Introduction
Proxy Wars from a Global Perspective: Non–State Actors and Armed Conflicts, edited by Paweł Bernat, Cüneyt Gürer, and Cyprian Aleksander Kozera (Bloomsbury Academic, 2023), is a timely and comprehensive anthology which dissects the evolving nature of proxy warfare in the 21st century. As global conflicts increasingly involve non–state actors, this volume moves beyond Cold War–era frameworks to address the complexity of modern proxy wars, characterized by diverse sponsors, fluid motivations, and intricate state–non–state relationships. The editors define proxy warfare as “a way of outsourcing military tasks to a third party in an armed conflict environment” (p 2), encompassing a broad spectrum of actors, including states, militias, private military companies (PMCs), transnational organized crime groups, and even volunteer forces. Through a blend of theoretical analysis, historical context, and detailed case studies from regions such as Ukraine, Mali, Libya, Syria, Yemen, and Central Asia, the book argues for new conceptual models to understand these multi–actor, multipolar conflicts in a fragmented global order.
The book's primary audience includes academics, policymakers, and practitioners engaged in international relations, security studies, and political science. Scholars will find its global case studies and theoretical frameworks invaluable, particularly as they challenge outdated bipolar models and align with recent calls for reconceptualization (Rauta, 2021). Graduate and advanced undergraduate students will benefit from the book's clear prose and accessible examples—such as Russia's hybrid tactics in Ukraine or the Wagner Group's operations—making complex concepts approachable without sacrificing rigor. Military and security professionals, as well as policymakers in government and international organizations, will appreciate the operational analyses, which draw on the contributors’ military and law enforcement experience to offer practical insights for navigating grey–zone conflicts. The editors aim for broader accessibility, and while the specialized focus may limit appeal for casual readers, informed non–specialists with an interest in global security can engage with high–profile cases. However, some technical terms, such as ‘hybrid warfare’, may require prior familiarity, making it best suited to those with a foundational understanding of conflict dynamics.
1. CONTENT OVERVIEW
Spanning fifteen chapters, an introduction, and an afterword, the anthology is organized into three parts, offering a multidisciplinary exploration of proxy warfare that balances theoretical depth, empirical richness, and forward–looking paradigms.
1.1. Introduction: The Necessity for a Global Perspective
The editors lay the foundation by arguing that proxy warfare's ambiguity stems from its evolution beyond Cold War definitions. They advocate for a global perspective to capture the phenomenon's complexity, introducing an inclusive definition which frames proxy warfare as outsourcing military tasks in conflict environments. The introduction outlines the book's tripartite structure—theoretical foundations, case studies, and emerging paradigms—and positions it as a resource for academics, practitioners, and policymakers seeking to understand contemporary warfare (pp 1–8).
1.2. Part One: Theoretical and Historical Framework (Chapters 1–3)
This section establishes the conceptual and historical groundwork for analysing modern proxy warfare. Chapter 1, by Bernat and Kozera, critiques the term ‘proxy war’ for its ambiguity, tracing its evolution from ancient proxy conflicts to the present. They argue that 21st–century proxy wars, driven by diverse actors and motivations, differ qualitatively from Cold War proxies, necessitating new explanatory models. Chapter 2, by Newton, examines the historical and current proxy strategies of the U.S., from Cold War operations in the Philippines and El Salvador to recent efforts in Somalia. Newton highlights how proxies enable great powers to avoid direct confrontation, a strategy that remains relevant in multipolar conflicts. Chapter 3, by Gürer, applies theories of international relations—realism, liberalism, and constructivism—to explain state motivations for using proxies. Gürer advocates a multidisciplinary approach, arguing that no single theory fully captures the complexity of modern proxy dynamics. Together, these chapters provide a robust theoretical lens, blending historical context with analytical frameworks to prepare readers for the empirical analyses which follow (pp 11–60).
1.3. Part Two: Proxy Forces in Various Theatres of Armed Conflict: Case Studies (Chapters 4–13)
The core of the book, Part Two, presents ten detailed case studies which illustrate proxy warfare's global manifestations, focusing primarily on conflicts from the 2010s. The section begins with Ukraine: Chapter 4 (Bernat et al.) analyses Russia's hybrid proxy tactics in Crimea and Donbas from 2014 to 2022, detailing the use of local militias and covert forces. Chapter 5 (Sinai) explores Ukraine's counterstrategy, particularly its reliance on foreign ‘legionnaires’ as proxies, proposing their inclusion in proxy typologies. The focus shifts to Africa with Chapter 6 (Kaplan), which compares Cold War and post–Cold War insurgencies, predicting proxy warfare's persistence in unstable regions like the Sahel. Chapter 7 (Kozera) examines Mali, contrasting the Malian government's strategic use of proxies with France's tactical approach, highlighting how these strategies led to divergent outcomes. Chapter 8 (Popławski) frames the Central African Republic's conflict as a postcolonial proxy war, with France and Russia vying for influence through local armed groups. Moving to the Middle East, Chapter 9 (Sozer and Darcan) details Libya's fragmentation amid external sponsorship by Turkey, Qatar, and others, while Chapter 10 (Yüksel) compares U.S., Turkish, and Iranian proxy strategies in Syria, revealing competing interests. Chapter 11 (Wertman and Kaunert) analyses Iran's use of Palestinian groups as proxies against Israel, and Chapter 12 (Wither) challenges the oversimplified view of Yemen as a Saudi–Iranian proxy war, emphasizing local agency and complex tribal dynamics. Chapter 13 (Norlen and Kaura) examines Pakistan's diminishing control over the Taliban post–2021, reflecting shifts in proxy–sponsor relationships. Collectively, these chapters showcase the diversity of proxy actors—militias, volunteers, state–like entities, and even criminal networks—and their pivotal roles in shaping conflict dynamics across multiple regions (pp 61–224).
1.4. Part Three: Proxy Wars: The Emergence of a New Paradigm (Chapters 14–15)
The final section synthesizes the case studies and proposes innovative frameworks for understanding proxy warfare. Chapter 14 (Namli and Gürer) argues that transnational organized crime groups serve as proxies for states, particularly authoritarian regimes, expanding the conceptual boundaries of proxy warfare and aligning with research on the crime–terror nexus. Chapter 15 (Herd) consolidates the book's findings, identifying four defining features of contemporary proxy wars: multiple sponsors; fluid and often opportunistic motivations; complex cost–benefit trade–offs; and increasing convergence between sponsors and proxies. Herd advocates a post–Cold War paradigm which reflects the fluidity, interconnectedness, and multipolarity of modern conflicts. This section bridges empirical observations with theoretical advancements, offering a forward–looking framework for scholars and practitioners to navigate the evolving landscape of warfare (pp 225–256).
1.5. Afterword
The editors reflect on the Russia–Ukraine war, suggesting its conventional elements may be an outlier in a global security environment increasingly dominated by proxy strategies. They predict a rise in grey–zone conflicts, particularly in the context of U.S.–China strategic competition, and emphasize the book's relevance for anticipating future warfare trends. This brief but incisive section reinforces the anthology's call for new approaches to understanding and addressing proxy conflicts (pp 257–258).
2. EVALUATION AND CONTRIBUTIONS
The book's global scope, covering Eastern Europe, Africa, the Middle East, and Central Asia, sets it apart from region–specific studies, capturing proxy warfare's universality while highlighting regional variations. For example, Kozera's Mali analysis contrasts local and external strategies, while Yüksel's Syrian study delineates U.S., Turkish, and Iranian approaches. The integration of practitioner perspectives enhances practical value, with contributors drawing on military and security experience to ground discussions in operational realities, notably in the chapters about Ukraine. Theoretically, the book challenges Cold War frameworks, with Part One's critique and Part Three's new paradigm—emphasizing multiplicity and convergence—responding to scholars like Rauta (2021). The inclusion of unconventional proxies, such as organized crime groups, opens interdisciplinary avenues, aligning with research on the crime–terror nexus (Shelley, 2014). Accessibility, achieved through clear prose and prominent examples like the Wagner Group, ensures appeal to students, non–specialists, and academics alike.
The emphasis on accessibility occasionally compromises depth, particularly in Part One, where Gürer's theoretical overview skims complex paradigms like constructivism, limiting its appeal for advanced scholars. The case studies in Part Two, while comprehensive, lack a unifying framework, making synthesis challenging due to the diverse methodologies. The omission of Asia (beyond Afghanistan) and Latin America undermines the global perspective, with China's proxy activities warranting greater attention. The 2010s focus limits historical contextualization, missing opportunities to trace long–term trends, and the Afghanistan case feels underdeveloped compared to Ukraine or Syria. Technical concepts such as ‘hybrid warfare’ are only explained in brief, potentially confusing non–specialists, while advanced readers may miss cutting–edge methodologies such as network analysis.
The anthology enriches proxy warfare literature, complementing works by Mumford (2013), Groh (2019), and Rauta (2021). Its global case studies address gaps in Western–centric research, with Sub–Saharan Africa and Central Asia broadening the field's scope. The crime–proxy nexus in Chapter 14 aligns with Shelley's Dirty Entanglements (2014), positioning the book as a springboard for interdisciplinary research across security, criminology, and international relations. Practically, it offers policymakers lessons on the benefits of proxy strategies (e.g. Ukraine's legionnaires) and risks (e.g. Mali's fragmentation), with the afterword's focus on U.S.–China competition underscoring strategic relevance. The book engages broader debates about global order, referencing Bremmer's ‘G–Zero’ concept (p 247) to frame proxy warfare as a symptom of fragmented governance, aligning with Haass and Kupchan's calls for coordinated leadership (2021).
The lack of a cohesive framework reflects broader challenges in defining proxy warfare, as noted by Mumford (2013) and Rondeaux and Sterman (2019). A clearer typology—differentiating ideological, pragmatic, or criminal proxies—could sharpen analysis. The practitioner focus occasionally overshadows ethical questions, such as the human cost of proxy warfare or sponsor accountability, which Brown (2013) emphasizes. The afterword's prediction of increased proxy warfare requires nuance, as the Russia–Ukraine war's conventional elements suggest hybrid and conventional strategies may coexist, complicating forecasts.
Conclusion
Proxy Wars from a Global Perspective is a landmark anthology illuminating the complexities of modern proxy warfare. Its global scope, practitioner insights, and theoretical advancements make it essential reading for scholars, policymakers, and practitioners. Despite challenges in regional coverage and analytical depth, it succeeds in informing diverse audiences and inspiring further research. As grey–zone conflicts proliferate, this volume offers a vital guide to navigating the indirect battles shaping the 21st century.