Today I’m up at World Politics Review (paywalled) discussing Boko Haram’s violent, uneven decline, as well as the still-inadequate response by regional governments and militaries. If you read the piece, please share your thoughts in the comments.
Readers may be interested in the following opportunity: two postdoctoral fellowships for a research project covering parts of Morocco, Algeria, and Mauritania. The call for applications can be found here. The deadline for applications is March 20.
In early March, three jihadist groups in Mali and the Sahara released a video announcing that they have merged into a new group called Jama’at Nusrat al-Islam wa-l-Muslimin (The Group for Supporting Islam and Muslims). The jihadist groups involved are:
- the northern Malian Ansar al-Din (Defenders of the Faith or, if you prefer, Supporters of Religion),
- the central Malian Masina Liberation Front (where Masina refers to an early nineteenth-century Muslim polity whose theological outlook has little in common with contemporary jihadism),
- and the Saharan “emirate” of al-Qaida in the Islamic Maghreb (AQIM), including al-Murabitun Battalion.
The leader of the new group is Iyad Ag Ghali (b. mid-1950s), a Malian national and leader of Ansar al-Din. Ag Ghali’s career has been extremely complex, but one might summarize it crudely in two phases: a career as a relatively mainstream rebel (albeit with growing jihadist ties) until early 2012, and then a career in open jihadism since 2012. Other jihadist commanders appearing in the video are, from the viewer’s left to right:
- Amadou Kouffa, a Malian national who is leader of the Masina Liberation Front and a long-time associate of Ag Ghali
- Yahya Abu al-Hammam/Djamel Okacha, an Algerian national who has been emir of AQIM’s Saharan battalions since 2012
- Al-Hasan al-Ansari, deputy leader of al-Murabitun, AQIM’s most prominent battalion
- and Abu Abd al-Rahman al-Sanhaji, the “judge” of AQIM’s Saharan emirate
Many of the most important points about the video have already been made by Yvan Gichaoua here (French). Key points include the video’s emphasis on global jihadist (rather than local political) themes, and its strong message placing these Saharan groups under Al-Qaida’s banner, with specific pledges of allegiance to al-Qaida’s Ayman al-Zawahiri, AQIM’s overall emir Abd al-Malik Droukdal, and the Taliban’s Mullah Hibatullah. Gichaoua also points to the important fact that Mokhtar Belmokhtar, the infamous commander of al-Murabitun, is not in the video, perhaps because he is either dead or incapacitated. Gichaoua also remarks that the physical assemblage of these other leaders is striking in and of itself, given that the point of ongoing counterterrorism operations in the region is to disperse and weaken jihadist groups.
I would add three things:
- First, I see this as an administrative reorganization first and foremost. The move does not, it seems, either increase or decrease the number of jihadist fighters in the region. In other words, the groups are not necessarily greater now than the sum of their parts. So I would be skeptical of analyses proclaiming that this “changes the game.” After all, such administrative reorganizations are not new in the Sahara: AQIM has regularly promoted and demoted leaders, battalions have repeatedly broken off and rejoined, etc. Al-Murabitun has been involved in many such reorganizations: it originated as the merger of two breakaway AQIM units, which then subsequently rejoined AQIM. Moreover, Droukdal has had trouble – for years – imposing his will on the Sahara, and this reshuffle will not necessarily change that.
- Second, the anti-Islamic State message is not explicit, but neither is it hard to detect in the video. The video opens with the first part of Qur’an 3:103, “Hold firmly to God’s rope together and do not become divided.” That verse has been a key part of the Islamic State’s messaging to jihadis, as the Islamic State proclaims the need for unity. Jihadis pledging allegiance to the Islamic State, including breakaway units of AQIM, have invoked the verse to justify their decision to rally to the Islamic State’s banner. AQIM and its new (old) Saharan leader is making the same argument, except to say that al-Qaida should be the focal point of intra-jihadist unity. In that sense, the video may be aimed partly at defectors from AQIM to Islamic State, with the implication that they should rejoin the fold. That fits with prior AQIM statements, such as a 2016 interview with Abu al-Hammam (dead link, so I won’t post it) which frame the al-Qaida/Islamic State conflict as a kind of family dispute.
- Even if the video didn’t concentrate on local politics, the new group undoubtedly will continue attempting to insert itself and its violence in local northern Malian politics. Al-Sanhaji (Arabic) recently released an audio statement threatening the new “joint patrols” in northern Mali. The joint patrols, which I wrote about here, were the target of a major suicide bombing in January. The patrols are an important element of the slow, painful implementation of a 2015 peace accord. Ag Ghali and his allies want peace to fail.
On March 3, Niger’s government declared a state of emergency (French) in two of its seven regions while maintaining a state of emergency in a third.
The new state of emergency affects Tillabéri and Tahoua, two western regions on the border with Mali. Specifically, the state of emergency includes the departments of Ouallam, Ayorou, Bankilaré, Abala et Banibongou in Tillabéri and the departments of Tassara et Tillia in Tahoua. The declaration responds to recent attacks, including one in October that I covered here on the blog, as well as the recent killing of sixteen soldiers in an attack on a military patrol in Ouallam (French) and the recent killing of five gendarmes in Bankilaré. That last incident occurred after the state of emergency was declared.
The Nigerien government also maintained the state of emergency in Diffa, in the far southeastern part of the country near the borders with Nigeria and Chad. The government explained that “despite the relative respite observed in the Diffa region,” it wanted to keep exceptional security measures in place. Diffa has been the site of numerous attacks by the Boko Haram sect since 2015. The state of emergency in Diffa dates to February 2015.
As the cliché goes, Niger is in a “bad neighborhood” and its border zones are vulnerable to multiple sources of violence, whether emanating from Nigeria, Mali, or Libya. The northern Agadez region is not under a state of emergency, but the region (and the city of Agadez) face their own problems amid a new anti-smuggling crackdown. Going forward, then, there will be questions about what the states of emergency allow the Nigerien government to achieve in terms of security, or whether further security challenges are coming.
In late February, different factions in Mali agreed on a timetable for the installation of “interim authorities” in the three northern regions, Gao, Timbuktu, and Kidal. The interim authorities are mentioned in the 2015 peace accord (.pdf, French, p. 18). Per the accord, the authorities should have been installed three months after the signing of the accord, or around September 2015.
Given that the different factions were not even prepared to install the interim authorities until now, one can see how serious the obstacles to a durable political settlement are in northern Mali. The problems with the interim authorities closely parallel the problems surrounding “joint patrols,” which I wrote about for Global Observatory in January. The joint patrols are another important provision of the 2015 agreement. The problems for both the interim authorities and the patrols include continued disputes even after so-called agreements, as well as the threat of major violence against the actors attempting to implement those agreements (the joint patrols became the target of Mali’s deadliest-ever suicide bombing in Gao in January).
Regarding the interim authorities, “The government statement said…that the interim authorities would be instated in Kidal on Feb. 28 followed by Gao on March 2 and Timbuktu on March 3.”
The authorities arrived in Kidal, Gao and Menaka as scheduled (over some objections in Gao), but armed groups are already preventing the interim authorities from undertaking their functions in Timbuktu:
Armed groups took over parts of Timbuktu on Monday to prevent Malian interim authorities from being installed there under a peace pact meant to end years of lawlessness, the defense ministry said.
Residents reported sporadic gunfire across Timbuktu on Monday. Banks, schools and shops were shuttered up.
The main Tuareg faction involved in the resistance was the Council for Justice in Azawad, as Tuaregs call the Sahara desert that is their traditional homeland.
The Council itself was only formed in October 2016 (French), reflecting a key obstacle to peace: the proliferation of armed groups. The Council reportedly (French) represents the Kel Ansar, one the Tuareg confederations in Mali. Led by a former cabinet minister, the Council decries (French) what it sees as the Kel Ansar’s exclusion from the peace process. As with other armed groups, the Council can act – and now is acting – as a spoiler.
Other problems are not hard to foresee. If the joint patrols are a precedent, the interim authorities will themselves be targets for violence before too long. I say this not to advocate pessimism about the ultimate prospects for peace (after all, the first joint patrol recently did occur), but just to point out that the situation is very difficult and tense.
Nigerian President Muhammadu Buhari has been on extended medical leave in London since January 19, which has occasioned considerable anxiety and commentary in Nigeria and abroad. I wrote about the situation last week for Global Observatory, comparing Buhari’s absence to the absence of President Umaru Yar’Adua in 2009-2010.
I recommend two other takes:
- Chika Oduah, “Nigeria Proves a Missing President Isn’t Necessarily a Bad Thing” (I don’t necessarily agree, but the piece is well argued)
- Brandon Kendhammer, “The President Has Left the Country”
On February 13, President Donald Trump spoke by telephone with Nigerian President Muhammadu Buhari. Many observers, including me and Nigerian analyst Muktar Usman-Janguza, were impatiently awaiting for the White House to post a readout of the call, which it finally did yesterday. The delay, I should note, was offensive to some Nigerians in and of itself.
The main news coming out of the call was when Trump “expressed support for the sale of aircraft from the United States to support Nigeria’s fight against Boko Haram.”
There is a backstory here, dating to 2014, when the Obama administration blocked sales of US-made helicopters to Nigeria due to concerns about human rights violations by Nigerian security forces. As recently as December 2016, Nigeria purchased military aircraft from Russia and Pakistan after growing impatient with Washington.
Another part of the backstory, as former Ambassador to Nigeria John Campbell explains here, is that US security cooperation with Nigeria has also been limited for many years by the Leahy Amendment. The amendment prohibits US security assistance to foreign security force units that the US government believes have committed human rights abuses.
Some will see Trump’s offer to Buhari, then, as a change in policy, but I think this reflects more the momentum of the War on Terror (or whatever one is supposed to call it now) and the tendency of that momentum to wear down or override human rights concerns in the long term.
After all, in May 2016, the Obama administration expressed its willingness, pending Congressional approval, to “approve a sale of as many as 12 A-29 Super Tucano light attack aircraft to Nigeria.” (You can watch a demonstration of the Super Tucano here.)
The sale does not seem to have gone forward but, as the New York Times has reported, the willingness to approve it reflected a wider change of attitude in Washington toward Nigeria’s fight against Boko Haram. I believe two key moments that prompted that change: the kidnapping of the Chibok girls in April 2014, and the election of Buhari in March 2015. Those two events boosted those voices in Washington who argued that the US should ease its restrictions on security cooperation with Nigeria. Trump’s offer to Buhari is not a complete break with older policy, then, but rather a demonstration that those voices are continuing to win out over those who favor more restricted security cooperation.
This is the logic of the War on Terror, I believe: when policymakers or human rights organizations raise concerns about security force abuses, they will tend, over the long term and often in the short term, to be overruled by those whose primary concern in places like Nigeria is with killing jihadists. I would bet that a hypothetical President Hillary Clinton would have also eventually approved the sale of military aircraft to Nigeria. I say all this not to let Trump off the hook or to somehow praise him – I oppose Trump unequivocally – but to point out that some policy dynamics are bigger even than Trump.