https://crsreports.congress.gov
April 26, 2023
Russia’s Wagner Group in Africa: Issues for Congress
Overview
The Wagner Group, nominally a private military company
(PMC) with ties to the Russian state, has expanded its
presence in Africa over the past six years. Wagner provides
security services in several African countries, and affiliates
are reportedly involved in mining and commercial
activities. Wagner has been implicated in human rights
abuses in Africa, including killings and torture. In January,
the United States designated Wagner as a Transnational
Criminal Organization (TCO), citing, in part, its activities
in Africa. See also: CRS In Focus IF12344, Russia’s
Wagner Private Military Company (PMC).
The Wagner Group’s role in Africa appears to support a
broader effort by Moscow to challenge and disrupt Western
influence at relatively low cost. Politically connected
Russian elites may also benefit from Wagner’s economic
activities. In addition to leveraging Moscow’s Cold War-era
ties, Wagner has exploited the vulnerabilities and ambitions
of particular African leaders. It also has leveraged (and
sought to stoke) local grievances and resentment of Western
countries, particularly former colonial power France.
U.S. officials have criticized the Wagner Group’s
“predatory” activities in Africa, asserting that they are
destabilizing, exploitative, and an extension of Russian
official policy. Under Secretary of State for Political Affairs
Victoria Nuland testified to Congress in January 2023 that
Wagner’s access to gold mines in Mali and the Central
African Republic (CAR) “directly funds” operations in
Ukraine.
Key Areas of Activity
U.S. State Department and Defense Department officials
have stated that Wagner is active in CAR, Libya, Mali, and
Sudan. Wagner has also engaged in outreach to Burkina
Faso, and reportedly has sought to destabilize pro-Western
leaders in countries such as Chad. In 2019, Wagner
personnel deployed to Mozambique to aid
counterinsurgency operations against a local Islamic State
affiliate, but withdrew after heavy casualties. Some reports
suggest Wagner may be active in other African countries in
less visible ways. Wagner founder Yevgeny Prigozhin
reportedly oversees a wider network of entities involved in
disinformation and electoral processes in Africa.
The countries where Wagner openly operates share some
attributes, notably domestic insurgencies and fraught
relations with traditional donors. Mali and Sudan are under
military rule, as are Burkina Faso and Chad. CAR and Mali
are former French colonies, as are Chad and Burkina Faso.
Malian and Burkinabè officials have cited frustrations over
France’s counterterrorism operations, and diplomatic
tensions led French troops to exit both countries in 2022-
2023. In CAR, France ended a military stabilization mission
prior to Wagner’s entry. In Libya, Wagner is aiding an
armed group that has sought state power.
Figure 1. Key African Countries with Wagner Activity
Source: Public statements by U.S. officials, 2022.
U.S. officials have asserted in statements and testimony that
the Wagner Group’s abuses and economic exploitation
undermine stability in countries where it operates.
Wagner’s difficulties in Mozambique may also have hurt its
reputation. Several African leaders, including the Presidents
of Ghana and Niger, have publicly expressed concern about
Wagner’s activities in neighboring countries.
At the same time, some leaders may view the Wagner
Group as furnishing valuable assistance that other partners
are unwilling or unable to provide. Wagner’s support to the
fragile government of CAR helped defend the capital
against rebel assault in early 2021; in both CAR and Mali,
Wagner’s logistical support appears to have enabled
national militaries to expand operations against
insurgents—albeit accompanied by significant abuses.
Leaders chafing at arms embargoes (as in CAR) or human
rights criticism (as in Mali) may view the Wagner Group as
a counter-balance to Western donor influence. Some leaders
appear to perceive Wagner as sharing a preferred scorched-
earth approach to counterinsurgency. Wagner’s partnership
with the Malian junta against French postcolonial influence
may also appeal to other leaders or contenders.
CAR. The Wagner Group reportedly first entered CAR
after Russia obtained an exemption to the U.N. arms
embargo in 2017 to provide weapons to CAR’s military.
Russia then sent “instructors” (including Wagner personnel)
to train local soldiers. Press and think-tank reports estimate
that 1,000 to 2,000 Wagner personnel operate in CAR,
where they have played a prominent role in military
operations against rebel groups since 2021. Wagner
personnel also provide personal protection to President
Faustin-Archange Touadera and serve as his advisors.
Wagner affiliates are reportedly active in private security,
mining, and other commercial sectors.
Mali. Mali’s military junta reportedly contracted the
Wagner Group in late 2021 to support combat operations
against Islamist insurgents. This followed an increase in
official Russian arms sales to Mali. About 1,000-1,500
Wagner personnel may operate in Mali, per press reports.
