Mali’s armed groups fill a government vacuum – addressing this is key to ending the violence

“Mali has been in a state of political turmoil since 2012. That year saw a military coup as well as armed groups taking over northern regions of the west African country. In the intervening years, efforts at establishing transitional governments have failed, culminating in the military junta dissolving and banning all political parties in May 2025 . In addition, the country has seen waves of military interventions by outside players like France, the US and most recently Russia. All have invested heavily in trying to contain the extremist threat in Mali. But groups linked to al-Qaeda and the Islamic State have continued to expand their influence . And in late April 2026 the military government found itself having to fend off coordinated attacks from separatists and jihadists across the country. The defence minister, General Sadio Camara, was killed . Foreign interventions over the past decade have often misunderstood what was happening on the ground. Extremist groups have capitalised on issues such as land disputes, corruption, and resource competition to gain legitimacy, often aligning with the community’s tensions . The weakness of state institutions and security forces has allowed groups such as Jamaat Nusrat al-Islam wal-Muslimin (JNIM) and the Islamic State in the Greater Sahara (ISGS) to consolidate power. These groups have adapted by forming alliances and tailoring their narratives to local grievances, prioritising immediate issues over ideological objectives. We are political scientists who have researched the security situation in Mali and the Sahel. Our recently published paper showed that non-state armed groups in the Sahel, particularly in Mali, have emerged as key power brokers, shaping local governance by filling gaps left by weak state institutions. While external actors such as France, the US and Russia have prioritised counter-terrorism and state-building , they often overlook the governance functions of non-state armed groups. These groups often provide essential services and gain local legitimacy. Recognising the role of armed groups as local power holders does not mean accepting or legitimising their actions. However, ignoring this reality has led to policies that miss the mark. When interventions focus only on military solutions, they risk misunderstanding why people interact with these groups in the first place. Our findings challenge conventional interventions that focus solely on defeating non-state armed groups or reinstating centralised state control. We argue that security solutions alone are insufficient. We advocate for a more nuanced approach that integrates the potential for non-state armed groups when it comes to governance, legitimacy and local agency. Non-state armed groups have provided governance over territories in countries like Colombia, Syria and South Sudan, among others. Armed groups as de facto authorities Armed groups in Mali are not just fighting forces. In many parts of the country, they play a more complex role. It is difficult to estimate the exact number of groups operating within Mali. The largest and best known , Jama’at Nusrat al-Islam wa al-Muslimeen, is a coalition of five organisations and claims to have over 10,000 fighters in the country. In central and northern Mali, bordering Algeria, the state is often distant, absent or mistrusted. Armed groups step into this vacuum. They settle disputes, enforce rules, collect taxes, and sometimes provide a basic sense of order . For communities living with daily insecurity, these functions are not abstract; they shape everyday life. Our study established that this does not necessarily mean the population agrees with these groups or supports their ideology. Many do not. However, when there are few alternatives, people adapt. They follow the rules because they need to survive, not because they believe in them. This distinction is important. This helps explain why these groups are so difficult to dislodge. Their strength does not come only from weapons but also from how deeply they are embedded in local realities. Why military strategies fall short International efforts have largely focused on fighting these groups and rebuilding the authority of the Malian state. Although well intentioned, these kinds of interventions often overlook something essential: what happens to the spaces these groups leave behind? An example is France’s 2013 intervention. The French army helped the Malian army to regain control of the northern part of the country from advancing Islamists during Operation Serval . The aim was to stop extremist forces from advancing to Bamako. This did not end the conflict. Many fighters moved to rural areas where the state had little presence and built ties with local communities. In central Mali, where cattle farming is a key source of income, this dynamic contributed to the spread of violence between Fulani and Dogon communities, reinforcing grievances exploited by extremist groups. Simultaneously, attempts to strengthen state institutions have struggled. In some places, security forces are seen as ineffective and even abusive. Faced with this reality, people often turn to whoever can offer some level of predictability and protection, even if that actor is an armed group. External involvement has also become increasingly fragmented. France’s withdrawal , rising anti-western sentiment, and the arrival of Russian-linked forces have created a crowded and sometimes conflicting intervention landscape. Different actors bring different agendas, and their presence does not always translate into greater security. In some cases, it can even worsen things by reinforcing tensions or weakening trust in already fragile institutions. Caught in the middle, civilians make difficult choices daily. Their decisions are rarely ideological but rather about survival. Rethinking the response We conclude from our findings that a more grounded approach would begin by listening to local realities. It would address the gaps that allow armed groups to take root. This means improving access to justice and security, supporting local institutions, and taking grievances seriously. It also means recognising that legitimacy is built from the ground up, not imposed from above. Mali’s experience shows that there are clear limits to what military force can achieve on its own. As long as interventions overlook the everyday realities of governance and survival, they are unlikely to bring about lasting change. Until that shift happens, armed groups will remain hard to dislodge, not only because they can fight but also because, in many places, they have become part of how life is organised. Norman Sempijja is affiliated with Mohammed VI polytechnic University and based at the Faculty of Governance Economics and Social Sciences. Mouhammed Ndiaye does not work for, consult, own shares in or receive funding from any company or organisation that would benefit from this article, and has disclosed no relevant affiliations beyond their academic appointment.

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