[@Double]We could very easily have a government in exile trying to reestablish itself using people that are still loyal to it.  Eiling, Waller and others could be funding a revolution to try and reestablish a government in some location.  Maybe even some former Heroes/Villains (including Flash, as he was in the police) could be helping them out.

They couldn't force people to back them up, because that would attract security forces and drive away people. Anarchy has been spreading his records of all the bad things the government did, and his reasons for doing it.  You don't want people to side with him.  Protests, Public speeches, even local governments could pop up (in areas with vast majority support for it).

Or maybe Eiling tries to conquer a city with what military he can gather.