Recommendations & Conclusions
39 items
1
Conclusion
Seventh Report - Guns for gold: the Wag…
Accepted
The Wagner Network is a collection of individuals and entities linked to Yevgeny Prigozhin and undertaking military, economic, political and influencing operations internationally. It formed in 2014 and began its military activities in Ukraine, where it has had sustained involvement. The network subsequently expanded to several other countries in Africa …
Government response. The government agrees with the committee's description of the Wagner Network, stating it prioritizes intelligence gathering, has sufficient resources to track Wagner, and continually assesses the group and its impact through various sources and international partners. It confirms ongoing monitoring …
Foreign and Commonwealth Office
2
Conclusion
Seventh Report - Guns for gold: the Wag…
Accepted in Part
The Wagner Network is highly opportunistic and not a straightforward proxy for Russia, even though the Russian state has sometimes directed, facilitated, and supported its military operations, notably in Libya and Ukraine. Even when the network has acted purely in its own economic interests, Russia is likely to have benefited …
Government response. The government partially agrees with the committee's analysis of the Wagner Network, outlining its ongoing use of sanctions to deter and disrupt malign Wagner activity, including recent designations of 13 individuals and businesses involved in Mali, CAR, and Sudan, and …
Foreign and Commonwealth Office
3
Conclusion
Seventh Report - Guns for gold: the Wag…
Not Addressed
Host governments and other non-regime actors must perceive benefits from engaging with the Wagner Network, because they consider it the most effective form of protection and security. There are examples of its fighters furthering a regime’s security objectives, even if this meant neutering political opposition.
Government response. The government's response begins by stating 'Disagree' but then discusses the importance of close coordination on sanctions with the EU and US, and later mentions travel bans, none of which directly address the committee's observation regarding host governments' perceptions of …
Foreign and Commonwealth Office
4
Conclusion
Seventh Report - Guns for gold: the Wag…
Accepted
There is a significant gap between perception and capability when it comes to the Wagner Network. Despite the continued belief by some that inviting them into a country will result in benefits, the reality is that regimes pay a high price for working with the Wagner Network. The original outcomes …
Government response. The government agrees with the committee's assessment of the Wagner Network's harmful impact and atrocities, demonstrating this by proscribing the Wagner Group as a terrorist organization on September 15th, making support for it a criminal offense and enabling the seizure …
Foreign and Commonwealth Office
5
Conclusion
Seventh Report - Guns for gold: the Wag…
Accepted
There are serious national security threats to the UK and its allies of allowing the network to continue to thrive, not to mention devastating human consequences, including contributing to the refugee crisis for example, Sudan. (Paragraph 30) Guns for gold: the Wagner Network exposed 53
Government response. The government partially agrees with the committee's observation, highlighting its ongoing efforts to counter Wagner's destabilising influence and promote stability in Africa through diplomatic, defence, and development support, including £63.7m spent via the CSSF Africa in 2022/23.
Foreign and Commonwealth Office
6
Conclusion
Seventh Report - Guns for gold: the Wag…
Acknowledged
Over the past year and a half, the Russia-Ukraine war eroded the Wagner Network’s deniability and Prigozhin’s public arguments with the Russian Ministry of Defence confirmed the network’s long-suspected links to the Russian state. The brutality of its fighters in Ukraine is appalling but not atypical. So long as the …
Government response. The government partially agrees with the observation, stating its International Development Strategy addresses conflict and fragility in low-income countries, with ODA allocations prioritising these areas, and an additional £2.5 billion over two years for refugees, while noting no plans to …
Foreign and Commonwealth Office
7
Recommendation
Seventh Report - Guns for gold: the Wag…
Accepted
We recommend that the Government explicitly states that it opposes the co-operation of any country with the Wagner Network, or future iterations thereof, due to the security threats of the ‘Wagner model’ of business and governance. Where countries can be incentivised not to partner with the network or to re-engage …
Government response. The government agrees with the recommendation, stating it has a dedicated team and Senior Official coordinating its response to Wagner and driving international cooperation. It outlines ongoing efforts, including monitoring activities, collecting evidence, and addressing conflict-related sexual violence through its …
Foreign and Commonwealth Office
8
Conclusion
Seventh Report - Guns for gold: the Wag…
Accepted
Supporting Ukraine militarily is the Government’s priority when it comes to countering the Wagner Network. We fully support the continued supply of defence assistance and wider support to Ukraine as it fights to liberate itself from Russian illegal occupation. Through this, the UK has enabled Ukrainian Armed Forces to challenge …
Government response. The government agrees with the conclusion, welcoming the support for its priority. It outlines increased efforts to highlight Wagner's abuses, enhanced policy coordination, existing sanctions, and commits to consider further designations, improve sanctions enforcement, and explore additional measures to counter …
Foreign and Commonwealth Office
9
Conclusion
Seventh Report - Guns for gold: the Wag…
Accepted
However, it is a significant failing to see the Wagner Network primarily through the prism of Europe, not least given its geographic spread, the impact of its activities on UK interests further abroad, and the fact that its wealth creation sits largely in Africa.
Government response. The government partially agrees with the conclusion, explaining its new four-strand approach to countering state threats outlined in the Integrated Review Refresh, which takes a 'whole of government view' and uses a full range of powers to tackle organizations like …
Foreign and Commonwealth Office
10
Conclusion
Seventh Report - Guns for gold: the Wag…
Accepted
The Government believes that it is becoming more important to consider the network’s activities, although it did not say where it would do so. In February 2023, the FCDO told us there was now “much more activity” in Government to understand and respond to the network than there had been …
Government response. The government partially agrees with the conclusion, detailing its ongoing engagement with international legal frameworks related to PMSCs. It commits to engaging with the International Code of Conduct Association to advance debate on definitions, monitoring UN Convention progress, and promoting …
Foreign and Commonwealth Office
11
Conclusion
Seventh Report - Guns for gold: the Wag…
Acknowledged
The Wagner Network began its activities in 2014. By early 2022, when the Government began to invest greater resource in understanding the network, Wagner fighters had already undertaken military deployments in at least seven countries. It is deeply regrettable that it took this long, and that the Government continues to …
Government response. The government partially agrees with the conclusion, accepting the need to tackle Wagner and the value of declassifying intelligence where feasible. It highlights its efforts to expose Wagner's activities and states it has recently enhanced communication channels, particularly in Africa, …
Foreign and Commonwealth Office
12
Conclusion
Seventh Report - Guns for gold: the Wag…
Accepted
We have received no evidence of any serious effort by the Government to track the Network’s activities in countries other than Ukraine.
Government response. The government agrees that intelligence gathering on Wagner's activities is a priority and states it has sufficient resources and ongoing efforts to track the network globally, regularly assessing its impact and coordinating with international partners.
Foreign and Commonwealth Office
13
Recommendation
Seventh Report - Guns for gold: the Wag…
Accepted
We recommend that the Government improve its intelligence-gathering on the Wagner Network’s activities in a wider range of countries, particularly in the countries where 54 Guns for gold: the Wagner Network exposed we have medium-confidence of attempts at Wagner involvement. This intelligence should make use of network-mapping capabilities. A cross-Government …
Government response. The government agrees intelligence gathering on Wagner is a priority and confirms it has sufficient resources, uses network-mapping capabilities, and continually refreshes its understanding through extensive monitoring and international cooperation. It also states that a cross-Government taskforce on Wagner is …
Foreign and Commonwealth Office
14
Conclusion
Seventh Report - Guns for gold: the Wag…
Accepted
The UK’s efforts to sanction the Wagner Network are underwhelming in the extreme, compared to those of the European Union and the United States. The responses from the Minister leave us with limited confidence that the UK coordinates effectively with its allies to share intelligence on the Wagner Network and …
Government response. The government partially agrees, stating that the Wagner Group was fully designated in 2022, and it continues to use sanctions policy, designating 13 additional individuals and businesses in July. It explains that its sanctions regime has different statutory requirements and …
Foreign and Commonwealth Office
15
Conclusion
Seventh Report - Guns for gold: the Wag…
Accepted
The Government claimed that its sanctioning of the ‘Wagner Group’ automatically covered all the entities that the Group owns or controls. This approach under- appreciates the complexity of the network. It is also completely unrealistic. It leaves both enforcement agencies and implementing organisations, such as banks, estate agents and other …
Government response. The government partially agrees, reaffirming that the Wagner Group was fully designated in 2022 and explaining that the UK's sanctions regime relies on 'ownership and control' provisions, meaning subsidiaries are not designated separately. It also notes recent additional designations and …
Foreign and Commonwealth Office
16
Conclusion
Seventh Report - Guns for gold: the Wag…
Not Addressed
The Minister had no specific knowledge of work within his Department to analyse whether Wagner activities undermine the financial impact of UK sanctions on the Russian war machine. Despite finding it “likely”, he could not confirm that the FCDO had had any input to HM Treasury’s unwise decision to issue …
Government response. The government's response outlines its general sanctions policy and recent designations against the Wagner Group but does not address the committee's specific concerns about ministerial knowledge, FCDO and Treasury coordination, or sanctions waivers for Prigozhin.
Foreign and Commonwealth Office
17
Recommendation
Seventh Report - Guns for gold: the Wag…
Accepted in Part
We recommend that the Government move faster and harder in sanctioning Wagner- linked individuals and entities. Specifically, it should: (Paragraph 58) (a) Sanction all individuals and entities provided in Appendix 1, which the United States and European Union have already targeted but which the UK has not; (b) Consider bringing …
Government response. The government partially agrees, highlighting recent designations of 13 Wagner-linked individuals and businesses in July, some of which were not targeted by the EU or US. It explains that the UK's sanctioning ability depends on building individual cases under its …
Foreign and Commonwealth Office
18
Recommendation
Seventh Report - Guns for gold: the Wag…
Rejected
We recommend that the Government establishes a specific and regular mechanism for coordinating with the United States and the European Union over Wagner- linked sanctions; it should report back to us on what these mechanisms are, and how frequently and effectively they are being used.
Government response. The government explicitly rejects the recommendation, stating that strong coordination mechanisms are already in place with the EU and US, including frequent working-level engagement, a quarterly bilateral format with the EU, and a newly established UK-U.S. Strategic Sanctions Dialogue.
Foreign and Commonwealth Office
19
Recommendation
Seventh Report - Guns for gold: the Wag…
Accepted in Part
We further recommend that the Government prioritises introducing and enforcing travel bans for Wagner-linked individuals as a likely deterrent to involvement in the network, in particular working with Turkey, a popular holiday destination for Russians.
Government response. The government partially agrees that travel bans have a deterrent effect but states that UK sanctions have limited impact on travel to Turkey. They commit to continuing discussions with international partners on possible sanctions or travel bans they could adopt.
Foreign and Commonwealth Office
20
Conclusion
Seventh Report - Guns for gold: the Wag…
Accepted
In the public interest, we have compiled Wagner-linked names that are already a matter of public record, as identified via our commissioned open-source research (see Appendix 2). In doing so, we hope to challenge the mystique that the Wagner Network cultivated in many countries, make it as difficult as possible …
Government response. The government acknowledges the committee's compilation of Wagner-linked names, stating they already use sanctions policy to deter and disrupt malign Wagner activity, having designated the Wagner Group in its entirety and recently sanctioned 13 additional individuals and businesses.
Foreign and Commonwealth Office
21
Recommendation
Seventh Report - Guns for gold: the Wag…
Accepted in Part
We implore the Government to urgently assess these names and impose sanctions on these individuals and entities if the necessary threshold is met.
Government response. The government partially agrees, highlighting existing sanctions against the Wagner Group and its former leader, and recent designations of 13 individuals and businesses. It notes the limitations of its sanctions regime and will consider the committee's provided analysis for further …
Foreign and Commonwealth Office
22
Conclusion
Seventh Report - Guns for gold: the Wag…
Acknowledged
There is an opportunity to disrupt the Wagner Network at a time when its future is uncertain.
Government response. The government agrees there is an opportunity to tackle Wagner and describes existing efforts such as coordinated action with partners, declassification and sharing of intelligence, and stepped-up communications to expose the group's activities.
Foreign and Commonwealth Office
23
Recommendation
Seventh Report - Guns for gold: the Wag…
Accepted
We recommend that the Government seizes this opportunity and works with international partners to deter countries from engaging with the Wagner Network, using a carrot and stick approach.
Government response. The government agrees on the need to tackle Wagner with coordinated action and a mix of incentives, outlining existing approaches including declassification of intelligence and increased communication efforts to expose the group's activities.
Foreign and Commonwealth Office
24
Recommendation
Seventh Report - Guns for gold: the Wag…
Accepted in Part
As the Government improves its intelligence on the network, it should declassify it strategically and share it with countries that are considering engaging with the Wagner Network, to demonstrate the organisation’s destabilising effects, following the lead of the United States administration.
Government response. The government partially agrees on the potential value of declassification and sharing intelligence but notes it's not always possible due to risks. It states that it has already stepped up communication channels to expose Wagner's activities to demonstrate its destabilising …
Foreign and Commonwealth Office
25
Recommendation
Seventh Report - Guns for gold: the Wag…
Accepted
The Government should offer a genuinely compelling alternative to priority countries in need of investment and security partnership, in collaboration with partners. Priority countries are especially likely to be neighbouring countries to those where the Wagner Network is engaged. A compelling alternative may involve customising packages of military, aid and …
Government response. The government describes its existing approach to offering security and development support to partner countries, noting it provides long-term diplomatic, defence, and development support tailored to individual African countries, with a focus on states like Nigeria, South Africa, Kenya, Ethiopia, …
Foreign and Commonwealth Office
26
Recommendation
Seventh Report - Guns for gold: the Wag…
Not Addressed
In its response to this report, the Government should set out the factors it will assess in determining whether countries are priorities for UK security partnerships. These factors should include (but not be limited to): (Paragraph 71) (a) the UK’s capacity for influence in a specific country; (b) the level …
Government response. The government describes its existing security partnerships and support for African countries but does not explicitly set out the specific factors it assesses when determining priority countries for UK security partnerships as requested.
Foreign and Commonwealth Office
27
Recommendation
Seventh Report - Guns for gold: the Wag…
Rejected
The Government should revive its previous commitment to channel 50% of Official Development Assistance to fragile and conflict-affected countries and regions. The Government should also revive its 2019 manifesto commitment to spending 0.7% of the UK’s Gross National Income on Official Development Assistance at the earliest opportunity, in light of …
Government response. The government has no plans to reintroduce the commitment to channel 50% of ODA to fragile and conflict-affected states. It remains committed to spending 0.7% of GNI on ODA once specific fiscal tests are met, which are currently not satisfied.
Foreign and Commonwealth Office
28
Recommendation
Seventh Report - Guns for gold: the Wag…
Accepted
As a ‘stick’, the Government should proscribe the Wagner Network as a terrorist organisation, recognising that—while there are risks of doing so—there are also risks of failing to do so, when the Network appears to meet the legal criteria. (Paragraph 73) What next?
Government response. The government accepted the recommendation and laid a draft proscription order which came into force on 15 September, officially adding the Wagner Group to the list of proscribed terrorist organisations and making support for it a criminal offence.
Foreign and Commonwealth Office
29
Conclusion
Seventh Report - Guns for gold: the Wag…
Acknowledged
The last decade has shown that the Wagner Network is highly effective at reconfiguring itself. We expect its activities to continue in some form, as they are too valuable, especially financially, to the Russian state to be lost. The question is not just what happens to the Wagner Network but …
Government response. The government agrees with the committee's assessment of the Wagner Network's adaptability and destabilizing impact, noting the broader trend of Russia using Private Military Security Companies as proxies. It commits to paying close attention to the network's evolution and exploiting …
Foreign and Commonwealth Office
30
Recommendation
Seventh Report - Guns for gold: the Wag…
Accepted in Part
We recommend that the UK Government takes advantage of the current uncertainty and seeks to disrupt the Wagner Network. In particular, at a moment when its usual supply channels from the Russian Ministry of Defence are in doubt, the Government should do all within its power to restrict the flow …
Government response. The government agrees to disrupt the Wagner Network, stating it has increased efforts in communications, assessment, and policy coordination, and will consider further sanctions designations and continue work with partners to improve sanctions enforcement and counter illicit finance.
Foreign and Commonwealth Office
31
Recommendation
Seventh Report - Guns for gold: the Wag…
Accepted
For nearly 10 years, the Government has under-played and under-estimated the Wagner Network’s activities, as well as the security implications of its significant expansion. The Government has not told us anything specific that it is doing to challenge the network’s influence and impunity in countries other than Ukraine, beyond sanctions …
Government response. The government states it has a dedicated team coordinating its response to the Wagner Group and Russian PMSCs, implying the structural issue raised by the committee is being addressed. It also commits to continuing bilateral and multilateral work, dedicating new …
Foreign and Commonwealth Office
32
Conclusion
Seventh Report - Guns for gold: the Wag…
Accepted
The Wagner Network is merely the best-known and documented example of a PMC acting deniably on behalf of a state to further its interests and enrich its elites, at the expense of local citizens’ safety and stability in the long term – as well as security and stability in Europe. …
Government response. The government partially agrees with the concern, outlining its new four-strand approach to countering state threats from organisations like the Wagner Group, which includes building deeper understanding, increasing resilience, deepening cooperation, and using full powers to contest malign PMSC activities.
Foreign and Commonwealth Office
33
Recommendation
Seventh Report - Guns for gold: the Wag…
Accepted
The Government should take a more strategic and coherent approach to addressing the challenges of this network and other proxy ‘PMCs’ by: (Paragraph 84) (a) assigning clear responsibility for the Wagner Network and adjacent ‘PMCs’ to a senior official in the Russia Unit, whose primary job it is to ensure …
Government response. The government agrees, stating that a dedicated team led by a senior official in the HMG Russia Unit coordinates the cross-government response to Wagner and Russian PMSCs, working with the FCDO's Office for Conflict, Stabilisation and Mediation (OCSM) to monitor …
Foreign and Commonwealth Office
34
Conclusion
Seventh Report - Guns for gold: the Wag…
Accepted
The Government appears remarkably complacent about the growing practice of states using PMCs for malign purposes. Although the expansion of the Wagner Network and the harm it has caused appears to have led to some re-examination of the Government’s approach (paragraph 34), we have no detailed information to understand the …
Government response. The government partially agrees with the observation, detailing its new four-strand approach to countering state threats from organisations like Wagner, which involves building deeper understanding of PMSCs, increasing resilience, deepening cooperation, and using the full range of powers available.
Foreign and Commonwealth Office
35
Conclusion
Seventh Report - Guns for gold: the Wag…
Accepted
The Government continues to rely on a largely voluntary model of PMC regulation. Our predecessor committee conducted a detailed report into the subject of PMCs in 2002. Even then, the risks of a voluntary model were clear, in that it does little to prevent the “activities of disreputable companies” that …
Government response. The government defends its voluntary model of PMC regulation by citing its leading role in developing and implementing international initiatives like the Montreux Document and the Voluntary Principles on Security & Human Rights, providing examples of their effectiveness and the …
Foreign and Commonwealth Office
36
Recommendation
Seventh Report - Guns for gold: the Wag…
Accepted
The Government should improve its understanding of other PMCs and Private Security Companies (PSCs) connected in particular to Russia and China, and from all states. This is likely to be a growth industry, with more Governments seeking to create PMCs to secure their geopolitical and economic interests. The Government should …
Government response. The government partially agrees, providing details on its new four-strand approach to countering state threats, which includes building a deeper understanding of PMSC activity and capability, increasing resilience, deepening cooperation, and using full powers to contest malign operations, specifically agreeing …
Foreign and Commonwealth Office
37
Recommendation
Seventh Report - Guns for gold: the Wag…
Accepted in Part
In its response, the Government should set out the steps that it will take to strengthen the international legal framework governing PMCs’ activities, drawing on the UK’s deep legal expertise. Its response should address the following aspects: (Paragraph 88) 58 Guns for gold: the Wagner Network exposed (i) how the …
Government response. The government partially accepts the recommendation, agreeing on the need for clarification on definitions and actively participating in UN discussions to develop a workable framework, though rejecting the UN Mercenaries Convention in its current form. It fully agrees on improving …
Foreign and Commonwealth Office
38
Recommendation
Seventh Report - Guns for gold: the Wag…
Accepted
The UK Government should use its significant support to the Office of the Prosecutor General in Ukraine to identify mechanisms to prosecute the Wagner Network. A prosecution in this theatre would serve to help deter the sense of impunity abroad.
Government response. The government agrees on holding Wagner accountable, detailing its support for the International Criminal Court and the Atrocity Crimes Advisory Group in Ukraine, including £2.5 million for domestic investigations. It commits to continuing support for prosecuting atrocity crimes by Wagner …
Foreign and Commonwealth Office
39
Recommendation
Seventh Report - Guns for gold: the Wag…
Accepted
The Government should provide the evidence base that leads it to believe in the effectiveness of its mostly voluntary model of PMC regulation. (Paragraph 90) Guns for gold: the Wagner Network exposed 59
Government response. The government provides an evidence base by detailing its leading role in developing and implementing international voluntary initiatives like the Montreux Document and Voluntary Principles on Security & Human Rights, citing their effectiveness and the UK's global promotion efforts, including …
Foreign and Commonwealth Office