Sudan: Elusive peace
South Sudan had high hopes when it became independent 10 years ago, after a long rebellion against the Sudanese government in Khartoum. But within two years, the leadership rivalries and ethnic cleavages that had divided the rebellion blew up into a bloody civil war that displaced one-third of the country’s 12 million people. Longtime foes President Salva Kiir and Vice President Riek Machar formed a unity government in February 2020, but political and ethnic divisions in the country are widening. The risk of a new conflict is high. Alan Boswell reports.
Few nations have seen their dreams and hopes dashed as quickly and ruthlessly as South Sudan. A mere two years after thousands thronged the streets of the capital, Juba, to celebrate independence from Sudan’s rule, the country descended into a brutal civil war. The fallout between President Salva Kiir and Vice President-turned-rebel Riek Machar, and the subsequent fighting, exerted a terrible toll. Between 2013 and 2018, up to 400,000 people were killed and 4 million – a third of the country’s population – displaced, amid numerous reports of ethnic-based atrocities like rape and massacres.
The world’s youngest country is now approaching its 10-year anniversary in July, and while the war has quieted thanks to a fragile 2018 peace deal, the risk of a return to full-blown conflict is never far away. South Sudan still faces an insurgency in the south of the country and rampant localized violence elsewhere. Ethno-political tensions remain high and could be unleashed again by the next presidential election, which was originally scheduled for 2022 but is likely to be delayed. Moreover, amid the constant efforts to halt violence, avoid the further deterioration of a dire humanitarian situation and keep the sputtering peace deal on track, both external partners and many South Sudanese themselves seem to have lost sight of any vision for longer-term stability.
Maintaining the fragile peace deal and getting the country past the presidential poll – which would likely pit Kiir against Machar, who has returned to the position of vice president under the terms of the 2018 agreement – are the most immediate hurdles. But any hope for stability demands a reset of South Sudan’s ill-suited, winner-take-all political system that fuels the ongoing tensions among elites.
A man waves the flag of South Sudan during celebrations in Juba on July 9, 2012 to mark the first anniversary of the nation’s independence. Hopes for peace and stability were very high, but it didn’t take long for the oil-rich country to slide into civil war. The road to peace has become so slippery because the leaders of the two main factions are bitterly suspicious of each other.
Despite the fact that its divisions and vulnerabilities were apparent at independence a decade ago, both South Sudanese and outsiders downplayed the new country’s political woes, and especially its ethnic cleavages. South Sudanese had fought a long war against Sudan, but also, more often than not, against each other. Kiir and Machar, for example, fought on rival sides between 1991 and 2002, mobilizing fighters from their respective Dinka and Nuer ethnic groups.
At independence, the country’s political system, which vests enormous power in the presidency, offered few mechanisms for the inclusion of rivals. This meant those locked out of power had few incentives to believe in the new state rather than rebel against it. The scramble for power and resources dominated politics in Juba and, as Kiir and his clique monopolized both, the scars of decades of infighting reopened.
Conflict soon flared, while several peace agreements and cease-fires collapsed – notably in 2016 when Machar, then vice president, fled to the Democratic Republic of Congo on foot after fighting erupted in Juba – before the 2018 pact brought a bit of respite. Kiir and Machar finally formed a unity government in February 2020. But they have achieved little beyond a delicate cease-fire, as most of the provisions of the agreement languish unfulfilled. These include the unification of forces supporting the two rivals into a single national army, the establishment of a new National Assembly, the creation of a transitional court of justice, and economic reforms. On top of all that, South Sudan still has to deal with the insurgency in its southern Equatoria region led by Thomas Cirillo, a former senior military officer who has not signed the peace agreement. Localized violence in other places rages unabated.
With this uneasy arrangement in place and ethno-political tensions so deeply rooted, the risk of a new collapse exists at every turn of the road. No turn looks more dangerous than the next presidential election, whenever it is held. Even if they seem to have lost the confidence of a significant part of their respective support bases, Kiir and Machar still look intent on facing off. The poll, if it ever occurs, could be a fatal blow to the peace agreement, given that the winner could lock the loser and his coalition out of any share of power.
Given the current level of tensions, rival factions will surely contest nearly every step in the leadup to the poll, so foreign diplomats in South Sudan should refrain from putting pressure on the government to rush into a potentially destabilizing election. Crucially, regional powers like Sudan, Uganda, Kenya and Ethiopia, which are the main guarantors of the 2018 peace deal, will also need to push for some form of pre-election deal that ensures a share of power to the losers.
Such an outcome could avert a violent breakdown around the vote, but it still would not resolve South Sudan’s many problems. Ultimately, the country will need to revisit its political model to avoid remaining stuck in cyclical bouts of conflict. The existing centralized state butts up against the harsh realities across the country. South Sudan still lacks roads or basic institutions, and peaceful governance is impossible without broad accommodation across its diverse patchwork of communities and groups. As the International Crisis Group argues in a recent report, instead of a king-of-the-hill system, South Sudan could evolve toward a more consensual form of governance. This would give the country’s notorious elites in Juba, as well as its beleaguered but divided population, a sense of shared interest.
What would this look like? One way to begin solving exclusionary politics is by institutionalizing power-sharing at the heart of the state. Several options exist, including a presidency that rotates among ethno- political groups or regions, formally slotting government positions for runners-up or instituting diversity quotas at all levels of political and public life. None of these options would address all the challenges the country faces, but they may at least help reduce the deadly stakes of the central power struggle.
Beyond power-sharing in Juba, devolving power and resources to regional and local authorities could also reduce the temperature of national politics. Decentralization, enshrined in South Sudan’s constitution but hardly implemented over the past decade, is increasingly back in fashion among the country’s thinkers and politicians. Striking the right balance will be critical if the country heads in this direction, as decentralization can also push conflict and corruption to the local level. But devolving power and resources could also help resolve raging local conflicts by empowering local officials and opening avenues for conflict resolution outside the political gridlock in Juba.
The prospects of such changes happening soon are limited, though, to say the least. The challenge of reform lies less in imagining new options than in persuading self-interested elites to adopt them. This challenge goes beyond Kiir and Machar, although the two are likely to remain unconstructive actors at the center of the country’s political stage for some time to come. Yet even when these archrivals are finally out of the equation, the country will still likely lack state institutions and infrastructure, in addition to being bitterly divided, awash in guns and in need of broad consensus to avoid more rampant bloodshed.
Faced with such grim prospects, other South Sudanese leaders and their external partners must seize every opportunity to push for improvements, even if gradual. Reform-minded South Sudanese politicians should push for constitutional reform and champion an inclusive national conference to chart a path away from the zero-sum politics that define the status quo. External partners should be ready to push in that direction and support such initiatives, including financially.
If South Sudan’s peace deal again collapses, external mediators could also assess whether efforts to patch things back together again can also go some way to address these underlying structural questions and make peace more durable.
For now, the scale of South Sudan’s challenges contrasts frighteningly with what seems politically possible to fix, and progress in that direction will undoubtedly be halting. But persistence toward a broader settlement is the only way for South Sudan to salvage the dreams that so animated its independence celebrations a decade ago.