Underscoring Progress in South Sudan’s Revitalized Peace Agreement, Security Council Urges Country to Meet Agreed Timeframes, Tackle Renewed Violence
Council Members Also Emphasize Need to Pave Way for Credible Elections, Address Sexual, Gender-Based Violence
The road map for South Sudan must be implemented within stipulated timeframes, speakers told the Security Council, as the 15-member body also debated progress achieved in implementation of the Revitalized Peace Agreement and underscored the importance of strong and unified armed forces for the country’s institutional development.
Nicholas Haysom, Special Representative of the Secretary-General for South Sudan and Head of the United Nations Mission in South Sudan (UNMISS), recognized noticeable progress in implementation of the Revitalized Peace Agreement. Graduation of the first phase of the Necessary Unified Forces is largely complete, he added, stressing the need for them to serve as a national army. Commending the review of the National Elections Act completed by the National Constitutional Amendment Committee, he expressed regret that implementation of quotas for women and persons with disabilities remains unresolved.
Noting the ethnic dimension of violence in Upper Nile State, he urged the Government of South Sudan to intervene, underscoring that credible elections cannot take place in such an environment. Highlighting efforts of the Mission to address sexual and gender-based violence, he reported joint collaboration with international stakeholders on community violence reduction projects. In 2022, United Nations Police (UNPOL) supported over 26 police community relations committees, while UNMISS cooperated with the Trilateral Task Force, European Union and Troika. The road map, he said, is a “second mortgage on the Revitalized Peace Agreement — one which must be repaid in good faith and within the stipulated timeframes”.
Michel Xavier Biang (Gabon), Chair of the Security Council Committee established pursuant to resolution 2206 (2015) concerning South Sudan, briefed the Council about the Committee’s activities in 2022, noting that informal consultations were held on six occasions and several presentations and briefings were conducted with relevant stakeholders and experts. Since the beginning of 2022, the Committee received two exemption requests related to the arms embargo and three requests concerning the travel ban and asset freeze measures, all of which were granted.
Charles Tai Gituai, Interim Chairperson of the reconstituted Joint-Monitoring and Evaluation Commission for South Sudan, emphasized that a fully implemented road map is necessary to ensure the conduct of democratic elections in 2024. Noting that the Transitional National Legislature has passed certain bills, he outlined several outstanding governance tasks. Detailing security arrangements and humanitarian assistance, he urged Member States to provide political, technical and logistical support to the Transitional Government and appealed to the Council to consider undertaking regular visits to South Sudan.
In the ensuing debate, highlighting the increase in cases of gender-based and sexual violence, many speakers called for an inclusive dialogue and accountability for alleged perpetrators and expressed concern over food insecurity and safety of humanitarian workers. They also underscored the importance of creating conditions for civil society participation in implementation of the road map and upcoming elections.
The representative of Norway identified a lack of shared understanding of the situation in South Sudan as a key challenge to early Council action. Noting that, since its independence, the country has been caught in a cycle of broken promises followed by armed conflict, she emphasized the importance of actual commitment from the Government to implement the peace agreement.
The United States’ representative joined other speakers in lamenting that the country’s leadership decided to extend the transition period for another two years, calling the political commitment of the transitional leaders into question. He also noted that the arms embargo prevents the Government from obtaining military equipment needed for defence.
The delegate of the Russian Federation underscored the importance of effective national armed forces, calling on Council members to listen to Juba’s legitimate wishes for sanctions relief, which enjoy the support of South Sudan’s African neighbours. She also highlighted the country’s readiness to help resolve the situation in the Democratic Republic of the Congo.
Ghana’s delegate, speaking also for Gabon and Kenya, said that the arms embargo impedes training and equipping South Sudan’s security forces, calling for it to be lifted. In view of the deteriorating humanitarian and economic situations, he underscored the importance of development efforts to address root causes of conflict and insecurity.
South Sudan’s delegate said that extension of the transition period for two years has begun to bear results for graduation of the Necessary Unified Forces, which are ready to be deployed in due course. Turning to the “unfairly imposed” arms embargo, he underscored the compromised ability of his Government to effectively provide security, also underscoring that it must have better armed forces to respond to any external aggression.
Noting that the overall security situation is relatively peaceful after the formation of Governments in areas affected by subnational conflicts, he called the international community to come to South Sudan’s aid regarding the deteriorating humanitarian situation, while also pointing out devastation and destruction triggered by climate change.
Also speaking were the representatives of Brazil, United Kingdom, Mexico, France, Albania, China, United Arab Emirates, Ireland and India.
The meeting began at 3:04 p.m. and ended at 4:45 p.m.
Briefings
NICHOLAS HAYSOM, Special Representative of the Secretary-General for South Sudan and Head of the United Nations Mission in South Sudan (UNMISS), recognized noticeable progress in implementation of the Revitalized Peace Agreement. He reported that the graduation of the first phase of the Necessary Unified Forces was largely complete, noting that UNMISS provided critical logistical and transport support. Phase two must now receive financial, logistical and political support, he added, stressing the need for graduated forces to serve as a national army. Also spotlighting the need to finalize legal and technical arrangements for elections, he noted that the National Constitutional Amendment Committee has reviewed the National Elections Act to provide a legal basis for reconstitution of the National Elections Commission. He, however, lamented that implementation of quotas for women and persons with disabilities remains unresolved. Turning to the elections, he reiterated support for the two-phased approach and noted that material assistance for the conduct of the first phase should be contemplated only upon its completion. Commending the completion of the sixth Governors’ Forum in Juba, he highlighted the importance of including civil society in the next round.
Expressing concern about clashes amongst armed militias in northern Jonglei and Upper Nile states, intercommunal violence in northern Warrap state and cattle-riding and migration-related conflicts in the three Equatoria states, he said violence in Upper Nile state has taken on an ethnic dimension, triggering an influx of thousands of civilians to UNMISS’ operating base at Kodok and the protection site in Malakal. In this regard, the Mission convened a meeting on 2 December and urged the Government to intervene, underscoring that credible elections cannot take place in such an environment. He outlined funding constraints of the verification and monitoring mechanism established by the peace agreement and expressed concern at the pause on the Sant’Egidio process. He welcomed the intended visit of the Pope to South Sudan in February 2023 in hopes of consolidating peace.
He highlighted UNMISS’ efforts to address sexual and gender-based violence, reporting that United Nations police (UNPOL) supported over 26 police community relations committees in 2022. In this regard, he encouraged the Transitional Government of National Unity to implement the 2014 Joint Communiqué to tackle conflict-related sexual violence. He went on to report that UNMISS works with international stakeholders to launch community violence reduction projects, spotlighting the worsening humanitarian crisis, exacerbated by flooding and localized droughts. Underscoring that partnerships underpin the overall strategy of the Mission, he highlighted cooperation with the African Union, Intergovernmental Authority on Development and Reconstituted Joint Monitoring and Evaluation Commission in a Trilateral Task Force. Spotlighting joint work with the European Union and Troika, he welcomed South Sudan’s support for the United Nations Sustainable Development Cooperation Framework. Turning to the road map, he said that it is a “second mortgage on the Revitalized Peace Agreement — one which must be repaid in good faith and within the stipulated timeframes”.
MICHEL XAVIER BIANG (Gabon), Chair of the Security Council Committee established pursuant to resolution 2206 (2015) concerning South Sudan, briefed the 15-member organ about the Committee’s activities in 2022. The Secretary-General, he noted, appointed five experts on 20 January to serve on the Panel of Experts pursuant to resolution 2577 (2021) and appointed the same 5 individuals on 22 June to serve on the Panel pursuant to resolution 2633 (2022). He reported that the Committee met on six occasions for informal consultations.
The Committee heard presentations by the Coordinator of the Panel of Experts on 14 February on its work plan for the mandate renewed pursuant to resolution 2577 (2021), on 22 April for a discussion on its final report (document S/2022/359) and on 22 June in a meeting open to all Member States on that report. On 1 July, the Committee received a briefing by the Special Representative of the Secretary-General for Children and Armed Conflict. On 17 August, the Committee heard a presentation by the Coordinator of the Panel of Experts concerning its workplan for the mandate renewed pursuant to resolution 2633 (2022). On 18 November, the Committee heard a presentation from the Coordinator on the Panel’s interim report and discussed its recommendations.
Turning to the arms embargo, he said that, since the beginning of 2022, the Committee received two exemption requests, both of which were granted. Also, three exemption requests were received concerning the travel ban and asset freeze measures, all of which were granted.
CHARLES TAI GITUAI, Interim Chairperson of the Reconstituted Joint-Monitoring and Evaluation Commission for South Sudan, said his Commission is mandated to monitor and evaluate implementation of the Revitalized Agreement and oversee the Revitalized Transitional Government of National Unity. The transitional Government developed an “Agreement on the Roadmap to a Peaceful and Democratic end to the Transitional Period of the Revitalized Agreement on the Resolution of the Conflict in the Republic of South Sudan” (the Roadmap), which, if implemented fully, will ensure the conduct of democratic elections in December 2024.
On Governance, he said that the reconstituted Transitional National Legislature passed certain bills, but outstanding governance tasks include judicial reforms; completion of reforms of national institutions and commissions; reconstitution of the Political Parties Council; amendment of the National Elections Act; and reconstitution of the National Elections Commission. Turning to the permanent ceasefire and transitional security arrangements, he mentioned that the transitional Government resolved the impasse over the unified command structure, including the appointments of unified commanders. Some of the critical transitional security arrangements tasks which have not yet been completed include the funding and operationalization of Disarmament, Demobilization and Reintegration Commission programmes, and the Strategic Defense and Security Review, critical for security sector reforms.
Regarding Humanitarian Assistance and Reconstruction, he noted that some humanitarian corridors remain open and continue to facilitate free movement of goods, services and people, but various factors have exacerbated the already dire humanitarian situation in the country. These include prolonged subnational violence; widespread floods; food insecurity; reduced funding and humanitarian access; and lack of basic services. The transitional Government has initiated reforms in public financial management, and relevant banking and resource management laws are being reviewed, while public consultations were conducted to help guide the legislation for establishment of the Commission for Truth, Reconciliation and Healing. Further, he said that drawing up the permanent constitution is critical for guiding the conduct of elections at the end of the transitional period.
He urged Member States to provide political, technical, and logistical support to the transitional Government for implementation of the priority areas of the Roadmap, and encouraged the transitional Government to ensure that civic and political spaces are guaranteed and protected throughout the country. He also appealed to the transitional Government to urgently address the root causes of intercommunal violence and insecurity in the country. He appealed to the Council to remain seized of the peace process in South Sudan, and to consider undertaking regular visits to the country, as its full support will be needed for the Roadmap to be implemented in letter and spirit within the stipulated timeline.
Statements
JOHN KELLEY (United States) called on South Sudan’s leaders to urgently act to end the violence in that country, and on UNMISS to proactively employ peacekeepers in hotspots. Expressing concern over recent reports of human rights violations by Government and allied forces, he called for immediate accountability and, given the gravity of these crimes, urged the relevant sanctions body to facilitate a briefing by the Special Representative of the Secretary-General on Sexual Violence in Conflict pursuant to resolution 2633 (2022). Turning to the political situation, he expressed disappointment that South Sudan’s leaders decided to extend the transition period for another two years, despite failing over the last four years to deliver fully on commitments made in the Revitalized Peace Agreement. Each missed implementation benchmark further calls into question the political commitment of South Sudan’s transitional leaders, he said, urging the same to meaningfully engage with civil society and other stakeholders to make the transition a more inclusive process. He also pointed out that the arms embargo does not prevent the Government of South Sudan from obtaining military equipment needed for defence, nor does it impede the Government’s ability to undertake critical security-sector reform.
PAULA AGUIAR BARBOZA (Brazil) joined others in calling upon the Transitional Government and parties to the Revitalized Agreement to engage in constructive dialogue and inclusive negotiations. He also commended the ongoing graduation of the Necessary Unified Forces, emphasizing that unification of the armed forces is vital for South Sudan’s institutional development. Brazil is concerned, however, about the humanitarian situation, as food insecurity remains alarmingly high. He also called on the Transitional Government to do more to ensure the safety of humanitarian workers. He went on to underscore Brazil’s support for UNMISS, saying that it remains crucial to the protection of civilians and central to a peaceful transition.
JAMES KARIUKI (United Kingdom) said that, four months after the Government announced a two-year extension and subsequent road map to implement the peace agreement, progress remains woefully slow. The Government must capitalize on momentum created by passing the constitution-making bill and meet remaining benchmarks within their agreed timelines. Condemning attacks in Upper Nile State, he called on the Government to protect civilians and create conditions for an inclusive dialogue to stop the violence. Military intervention must not aggravate existing tensions or pose additional risks to civilians, while the Government must immediately remove obstructions and address violence against humanitarian workers and civilians. He went on to commend UNMISS for its efforts to protect civilians and its coordination with South Sudan. The situation requires a coherent, whole-of-United-Nations approach across humanitarian, development and peace priorities, he said, endorsing the Secretary-General’s encouragement for Government and partners to apply a similar endeavour.
ANNA M. EVSTIGNEEVA (Russian Federation), noting Juba’s recent progress in implementing the Revitalized Peace Agreement, said that the Government’s decision to extend the transitional period was approved by key State institutions. She went on to welcome the regional role played by South Sudan, highlighting the country’s readiness — despite its own issues — to help resolve the situation in the Democratic Republic of the Congo through participation in the East African Community’s regional force. On the security situation, she expressed concern over continuing intercommunal violence, spotlighting the situation in Upper Nile State. The Government has introduced measures to react to these challenges — including establishing two committees to investigate incidents. She further welcomed mediation efforts by member States of the African Union and the Intergovernmental Authority on Development (IGAD). Noting UNMISS’ efforts to mobilize support for the peace process in South Sudan, she stressed that further progress — including the successful holding of general elections in 2025 — will be impossible without effective national armed forces. She called on Council members to listen to Juba’s legitimate wishes for sanctions relief, which enjoy the support of South Sudan’s African neighbours.
ELENA CURZIO VILA (Mexico) said there have been some legislative gains in South Sudan, adding that the Government should seize the opportunity to ensure that integration and deployment of all forces is in line with international human rights standards and meets the needs of the country’s people. She highlighted a deplorable increase in cases of gender-based and sexual violence, often used as methods of war, emphasizing that authorities should ensure alleged perpetrators of rape do not occupy positions of power and victims are protected. The protection of civilians and the displaced in camps is a priority, and the Government must shoulder its fundamental duty to protect them or tensions will continue to flare. Violence has exacerbated the humanitarian situation, she said, adding that the Government should take urgent action.
NATHALIE BROADHURST ESTIVAL (France) stated that the 2024 elections set a political horizon for South Sudan, welcoming the ongoing drafting of the country’s future constitution. It is essential to create conditions for civil society participation to ensure credibility of the elections. She expressed concern over deterioration of the security and humanitarian situations. Clashes in the Upper Nile State are particularly alarming, she said. Protection of civilians will remain at the heart of UNMISS' mandate as long as South Sudanese security forces do not fulfil this role in gaining confidence of the population. Helping the authorities fulfil their prerogatives in an autonomous way is essential in the transition from UNMISS, she said, adding that further engagement of UNMISS requires a demonstration of political will by authorities, both in Juba and at the local level.
ALBANA DAUTLLARI (Albania) said that the Roadmap must be implemented in an inclusive manner with civil society, respecting the agreed timelines for delivery. There must also be a clear plan for the deployment of the Necessary Unified Forces. Turning to the violence in Upper Nile and Jonglei states, she called for the immediate cessation of hostilities and condemned human rights violations. The Government bears primary responsibility to protect civilians and must urgently respond to the situation. South Sudan’s leaders must investigate all reports and hold perpetrators to account, including any officials accused of overseeing systematic gang rapes, she said, urging the Sanctions Committee to facilitate a briefing by the Special Representative on Sexual Violence in Conflict. On the humanitarian situation, she called on the Government and local authorities to guarantee full and unimpeded humanitarian access, protect humanitarian workers and remove bureaucratic hurdles to ensure that support reaches those in need. She then called on neighbouring States, regional organizations and the international community to continue monitoring the peace agreement and ensure that South Sudan finalizes security sector reform and passes the necessary legislation.
HAROLD ADLAI AGYEMAN (Ghana), speaking also on behalf of Gabon and Kenya, welcomed the South Sudanese parties’ progress implementing the Revitalized Agreement and the decisions endorsing the 24-month Roadmap. He called on the parties and the Government to implement all pending tasks within agreed timelines, adding that the process must represent the spectrum of all South Sudanese, including from all regions and political affiliations as well as women and youth. He hailed the IGAD Council of Ministers’ decision to undertake a country visit, saying that such high-level engagement is critical for the parties to fulfill their commitments. He also called on the international community to provide financial support for the two IGAD-supported mechanisms.
Turning to transitional security arrangements, he lauded the graduation of the Necessary Unified Forces, but cautioned that it is not an end by itself. Rather, it should mark the start of security reforms, he said, welcoming the Parliament’s enactment of the South Sudan National Police Service Act 2022. He noted the importance of continued training and equipping for South Sudan’s security forces. However, the arms embargo on South Sudan impedes such important work, he said, calling once again for that embargo to be lifted. Expressing deep concern over the humanitarian and economic situation, he said greater attention must be paid to development efforts which address root causes of conflict and insecurity. He went on to deplore deplores and condemn all violence against humanitarian workers and installations and urged the Government to do more to protect them. Commending UNMISS for its continued commitment, he said the Mission should play a greater role in implementing Chapter Two of the Revitalized Agreement.
SUN ZHIQIANG (China) welcomed progress on the Constitution and the restructuring of key institutions, recalling that a Trilateral Technical Task Force was formed at the request of the African Union Peace and Security Council. The reconstituted Joint Monitoring and Evaluation Commission and the Joint Verification and Monitoring Mechanism should receive adequate funding, he said, noting that after the withdrawal of a major donor, China swiftly dispersed its annual contribution to the Mechanism. Turning to the escalation of violence in Upper Nile and Jonglei states, including attacks on the camps for internally displaced persons, he urged militias to refrain from militarizing major rivers. The key to improving the security situation is to enhance the security capabilities of the Government. Recalling that South Sudan faces economic difficulties, he said that some Council sanctions have failed to achieve their intended effect. Rather, they have imposed limits on security, he said.
AMEIRAH OBAID MOHAMED OBAID ALHEFEITI (United Arab Emirates) said this meeting takes place at a time when South Sudan is witnessing clashes, with reports of rape and killing of civilians, forcing thousands to flee. There is an urgent need to intensify efforts and address root causes, including through enhanced dialogue within communities. It is important to build on existing efforts, carrying out necessary security reforms to address challenges in the country, ensuring women’s full participation. Implementation of tasks outlined in the Roadmap are also essential, including curbing community violence and enacting political reforms. High-level political engagement by the region is both necessary and timely to support the country’s efforts in implementation of the peace agreement. The Nile River demilitarization agreement will play a crucial role in improving the situation and should contribute to the protection of humanitarian workers. Efforts must also be made to mitigate long-term climate impacts, she said.
MONA JUUL (Norway), expressing deep concern at the escalating violence in the Upper Nile and surrounding areas, emphasized the Government’s responsibility to protect civilians. The Ceasefire and Transitional Security Arrangements Monitoring and Verification Mechanism must investigate and hold accountable those who continue to incite and engage in violations. South Sudan’s leaders must deliver the results they have promised in accordance with the timelines in the Roadmap. A key challenge to early Council action has been a lack of shared understanding of the situation, she continued. Since its independence 11 years ago, South Sudan has been caught in a cycle of broken promises followed by armed conflict. Without actual commitment from the Government, there is a real risk that the ceasefire and the peace agreement will break down, she said, adding that the international community should recognize that South Sudan is again at the brink of disaster.
EOGHAN MCSWINEY (Ireland), while welcoming critical legislation concerning the Constitution and national budget, expressed concern that the extension of the transition process in South Sudan became inevitable due to not only a lack of preparation, but also to a lack of political will. “We now need to see progress,” he said, urging that elections take place by 20 December 2024 as planned and that the transition road map’s strict deadlines be met. On that point, he expressed regret that early benchmarks have already been missed and called on the Government to urgently start implementing the Roadmap. He also underlined the importance of the freedom of speech, assembly and expression to free, fair and credible elections, urging the Government to urgently address the stifling of civic space. Further, the implementation process of the Revitalized Agreement must be genuinely inclusive, with meaningful participation by women, youth and civil society. “We cannot just accept that the violence and insecurity is so entrenched that it cannot be solved,” he said, calling for political will to implement the Roadmap.
RAVINDRA RAGUTTAHALLI (India), Council President for December, speaking in his national capacity, said that several developments — including the agreed-upon road map endorsed by the Reconstituted Joint Monitoring and Evaluation Commission and the National Constitution Amendment Committee’s review of the National Elections Act — are reassuring. Hopefully, progress will continue, he said, adding that timely and effective implementation, as well as election preparations, requires appropriate financial resources. Expressing concern over the persistent killing and mass displacement of civilians, he called for an expedited deployment of the Necessary Unified Forces, more international support for the Government and an immediate end to violence against humanitarian workers and obstacles that prevent the delivery of humanitarian assistance. Since the outset, India has been among the biggest troop contributors to UNMISS, with nearly 2,300 troops currently in South Sudan, he said, recalling the contingent’s role in civilian protection and sustainable development. He went on to note India’s long-standing relationship with South Sudan and its continued support on its journey towards peace.
AKUEI BONA MALWAL (South Sudan) said the parties to the Revitalized Peace Agreement are steadfast in its implementation, notwithstanding challenges and complexity. Extension of the transition period for 24 months, he noted, has already started to bear results for the graduation of the Necessary Unified Forces. While they are ready to be deployed in due course, this has not been an easy task, especially since the international community decided to “sit on the fence” on implementation. The security situation overall is relatively peaceful, especially after the formation of Governments in areas affected by sub-national conflicts, such as Lakes State, Warrap State and Western Equatoria. Despite this, the Greater Upper Nile continues to face security challenges caused by non-State actors in Kitgwang factions, which have resulted in displacements, lost lives and destroyed property. Turning to what he called the unfairly imposed arms embargo, he underscored the compromised ability of his Government to effectively provide security. South Sudan must have better armed forces to disarm the well-armed youth who are responsible for current communal conflicts. His country also must be able to respond to any external aggression, as it is in a politically and militarily volatile region, with countries in active conflicts, fragile States and post-conflict States.
On the humanitarian situation, he underlined the contributing roles of conflict and nature. Calling for the international community to come to South Sudan’s aid by fulfilling its pledge, he said: “As much as climate change tends to get politicized, we, who are experiencing its devastation and destruction, consider it a reality that needs to be confronted with all the tools in our collective toolbox.” He then paid tribute to troop contributing countries, but called on the Council to investigate the question of sexual exploitation by some in the humanitarian community against internally displaced persons in Malakal and Wau civilian protection sites. The law must be exercised equally, he stressed.