Sudan/South Sudan
Expected Council Action
In November, the Security Council will hold a briefing and consultations on the Secretary-General’s semi-annual report on the UN Interim Security Force for Abyei (UNISFA), which was circulated to Council members on 14 October.
The Council is also expected to renew the mandate of UNISFA and extend the mission’s support for the Joint Border Verification and Monitoring Mechanism (JBVMM), established in 2011 to conduct monitoring and verification activities along the Sudan-South Sudan border, before their expiration on 15 November.
Key Recent Developments
According to the Secretary-General’s UNISFA report, which covered developments from 16 April to 1 October, no progress had been made in resolving the final status of Abyei, the disputed area along the Sudan-South Sudan border, amidst ongoing hostilities in Sudan and political uncertainty in South Sudan. The report noted that, as at 1 October, an estimated 400 South Sudanese security personnel were deployed in southern Abyei, primarily in Agok, Athony Junction and Juljok, representing a decrease from the estimated number at the end of the last reporting period. South Sudan has argued that these forces have been deployed to de-escalate intercommunal violence in the region. Nevertheless, their presence violates the 2011 agreement between the Sudanese government and the Sudan People’s Liberation Movement on temporary arrangements for the administration and security of the Abyei Area, as well as Council resolutions on UNISFA.
During the period covered by the Secretary-General’s report, UNISFA’s leadership travelled to Juba on two occasions to meet with senior South Sudanese government officials. The discussions focused on tensions between the Ngok Dinka and Twic Dinka communities in southern Abyei, the presence of South Sudanese security forces in the region, and challenges in implementing the mission’s mandate. UNISFA called for South Sudan’s support in re-establishing the JBVMM’s presence in its Sector 1, including the sector headquarters in Gok Machar and team sites 11 (Safahah/Kiir Adem) and 12 (Sumayah/War Abar), which have remained closed since 2021.
On 3 July, Sudan’s Transitional Sovereignty Council, headed by the leader of the Sudanese Armed Forces, General Abdel Fattah al-Burhan, appointed Hamed Manan Mohammed Mirghani as co-chair of the Abyei Joint Oversight Committee. (The committee is designed to provide administrative and political oversight of Abyei and is co-chaired by a Sudanese official and a South Sudanese official.) On 3 August, Sudan’s Transitional Sovereignty Council appointed Salouma Musa Yahya Boushara as the Sudan-appointed Chief Administrator for Abyei.
The Secretary-General’s report further noted that the security situation in the Abyei region remained tense, despite a reduction in intercommunal armed clashes. Following an increase in intercommunal violence involving the Ngok Dinka, Twic Dinka, and Nuer elements in late 2023 and early 2024, there were no clashes reported among these communities during the period covered by the Secretary-General’s report. No clashes were recorded either between the Ngok Dinka and Misseriya communities in the same period. However, rumours of an attack between the Ngok Dinka and Twic communities prompted 756 people from Awolnhom and Anthony to seek refuge at UNISFA camps between 9 and 11 July. During the reporting period, 82 arms-related incidents were reported, resulting in 78 casualties, including 27 deaths. (For background and more information, see the brief on Sudan/South Sudan in our May 2024 Monthly Forecast.)
In a 25 June press release, UNISFA reported that on 23 June, an alleged intrusion attempt at one of its camps in Abyei resulted in one death and one injury. It noted that despite repeated warnings, the intruders attacked peacekeepers, escalating the situation and forcing the mission to use force. During the period covered by the Secretary-General’s report, UNISFA recorded six incidents of intrusions into the mission headquarters and its bases at Noong, Highway Camp, and Kadugli.
The fighting in Sudan has contributed significantly to the deterioration of the security and humanitarian situations in the Abyei region. The Secretary-General’s report documented the conflict’s spillover effects, which include the proliferation of both small arms and higher calibre weapons inside Abyei. The fighting has also led to an influx of South Sudanese returnees, displaced Sudanese, and third-country nationals fleeing the crisis in Sudan. According to some estimates, at the time of writing, over 22,000 people had entered Abyei from Sudan since the onset of the conflict.
Heavy rains and flooding have exacerbated the humanitarian situation in Abyei in the last couple of months. In a 3 October press briefing, Spokesperson for the Secretary-General Stéphane Dujarric said that more than 18,000 people in Abyei have been displaced by the floods, compounding the challenges of existing food insecurity and disease outbreaks. He added that UNISFA personnel have intensified their efforts to support communities affected by flooding, including through the distribution of essential supplies and the rehabilitation of roads to improve access for humanitarian assistance. In July, health authorities in Abyei declared an outbreak of the Hepatitis E virus following an increase in confirmed cases of the virus among refugees and returnees from Sudan. In a 19 September press release, Médecins Sans Frontières reported 41 cases of Hepatitis E in Abyei, which resulted in six deaths.
During the period covered by the Secretary-General’s report, the deployment of all peacekeepers as part of the reconfiguration of UNISFA was completed. The deployment of contingent-owned equipment for the reconfiguration reached its final stage, with the equipment of the Indian infantry battalion, the Ghanaian infantry battalion, the Nigerian base defence company, and most of the equipment of the Chinese quick-reaction force reaching the mission area between April and June.
Key Issues and Options
A key issue for the Council in November is UNISFA’s mandate renewal. A likely option for Council members is to adopt a resolution renewing the mission’s mandate for one year.
The fundamental issue for the Council remains how to reinvigorate the political process to address the final status of Abyei and the Sudan-South Sudan border issue amidst the war in Sudan, which has put the process on hold. In this regard, securing a ceasefire in Sudan appears critical to help mitigate the effects of Sudan’s conflict on the security, humanitarian, and socioeconomic conditions in Abyei.
Also, an important issue for the Council is the continued presence of South Sudanese and Sudanese security forces in Abyei in violation of the area’s demilitarised status. A related issue is the proliferation of arms in Abyei, which could further aggravate persistent intercommunal tensions in southern Abyei.
The operational difficulties that UNISFA and the JBVMM face because of the presence of South Sudanese forces in Abyei, restrictions on the freedom of movement of the mission, and the conflict in Sudan are also matters of concern for Council members. (Sudanese airspace has remained closed since the outbreak of fighting in April 2023, preventing any aerial monitoring operations by the JBVMM). In renewing UNISFA’s mandate and its support for the JBVMM, the Council could highlight the operational challenges facing the mission and urge the parties to engage with the mission to address their concerns in this regard.
Council members could also request the Secretary-General to conduct a strategic review of UNISFA in the mandate renewal to assess its effectiveness in light of evolving political and security dynamics and present recommendations in this regard.
Council Dynamics
Council members agree on the important roles that UNISFA and the JBVMM play in supporting peace, security, and stability in Abyei and the broader region. Members share concerns about the incidents of inter-communal violence, attacks on peacekeepers, and the compounding effects of Sudan’s conflict on the political, humanitarian and security situation in the Abyei area.
The unanimous adoption of resolution 2708, which last renewed UNISFA’s mandate, demonstrated that Council members remain united in their support for the mission’s important role in promoting regional stability, protecting civilians, and advancing efforts towards a political settlement. Resolution 2708 introduced new preambular language on the safety and security of peacekeepers. It further underscored the need for the Secretary-General and troop- and police-contributing countries and member states to work together to ensure that UNISFA is adequately resourced and that all peacekeepers in the field are willing, capable and equipped effectively and safely to implement their mandate. (For more information, see our 13 November 2023 What’s in Blue story.)
The US is the penholder on Abyei.
| Security Council Resolutions | |
| 14 November 2023S/RES/2708 | This resolution renews the mandate of the UN Interim Security Force for Abyei (UNISFA) for another year, until 15 November 2024. |
| Secretary-General’s Reports | |
| 14 October 2024S/2024/740 | This was the Secretary-General’s report on the situation in Abyei, covering the period from 16 April to 1 October 2024. |
