It means that their forces occupy the city: they live there, patrol the streets, regulate the people, set up defenses etc. Essentially, it means that non-aligned forces cannot operate in the area.
Think of it like a house. If I’m upstairs and my enemy is downstairs, and he fights me any time I try to go downstairs, neither of us can be said to have control over the house. I can’t go downstairs and do stuff until he’s gone.
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