It does not have to be a government.
You want it to be.
I do not.
I do not agree with the premise that a temporary mutual aid agreement requires permanent authoritarian structures ruling over a particular place or group of people.
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A militia, with no predefined hierarchy, without regular and required training, that people join or ignore, depending on what they had for lunch, is just a messy mob.
And yet they wiped the floor with SEALs in Operation Red Wings. SEALs didn't even get a shot off.
You underestimate the capabilities of non-state militias, ma'am.
The trick is getting them to train often-enough and remain up to date in the absence of a clear and present danger. No, I don't have an easy solution.