since 2017, where it has been accused of numerous human rights violations, including extrajudicial killings, torture, and targeting civilians. The bulk of these activities have unfolded in the Central African Republic (CAR) and Mali. The Wagner Group’s international impact is multifaceted, affecting strategic, economic, and humanitarian outcomes. Functioning as a tool for Russian geopolitical ambitions, the group has contributed to regional instability in Sub-Saharan Africa, countered Western influence by infiltrating anti-Western and anti-colonial movements and sentiments online, and raised significant concerns regarding human rights and international law. In many of its areas of operations, Wagner’s presence has served as a catalyst for conflict escalation, and regional instability. In CAR and Mali, for instance, the group’s presence has been linked to increased violence and human rights abuses and undermining international and regional efforts towards peace and stability. The death of Yevgeny Prigozhin, known as “Putin’s Chef,” on 23 August 2023, came two months after his march on Moscow, sparked by dissatisfaction with the Russian Ministry of Defence’s actions in Ukraine. It is likely that many of the governments and regimes in Africa that “benefitted” from Wagner’s services were deeply concerned about Prigozhin’s death. At the same time, many may have been relieved, hoping that his death might change the brutal and terror-driven campaign of violence that had plagued the Sahel region at the group’s hands. Additionally, Wagner has provided Russia with a platform to pursue state interests through covert operations. Until the invasion of Ukraine, this allowed Putin to maintain plausible deniability regarding association with Wagner and its controversial activities. In addition to military engagements, Prigozhin orchestrated extensive propaganda and disinformation campaigns across Africa. These operations bolstered Russia’s influence in countries that Wagner operated in, while obscuring the ability for international bodies and states to accurately assess and address the allegations of human rights abuses that came alongside Wagner’s deployments. In CAR, the Wagner Group was deployed in 2018 to provide protection for mines, support the government, and offer personal protection for President Faustin-Archange Touadéra. However, Wagner’s role in CAR far exceeded resource and government protection. The group actively engaged in military operations alongside members of the armed forces, leading to numerous accusations of serious human rights violations, including summary executions and sexual and gender-based violence. Despite these allegations, the group continued to receive support from the CAR government. The media outlet, Corbeau News, reported that President Touadéra had authorised Wagner’s sexual violence. This was evidenced in one of Wagner’s most extreme acts in CAR, which occurred in April 2022 when members of the group entered a military hospital in Bangui and sexually assaulted women and new mothers in the maternity ward. One source within the military administration of CAR stated that it was the third time members from the group had entered the maternity ward and assaulted women. In 2021, reports surfaced that Wagner would deploy to Mali to combat a rebel insurgency. This announcement sparked outrage from France, the United Kingdom, and the European Union, who warned Mali against partnering with the group. Similar to its operations in CAR, Wagner’s presence in Mali has been marked by violence and instability. In April 2022, Human Rights Watch released a report detailing the massacre of 300 civilians during a joint military operation involving Malian armed forces and the Wagner Group from 27 March to 31. A key feature of Wagner’s presence has been countering Western influence in strategic regions. The provision of military support to governments and groups engaged in activities against Western-supported entities has been notably destructive. This dynamic was evident in Mali, where in 2022, an extensive disinformation campaign on social media, linked to Wagner, exploited anti-France and anti-imperialist sentiments to undermine the French presence. The campaign, along with “multiple obstructions” from Mali’s military junta led to France announcing the withdrawal of its military forces from Operation Barkhane in Mali in February 2022. Following the announcement, Malians celebrated in the capital, Bamako, and held signs stating, “Thanks Wagner” and “France is a terrorist nation.” Wagner-linked actors then continued their disinformation efforts, attempting to shift blame onto France following the discovery of a mass grave near a military base that French forces had recently vacated. Satellite imagery released by France later revealed Wagner Group mercenaries arranging the bodies in the mass grave. The bodies were believed to have come from a joint-military operation between the Malian armed forces and the Wagner Group in the same area in the days prior. In Africa, Wagner’s operations have been closely linked to the control and exploitation of natural resources. In countries such as CAR and Sudan, Wagner has secured access to valuable resources such as gold and diamonds. Recently, investigative efforts by groups like All Eyes on Wagner have revealed that the group has circumvented sanctions by exporting timber from CAR through Cameroon, in addition to operating an extensive blood diamond trading network. The Wagner Group’s involvement in these countries highlights the group’s role in bolstering autocratic regimes in exchange for strategic and economic benefits. Prigozhin’s march on Moscow in June 2023 had already fuelled significant speculation about the group’s future. Nonetheless, the group’s strategic plan to support autocratic governments, orchestrate foreign interference, and expand influence remains both politically and economically appealing to Moscow. The potential dissolution of the Wagner Group would pose a significant challenge and require the rebuilding of established relationships in countries where it has operated. The emergence of the Africa Corps, a new organisation seemingly poised to assume many of Wagner’s operations, emphasises the strategic and economic value these activities provide for Russia. With the announcement in January 2024 that 100 Russian soldiers from the Africa Corps would deploy to Burkina Faso, it is clear that the Wagner model is one that will continue.