P e o ple ’s Peacemaking P er s p ec tiv es

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South Sudan
Challenges of inter-communal violence and militia mobilisation
are a recurrent problem in South Sudan and are miring the early optimism about the
new country’s prospects. Escalating problems between Juba and Khartoum have added
to a growing sense of uncertainty, and stand to take away crucial revenues from South
Sudan at a time when development and security priorities cannot go under-resourced.
The fact that Jonglei State yet again witnessed hundreds of deaths over the past few
months, as well as the abduction of women and children and the theft of thousands ofcattle, raises troubling questions for the Government of South Sudan (GoSS); as it does
for international actors who have supported and continue to support the prevention ofviolence in conflict-affected states. And beyond Jonglei, many communities have yet totransition from a state of conflict and continue to suffer insecurity and poverty.
This policy brief pools research findings from three states experiencing serious insecurity– Jonglei, Warrap and Unity – to unpack from local perspectives the issues underlying
violence in the affected areas. The research provides the European Union (EU) and its
partners with the opinions, concerns and recommendations of a cross-section of citizens
in each state; perspectives which can inform their support. Beneath the destructive
cycles of raiding and looting, deep grievances about politics, governance, severe
poverty and hunger are festering. Scant progress in guaranteeing security and removing
weapons from society add further dimensions to crises for which there are no quick fixes.
The challenges are putting enormous pressure on the newly elected GoSS, and could tip
the country into more severe instability, if they remain continuously unaddressed.
The EU has long been a significant humanitarian actor in South Sudan. It must now deepen
its engagement beyond humanitarian needs to focus on South Sudan’s development,
governance and peacebuilding challenges, working together with all actors to support moresensitive crisis responses as part of a clearer long-term peacebuilding vision.

The People’s Peacemaking Perspectives project
The People’s Peacemaking Perspectives project is a joint initiative implemented byConciliation Resources and Saferworld and financed under the European Commission’sInstrument for Stability. The project provides European Union institutions with analysis
and recommendations based on the opinions and experiences of local people in a rangeof countries and regions affected by fragility and violent conflict.

Key outcomesnCattle raiding is the most visible formof conflict in Jonglei, Warrap and Unity,
where vicious cycles of violence have deeproots in local culture and identity. Sensitive,
co-ordinated efforts are urgently needed toprevent further violence and address underlying
cultural, political and economic causes.

nInter-communal violence is also fuelled
by grievances about governance andfeelings of marginalisation among local
people. The politics of South Sudan’s violenceneeds to be better understood so that progress
can be assiduously encouraged, divisions better
anticipated and peaceably resolved.

nWidespread poverty andunderdevelopment are holding backprogress on factors causing insecurity.
Development efforts must directly support
attempts to make progress on political andsecurity problems in affected areas.

nLocalised conflict and insecurity will
not be overcome by prioritising forcefulmethods. Longer-term approaches to theachievement of human security must be
prioritised and instituted.

“The state government is trying
to maintain peace and stability
but people have to produce foodfor themselves, because hunger isthe second war after liberation.”Interviewee, Jonglei State

People’s Peacemaking Perspectives: south sudan

Findings and Recommendations
1.
Cattle raiding is the most visible form of conflictin Jonglei, Warrap and Unity, where vicious cyclesof violence have deep roots in local culture andidentity. Sensitive, co-ordinated efforts are urgently
needed to prevent further violence and address
underlying cultural, political and economic causes.
“Cattle raiding is a disease for Jonglei
State.”
Interviewee, Jonglei State

There are heightened levels of insecurity
amongst agro-pastoralist communities andclose linkages between cattle raiding andinter-communal and ethnic violence. A key
part of this conflict dynamic comes fromcompetition for access to water and grazing
land as well as wealth accumulation. Ethnic
communities come into conflict when theymigrate into rival groups’ territories insearch of water, grazing land or cattle.
“You can see, there is no water. Even
our animals lack water to drink.”
Participant, group discussion, Unity State

These are persistent problems in Jonglei(between the Lou Nuer, Dinka, Murle andJikany Nuer) and in the cross-boundary
areas between Warrap, Lakes and Unity.
“Conflict about cattle is a big problem
and is usually over girls and revenge
for theft and killing. Competition overwater and grazing land is also one of
the causes of the persistent problems
in the area.”
Participant, group discussion, Warrap State

Violent cattle raiding is a product ofpolitical, social and economic factors inwhich gender, and ethnic identities andsocial hierarchies also play an importantpart. The payment of bride price in cattle
is an obstacle to some men who aspire to
get married. Some young men turn to cattle
raiding to get enough cattle to pay for abride. In other cases, the bride elopes (bychoice or coercion). Family feuds over bride
price can lead to violence as this is a key
source of income and status for families.
Girl elopement – raised as a serious
concern in Warrap – and abduction of
women and children – a recurrent problem
in Jonglei – are particularly abhorrent

features of raiding practices that lockcommunities into cycles of revenge.
The importance of seeking revenge toappease victims, as an expression ofcommunity pride and as a form of redress,
contributes to the creation of intractable
cycles of violence between communities
and ethnic groups. Engrained social andcultural norms ensure that raiding occupies
a central position in social hierarchies,
reinforcing both masculine and feminine
identities that encourage violence as alegitimate expression of social aspiration.
These engrained norms, and the manner inwhich they have been tainted and distorted
by years of war (such as inflated bride
prices) coupled with easy civilian accessto small arms and light weapons (SALW),
must be considered alongside efforts toaddress development, governance andsecurity deficits. The customary checks andbalances that in the past were built into
raiding practices – and minimised humancasualties – have been almost completely
destroyed by the sheer capability andindiscriminate nature of automatic gunfire.
Recommendationsn Encourage and support the GoSS withadvice and strategic support from theUnited Nations Mission in South Sudan(UNMISS) to ensure sustained police andmilitary patrols and presence in areas
where cattle raiding and inter-communal
violence frequently occur and at county,
state and international boundaries.
n Insist that any civilian disarmament efforts

are voluntary and appropriately coupledwith improved security provision, peaceand reconciliation processes and development
progress. In addition, simultaneous
disarmament of rival groups and commitment
to provide for their security and developmentin the long term will be key to success.

n As part of a wider conflict prevention

and peacebuilding strategy, increased
attention and support should be given tonegotiating and monitoring adherence tolocal-level resource sharing and migrationroute agreements. Primary dispute
resolution and mediation mechanisms
can negotiate ways for communities tomeet their basic needs in peaceful coexistence in an environment of resource
scarcity, provided they are followed up ina sustained and supportive fashion by the
GOSS and its partners at all levels. To be
successful, these tasks must be undertaken
by customary institutions, proven civilsociety groups and formal justice andsecurity sector actors, in a co-ordinatedfashion.
n Action is needed to recover abductedchildren, bring those responsible to justice,and tackle the cultural acceptance of
abduction among the groups involved.
n The way gender identities are encouraged

within pastoralist culture, and are linked toand enacted in violent behaviours, needs
to be better understood. Local women
believe investing in and encouraging
education of girls is the first step towards
changing the position of women in society.
n Intensify support for local initiatives todevelop alternative livelihood programmes
and create opportunities for people inagro-pastoral communities to supplement
their income and food sources, as partof a wider conflict prevention andpeacebuilding strategy.

2.
Inter-communal violence is also fuelled bygrievances about governance and feelings ofmarginalisation among local people. The politics ofSouth Sudan’s violence needs to be better understoodso that progress can be assiduously encouraged,
divisions better anticipated and peaceably resolved.
“If there is not democracy in South
Sudan, there will be war.”
Interviewee, Unity State

Marginalisation and perceptions ofmarginalisation run deep in Warrap,
Jonglei and Unity, and are fuelling conflictin each context in different ways. Feelingsof marginalisation are perhaps inevitablegiven the lack of state presence – in termsof security and other service delivery – inmany areas, and the lingering persistenceof underlying (south/south) grievancesthat have their roots in the war years.
However, in all areas, research participants
expressed the desire for the GoSS to deliver
security and development. At the sametime, participants spoke of a lack of faith
in governance processes, particularly inelections, the transitional constitutionmaking process and in terms oftransparency and accountability generally.
In Warrap, communities feel geographicallyisolated and politically and economically
excluded. Insecurity in those areas is
generally under-reported, and there is aperception of little response and interest
from national and international actors.
In Jonglei, insecurity related to armed groups,
cattle raiding and civilian possessionof SALW are tied to contestations overpolitical power at state and national
level – which have in the past been bothcomplex and bloody. The state’s ethnic
communities bear strong grievances about
their share in – or exclusion from – politicalpower. They assert that there has been
political complicity in inter-ethnic clashes,
and that past security and development
interventions have unfairly discriminatedalong ethnic lines.
“Some officials instigate land issues
between communities, creatingproblems.”
Participant, group discussion, Warrap StateIn Unity, perceptions of marginalisation offorces integrating into the Sudan People’s
Liberation Army (SPLA) contributed to theformation of a new rebel militia group in
April 2011. Particularly in Unity State there
is an additional sense of frustration that
oil revenue is not sufficiently translated
into service delivery and development
dividends.
“We hear money was given to one
person but he ate the money.”
Participant, group discussion, Unity State“Bribery is a problem.”Participant, group discussion, Warrap StateIn all three states, dissatisfaction with
political processes and state governments
has created an environment of uncertainty
that has made it relatively easy to mobilise
people to violence. Unaddressed politicalgrievances provide a standing invitation for
either southern elites or external actors toplay on South Sudan’s internal divisions –an opportunity which many in these states
believe Sudan is already manipulating.
Lack of faith in the government and lackof trust in neighbours have complicatedefforts at disarmament and enhance thepotential for disputes to easily escalate
into violent confrontation. The lack of awidely accepted vision of the new Southern
Sudanese national identity means thatpeople rely on their ethnic identity asa primary reference point. Participantsin the research believe that this lack ofsocial cohesion is sometimes exploited byunscrupulous politicians.

Recommendationsn Support, at the political level, effective

public consultation processes on importantnational strategies and frameworks likethe constitution and the review andimplementation of the South Sudan
Development Plan. This should be used byfederal and state governments to better
understand and respond to perceptions
and needs of communities before they
escalate into violence and rebellion.
n The EU and international actors should

deepen their understanding andmonitoring of conflict dynamics at stateand county levels, and support greater
efforts for dialogue between conflictingclans and social groups, and their leaders,before divisions lead to violence.
n Invest in a greater role for civil society

to promote civic education and improveaccess to information for the public, asa means to strengthen local institutions
and build the capacity of civil society
to participate constructively in decision
making and accountability processes.
n Support programming to strengthen anti-

corruption and transparency mechanisms
as well as improved budgeting andmonitoring activities involving the statelegislatures.
n Noting the problems surrounding

integration of militias, engage with
GoSS, SPLA and other disarmament,
demobilisation and reintegration (DDR)
stakeholders on how to mitigate thepotential for future integration anddemobilisation processes to fuel further
tensions and violence between SPLA andformer and current militias.
n Continue to support political processes

to end hostilities and resolve grievancesin the border areas of Abyei, Southern
Kordofan and Blue Nile, demarcate theNorth–South border and curb any actions
that fuel internal instability across theNorth–South border.

People’s Peacemaking Perspectives: south sudan

3.
Widespread poverty and underdevelopment
are holding back progress on factors causing
insecurity. Development efforts must directly support
attempts to make progress on political and security
problems in affected areas.
Insecurity is fuelled by underdevelopment.
Thus changing the dynamics of insecurity
to reduce armed violence is reliant uponchanging political and socio-economic
factors.

Social ills associated with lack ofopportunities such as alcohol abuse, theft,
youth violence and banditry are also
becoming increasingly visible, especially intowns.

“The state government is trying tomaintain peace and stability but
people have to produce food forthemselves because hunger is thesecond war after liberation.”

Youth frustration emerged as a centralcomponent of conflict dynamics. Thereis a high youth population throughout
South Sudan (more than 51 percent of the
population is under the age of 18) facedwith massive developmental challenges.
The combination of high youth population
with lack of opportunities for escaping
poverty creates high levels of frustration.
High bride price and food insecurity also
reinforce the centrality of cattle to people’s
survival and prosperity. Consultation with
communities highlighted their anxiety over
how deep the culture of dependency onhumanitarian assistance has become.

Interviewee, Jonglei State

In consultations in Jonglei, Warrap andUnity participants highlighted the lackof roads and limited communications
infrastructure as the primary challenge toimproving security. These were identified
as prerequisites for government presence
and response, as well as to enablecommunities to increase trade and otherforms of co-operation. Similarly, across all
the states, access to water emerged as aclear peacebuilding priority to reduce thepotential for conflict and to improve living
conditions.
Communities’ lists of development issues
that lead directly to inter-communal
and ethnic violence are long: they also
include food insecurity, lack of education,
unemployment and lack of access tohealthcare.
“We need help because our children
are suffering from hunger. We needroads to be opened and conflicts tobe resolved to remove the unknown
gunmen and to make us participate inagriculture to have surplus food. We
need a supply of safe drinking water.
At the moment we are using stagnant
water sources.”
Participant, women’s group discussion,
Unity State“The locality is one of the mostdevastated by wars and war
related problems. As a result theentire population still depends onhumanitarian food for survival.”
Participant, women’s group discussion,
Warrap StateA culture of entrepreneurship and accessto livelihoods that offer an alternative
to poverty and pastoralist violence areurgently needed in South Sudan. To
achieve a more diverse economy in whichyouth have alternative livelihood options,people identified a number of priorities:
infrastructure to enable service delivery
and economic development; education andskills to access opportunities; and accessto markets to enable trade (including inlivestock). Security, access to credit andremoval of illegal checkpoints and irregulartaxes are also critical if the private sector isto grow.

Recommendationsn Whilst immediate humanitarianneeds must continue to be met, thedevelopment of a private sector is vitalfor future economic growth and stability.
Employment opportunities should bea focus area for EU and Member State
programming in South Sudan.
n Engage in more targeted youth

programmes including through livelihoods
and job creation programmes as part ofviolence reduction interventions.
n International partners should linkinfrastructure projects to efforts to reduceand mitigate violence, by being sensitive
to local conflicts and emphasising
opportunities for job creation and local
economic development.
n Further invest in the provision of water

points, especially in conflict prone
areas and amongst agro-pastoralist
communities. There should be an increased
focus on supporting local government
administration to provide basic services
including water.
n Support local initiatives to improve

internal trade between states and counties
to stimulate local markets and improve
economic integration. This will require
improved road networks as well as the
cessation of illegal check points andirregular punitive customs taxes.
n Priority should be given to supporting

programming that enables anintensification of primary, secondary andadult education, vocational training,
apprenticeships, micro-financing andbusiness advice/mentoring.

People’s Peacemaking Perspectives: south sudan
Dinka Rek tribeswoman inTonj East county, Warrap State.
© pete muller

4.
Localised conflict and insecurity will not be
overcome by prioritising forceful methods.
Longer-term approaches to the achievement of humansecurity must be prioritised and instituted.
Significant threats to national security
are a pressing concern in the new stateof South Sudan. For communities living in
the northern border states of the South,
the situation is further aggravated by the
conflicts in Abyei and in neighbouring
South Kordofan and Blue Nile and several
security incidents across the borders
in recent months have further fuelledtensions. Refugees from Sudan havealready placed additional burdens on foodsupplies. In this context renewed clashes
involving rebel militia groups throughout
2011, particularly in Unity and Jonglei,
have made a challenging situation worse.
Militia attacks, and the responses to them,
have had a devastating impact on local
people, with homes burnt, assets destroyed
and people abducted and killed on a large
scale.
For a new government claiming its
sovereignty and trying to ensure a
successful transition to independence, it
is a huge challenge to know which threats
to tackle first, and how best to do so. The
GoSS needs to find the most favourable
balance between addressing politicalgrievances, meeting basic needs, extending
service delivery, providing security tocommunities and reacting to military
threats within and from outside the state.
“Let the police protect local people,
not shoot them with guns.”
Participant, group discussion, Unity State

The public wants the police and military
to be present to tackle security problems,
but at the same time raise serious concerns
about their capacity and conduct. In
the nascent South Sudan Police Service(SPSS), issues raised by the public include
lack of sufficient training, equipment andpersonnel, as well as the old age andsometimes drunkenness of officers. These
need to be addressed more urgently.

Participants in group discussions also
pointed out the absence of secure prisons– making the clear point that the solution
to insecurity lies not only in greater police
capacity but in building up all elements ofthe criminal justice system.
“Recruitment and training of morepolice is a must if we the nation is toprogress.”
Participant, group discussion, Warrap StateSSPS capacity is growing but will remain
weak for a long time. However, the SPLA
maintain large internal deployments
throughout South Sudan. Faced withserious security threats, it would bepragmatic to enhance the capacity of themilitary to fulfill non-military functions inorder to meet the gap in security provision.
At present, as the defence transformation
process is at a very early stage, there
remain serious deficits in conduct andprofessionalism. Irregular pay of soldiersand lack of sufficient logistical support
brings soldiers into direct confrontation
with communities.
“Some soldiers who are not paidcause problems by stealing cattle.”
Participant, group discussion, Warrap State

In a country where the scars of insecurity
are tangible in underdevelopment andresidual grievances, the cost of using force
will always be high. As has been seen
during past forced disarmament operations,
there is a risk that long-term peace andsecurity will suffer if force is too readily
used to attain short-term stability.

Recommendationsn Due to the central role of the military ininternal security, the EU and international
partners should invest in civil-military
relations programming to encourage moreparticipation and consultation on the
defence transformation process and more
inclusive processes to define the roles andexpectations of security service providers.
n Increasing the capacity of the SSPS is along-term agenda that requires greater
relationships to be forged between
police and communities. The EU andMember States should continue tosupport community policing initiatives
and efforts to extend the presence andprofessionalism of the police.
n There is a need for increased focus on

accountability and civilian oversight of thepolice and military. The EU and Member
States should encourage the developmentof internal and external monitoringmechanisms that citizens can access tohold security personnel to account forabuses.
n There remain significant gaps in the legal

framework and in the training of police on
criminal law and procedures. Additionally,
more efforts are required to increase publicawareness of rights and legal procedures.
n Continue to support the borderdemarcation process being undertaken
under the auspices of the African Union.
This process should seek also to reachagreement on border crossing points toenable seasonal migration and increased
trade.

LIBYA

CHAD

People’s Peacemaking Perspectives: south sudan
RED SEA
Culture, gender and conflict in Jonglei StatePort Sudan“Girls can even be booked for NORTHERN
marriage while still in the womb.”school – where their enrolment will end
practices
RED
SEAwhich we believe are inhumane.”
Another member explained: “In our tribe
when their intended husband decidesof Murle, children are booked when they
to marry. Under local culture, the Murle
are still in the womb. When a woman isreceive cattle when
NILEtheir daughters are
pregnant, a person will say when this childgiven in marriage, and a man takes as
is born a baby girl she will be my wife...
many wives as his cows will afford. Since
At this time we don’t want this issue of
women available for marriage are in shortbooking girl children in the womb.
supply, theirabductionhas
becomeadriverKhartoum
KASSALAof conflict.
ERITREA
The association will help to reduce such

Murle woman
Women and children have been abductedin the recent cattle raids in Pibor county of
Jonglei. NORTH
The word ‘booking’ is used among
DARFUR
Murle communities here, to refer to thepractice under which older men ‘book’
young girls as future wives. This system
is
NORTH
also found among Nuer, Dinka andKORDOFAN
Anyuakcommunities. As a result of such practices
girls are unlikely to go to, let alone finish,

According to a young Murle woman,“The old way of doing things must change.
We recently formed the Pibor Women
Association and are fighting to end

practice of child abduction, robbery frombandits, killing of innocent people on theroads and cattle raiding, which are thestate’s main problems.”

Methodology

KeyInternational border

Research for this briefing was conducted inthree states in South Sudan experiencing
serious insecurity – Jonglei, Warrap andUnity – in order to elicit the views of
citizens on the factors that continue tofrustrate stabilisation efforts and delay
longer-term development.

SUDAN

Disputed border
Disputed area

ABYEI

Malakal

UPPER NILE

BentiuNORTHERN
BAHR ELGHAZAL

UNITY

Aweil

Kwacjok

Wau

WESTERN BAHR
EL GHAZALWARRAP

RumbekJONGLEILAKES

CENTRAL
AFRICANREPUBLICETHIOPIA

SOUTH
SUDAN

Bor

WESTERN EQUATORIA

Juba

YambioCENTRAL
EQUATORIA

DEMOCRATIC REPUBLIC
OF CONGO

EASTERN
EQUATORIA
Torit

KENYA
UGANDAThis map is intended for illustrative purposes only. Saferworld and Conciliation Resources take no position on whether
this representation is legally or politically valid.

References and Acknowledgements
The findings in this Policy Brief were drawn from detailed research which took place inSouth Sudan, particularly in Jonglei, Unity and Warrap States. The research was conductedby Saferworld under the People’s Peacemaking Perspectives project, which produced anumber of briefing reports. For full details of the project and the publications, please visit:www.saferworld.org.uk/PPP

In each state, research teams visited two
counties and conducted an extensive seriesof group discussions and interviews. In
Warrap and Jonglei, two rounds of researchwere conducted six months apart in orderto observe changes in the security andpeacebuilding dynamics both before andafter independence.
Research teams included local civil groups
Tears for Hope in Warrap State and the
Jonglei State Students’ for Peace Network,
as well as researchers from Juba University
and Saferworld. Preliminary briefing reports
were produced and consultations on theinitial findings were conducted at statelevel and with national and international
stakeholders in Juba. This final policy briefreflects the themes and priorities citedacross the three states.

For further information contact Hesta Groenewald, Head of Great Lakes and Sudan
Programme, Saferworld hgroenewald@saferworld.org.uk
This document has been produced with the financial assistance of theEuropean Union. The contents of this are the sole responsibility of Saferworld
and Conciliation Resources and can under no circumstances be regarded asreflecting the position of the European Union.
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The cover picture shows a cattle keeper
guarding his cattle with an AK-47. Cattleraiding between the states of Jonglei, Warrap,
Unity and Lakes is a continuous threat tosecurity for local communities and a major
threat to life and livelihoods. © pete muller