The day after
the attack on the Banibangou convoy, details began to emerge: the
organized civilian militia, consisting of some eighty-four Djerma men on
motorcycles and headed by the mayor of Banibangou, had gone out in the
morning on patrol, reportedly intending to detain Peul herders. Around
9:30 am,
near the small village of Adab-Dab, the group was intercepted and
overwhelmed by ISGS fighters. Sixty-nine men from Banibangou
were killed.
The U.S. Embassy in Niamey released a statement condemning the
attack: “We maintain our commitment and partnership to the Nigerien
people and the Nigerien armed forces as we seek to eliminate violent
extremists and their godless ideology from the region.” The Nigerien
president Mohamed Bazoum declared two days of national mourning, and
took a helicopter to Banibangou, where he addressed the villagers. “If
you think that you can provide your own defense, that’s legitimate,” he
said. “But the one who must ensure your defense and on whom you must
rely is the state.”
It was difficult to take the president seriously. Between 2011 and
2019, Niger spent $875 million on defense, but an audit found that $320
million in contracts had been inflated or awarded through rigged bidding
processes. Beyond the corruption, Nigerien soldiers have conducted mass
arrests, and in some cases extrajudicial executions, of Peul herders
during counterterrorism sweeps. The National Human Rights Commission,
which relies heavily on information from Diallo’s organization, the
Council of North Tillabéri Herders, found that Nigerien soldiers had
disappeared or killed 136 civilians in Tillabéri in 2020. Seventy-two
bodies were later found in hastily dug mass graves; many were handcuffed
and blindfolded. To date, no soldiers have been prosecuted.
In Niamey, the conflict in the borderlands seems to
drive much of the local economy. According to the Observatory of
Economic Complexity, the top import to Niger is rice, followed by
“explosive ammunition,” a category that includes “bombs, grenades,
torpedoes, mines, missiles.” In addition to the Americans, Niamey hosts
some one thousand French soldiers, as well as detachments from Algeria,
Belgium, Canada, the Netherlands, Italy, and Spain; a UN peacekeeping
force for Mali; the European Union’s security attachés; and soldiers
from the G5 Sahel, a joint initiative among Burkina Faso, Mali, Chad,
Mauritania, and Niger. (Mali withdrew this summer.) Many of these
foreign troops, focused on a nebulous mix of counter-insurgency and
border-control efforts, slip in and out of the city in armored vehicles.
Often, they stay in new, gated hotels near the Kennedy Roundabout. At
the Radisson Blu hotel’s New York Restaurant, military contractors and
diplomats gather around the pool to sip fluorescent cocktails. One
night, I caught a glimpse of Linda Thomas-Greenfield, the
U.S. ambassador to the UN, as a convoy whisked her away from the plush
hotel to a UN Security Council event. The then commander of AFRICOM,
General Stephen Townsend, was also in town, meeting with the French. In
the garden of an Italian bistro designed to resemble a desert dwelling, I
overheard a man tell his companion, who worked for the UN, that he was
with the German special forces, who were here doing “intelligence
gathering” and “some advising.”
Three days after the attack, I stopped by the office of General
Mahamadou Abou Tarka, who oversees Niger’s High Authority for the
Consolidation of Peace. I wanted to ask him how all the foreign
militaries buzzing around Niamey had affected the conflicts near the
border. Tarka, wearing a taupe uniform with a green beret, was
dismissive. “We have, what, twenty of the Italian military training our
people, or we have thirty-five Spaniards training the gendarmerie?” To
Tarka, the number of foreign troops was negligible. Far more pressing,
he said, was the need to build up their own forces. The government had
roughly thirty-five thousand troops to control an expanse of territory
that Tarka estimated would require closer to one hundred and fifty
thousand.
“You know, here is not Afghanistan,” he said over the hum of a fan.
“We are a functioning state, we have national armed forces, and we were
not created by the Americans. Our government is a legitimate one. That’s
why we are asking for help with helicopters and logistics. We want
military fortresses on the borders—France is helping us do that.
America, not yet.” Yet toward the end of our interview, Tarka seemed
skeptical that any amount of resources would be enough to stabilize the
country. He even suggested that some Nigeriens should learn to live
under terrorist groups. “It’s better to pay a zakat and live in
dignity than to live in a refugee camp and become a beggar,” he said.
“Of course, it’s better if we can offer security. But the military of
Niger can never secure this big country.”
The United States maintains that its mission in the
Sahel is to promote development and diplomacy, but as I spoke to more
people in Niamey, it was difficult to discern a coherent strategy.
Diplomacy seemed subsumed by security. Years ago, Diallo had received
conflict-mediation training from the State Department. But recently, the
department’s focus shifted to local police forces. USAID funds
humanitarian programs across the country, responding to acute crises,
but there is little emphasis on addressing governance and human rights
abuses, and several aid agencies told me their access to the borderlands
was limited by the government. When AFRICOM offered me the opportunity
to speak with the commander of the U.S. Special Operations Task Force
for North and West Africa, who was visiting from Chad, I hoped that he
could offer some insight into the military’s long-term objectives.
Four nights after the attack, I headed to Air Base 101 with the
photographer Nicole Tung. The reporting parameters were strict: the
commander could only be identified by rank, no photos were allowed, and
we were denied a general tour. The base, the first stop for most Special
Forces troops stationed in the region, is located next to Niamey’s
small international airport, near a neighborhood whose houses are jammed
so tightly together it’s known as the Netherlands. Street vendors
hawked plump watermelons and fiery peppers. Young Nigerien soldiers
manned the complex’s gated entrance, where a Special Forces liaison
picked us up in a black SUV, then guided us through a maze of
barricades. We passed a contingent of the Italian Army, who we were told
were renting land from the United States. During their downtime, the
driver said, they cook homemade pasta.
We arrived at the Special Forces unit of the base, which consisted of
a series of non-descript containers next to an empty, open-air bar with
a colorful sign that read, welcome to niami!
We surrendered our phones and entered an immaculate, windowless beige
chamber. There we met the task force commander, a reticent and trim,
middle-aged man in uniform, and the Advanced Operating Base commander
for Niger, who wore a camo baseball cap and looked a bit younger and
more relaxed.
I asked them why, despite its sophisticated aerial surveillance, the
United States was seemingly incapable of predicting attacks like the one
in Banibangou. “We just can’t look everywhere all at the same time,”
said the task force commander. “That is, unfortunately, not a realistic
expectation.” His counterpart jumped up and fetched a map of Tillabéri,
which he spread out on the table to illustrate the distances between
villages.
The task force commander emphasized that U.S. Special Forces are not
allowed “anywhere close” to the front lines. “We train [Nigerien troops]
at the tactical level, and then enhance their capabilities once they go
out and execute operations, based off intel collected both on the
U.S. and the Nigerien side,” the AOB commander said.
I pressed them on what such remote supervision looked like in
practice, but the task force commander refused to go into more detail.
Later, the AOB commander told me that the U.S. military had seeded the
idea for a large-scale operation conducted by Niger and Burkina Faso
that took months of planning and high-level coordination. He did not
name it, but I surmised that this was an operation called Taanli 1,
which, according to an enthusiastic press release from the Burkina Faso
government, “neutralized 100 terrorists” affiliated with JNIM. There
was no press release from AFRICOM.
In the conference room, I asked question after question about
AFRICOM’s strategy in Niger, but gleaned very little. As for the
allegations of extrajudicial killings of Peuls and other abuses by
Nigerien soldiers, the task force commander agreed they were a concern,
but assured me that “Niger actually does a good job of investigating.”
When I asked if military responses to violent extremism could ever end
the attacks in Tillabéri, the commander paused. The men looked at each
other and laughed awkwardly. “That’s a good question,” the AOB commander
said. “The security efforts help buy space and time to try to have
other development efforts, or new governance efforts,” explained the
other. It was unclear what reforms the United States was actually
willing to support.
I had also requested to visit Air Base 201, the drone site in Agadez,
but the Air Force did not like the idea. So one evening, I headed
downtown to the distressed Grand Hotel, where I met an investigative
journalist from Agadez named Ibrahim Diallo (no relation to Boubacar).
His news organization, Aïr Info, documented the crash of three
armed drones in the northern desert, near the Libyan border. At night,
said Diallo, the base pollutes the sky with light and the sound of
buzzing aircraft.
When 201 opened, he went on a site visit, but the Air Force refused
to answer most of his questions. The Americans are seen in town only on
occasion, but rumors of their presence abound: how they dig tunnels
under cover of night, and use their planes to smuggle gold out of the
country. The speculation, Diallo said quietly, pointed to a growing
distrust of the U.S. military presence. “The Americans don’t have
friends. Just like any other army, they only have interests.”
Diallo worried that the increasing number of foreign soldiers in
Niger was steering the country toward ethnic conflict. “All the
traditional mechanisms to resolve conflicts—they are putting them aside.
War becomes the only solution,” he said. Soon, he worried, “Peuls will
be persecuted everywhere. They’ll be killed. It’s started already, but I
hope that I’m wrong.” (A few months later, Diallo’s fears were
confirmed when mercenaries from Russia’s Wagner Group began fighting in
Mali alongside the army; on one “counter-terrorism operation” in the
town of Moura, they are believed to have massacred some three hundred
people, predominantly Peuls.)
The Nigerien government has taken tentative steps toward negotiating
with the insurgent groups, including ISGS, and many other African
countries and regional institutions see mediation as essential to ending
the spiraling conflict. But the French and Americans remain firmly
opposed to dialogue. “I heard the Americans won’t support negotiations,
but why not?” asked Boubacar Diallo. “They did in Afghanistan.”
I understood Diallo’s point, but the two conflicts do not strike me
as neatly analogous. More than two thousand American service members
died in Afghanistan. Public opinion had soured on the occupation, and
though many in the military wanted to stay, politicians were adamant
that it was time to leave. In Niger, there is no such pressure. The
over-the-horizon approach means that there have been few American
deaths, and little media attention. Far from scrutiny, the war on terror
marches mindlessly on.