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Mapping Actors and Alliances Project in South Sudan
An initiative of the Small Arms Survey’s Human Security Baseline Assessment (HSBA) Project
www.maapss.org
Update No. 1
MAAPSS Update
16 June 2020
The new South Sudanese Cabinet:
Ministerial appointments in the Revitalized Transitional Government of National
Unity—SPLM, SPLA-IO, and SSOA
Introduction Kiir’s cabinet appointments also saw
familiar faces remaining in government.
With the announcement in March 2020 of Michael Makuei Lueth, a Bor Dinka,
the new South Sudanese cabinet in the retained his position as Minister of
Transitional Government of National Unity Information, as did Martin Elia Lomuro, the
(TGoNU), several new faces entered the Minister of Cabinet Affairs from Lainya
government. Some of them are hold-overs county in Central Equatoria. Even
from the CPA-period, while others are seemingly less well-known appointments
relatively inexperienced. This update on the have long held major positions inside the
new South Sudanese cabinet will help the Sudan People’s Liberation Movement
international community identify its future (SPLM). For example, Jemma Nunu
partners and understand the import of these Kumba, a Zande, was the governor of
personnel decisions. Western Equatoria (2008-2010) before
holding several ministerial positions since
Business as usual: Kiir’s regime 2011. She is now the Minister of
continues Parliamentary Affairs.
South Sudanese President Salva Kiir has The SPLM-In Government (IG) has also
retained people who have guaranteed his succeeded in effectively controlling some
control of national security. These include positions designated for the opposition by
Obuto Mamur Mete, a Torit-born Lotuko and exploiting a split within the South Sudan
the Minister of National Security, and Malek Opposition Alliance (SSOA), a coalition of
Reuben Riak Rengu, a Yirol Dinka and the nine opposition parties. Disagreements
Deputy Minister of Defense and Veteran between SSOA factions began over the
Affairs. He has also retained or rewarded chairpersonship of the alliance and
with new positions those involved in his intensified in the run-up to the party’s
investments in the country. This includes selection of a vice-president (VP) to fill the
Salvatore Garang Mabiordit, a Rek Dinka last of five such positions. Unable to agree,
and the incumbent Minister of Finance. two leading members of the SSOA,
Albino Bol Dhieu, a Maluai Dinka and the Josephine Lagu and Denay Chagor, asked
former leader of the South Sudan Youth Kiir to choose the fifth vice-president from
Union, is the new Minister of Youth and amongst a list of SSOA nominated
Sports. Kuol Athian Mawien, a Malual members. Kiir chose Hussein Abdelbagi, a
Dinka, is the new Minister of Trade. Malual Dinka. This selection rewarded
Abdelbagi’s ties to Sudan and further
marginalized former SPLA Chief of General
1Mapping Actors and Alliances Project in South Sudan
An initiative of the Small Arms Survey’s Human Security Baseline Assessment (HSBA) Project
www.maapss.org
Update No. 1
Staff Paul Malong by giving such a appointments tethered to expectations to
prominent position to another politician from fulfil ministerial duties.
his native Northern Bahr el Ghazal.
Abdelbagi’s selection was subsequently While Taban Deng Gai retained his position
rejected by SSOA member and National as a VP, he gained less than others in the
Democratic Movement (NDM [LA]) new government. Gai’s utility, from Kiir’s
chairman Lam Akol on grounds that the perspective, is lessened now that Machar
selection process violated the R-ARCSS. has returned to government. Some of Gai’s
The other four VP appointments were to chief supporters, such as Ezekiel Lol
Riek Machar, James Wani Igga, Taban Gatkuoth, a Jikany Nuer and the former
Deng Gai, and Rebecca Nyandeng de Minister of Petroleum, were not given
Mabior. positions, while others, such as Richard K.
Mula, the Muru former Minister of Federal
On 12 March, Lagu and Chagor provided Affairs, lost their positions (in his case to the
Cabinet Affairs Minister Martin Elia Lomuro Kakwa SPLA-IO politician Lasuba Ladoru
a list of names to fill three SSOA-designated Wango). However, Taban Deng Gai still has
cabinet positions. Lagu and Chagor—both a role to play in Kiir’s organization of politics
among the names nominated—were in South Sudan. He has extensive financial
subsequently appointed as Minister of networks abroad, as well as enduring
Agriculture and Food Security and Minister loyalty among some armed forces in Unity
of Higher Education, respectively. Although state, including the Tahrir militias in Koch
Chagor, a Lou Nuer from Dengjok payam county. Michael Chiengjiek Geay, Taban
(Jonglei), seemingly lacks any meaningful Deng’s former security advisor, retains a
political constituency, he successfully government position as the new Minister of
played the game of Juba politics to secure Land, Housing, and Urban Development
his appointment. (Paul Mayom Akech replaced Geay as
Minister of the Interior). Geay and his Bul
The third SSOA appointee to a ministerial Nuer-kinsman, Tut Kew Gatluak, remain
position was Joseph Bakosoro, a central highly influential in Unity state.
Zande politician and former governor of
Western Equatoria, named Minister of Gatluak, an associate of the Sudanese
Public Service and Human Resource former President Omar al-Bashir during the
Development. Many inside Western second civil war (1983-2005), organized the
Equatoria were disappointed with this relationship between the Sudanese
appointment because they were hoping for government and the Bul Nuer militias under
a vice-presidency position or governorship. the command of Paulino Matiep that
Nevertheless, in Bakosoro’s case, as with ravaged the territory around Unity state’s oil
other appointments, too much importance fields from late 2013 to 2015. In the current
should not be placed on titles of ministerial government, Gatluak is the chief South
positions. There is ample precedent to Sudanese mediator in negotiations between
suggest that some positions are simply Sudan and rebel groups and a presidential
prebendal politics—stipends furnished to advisor on security affairs. Importantly,
political allies (or rivals) rather than Gatluak’s central role in South Sudanese
politics—a role consecrated in the current
2Mapping Actors and Alliances Project in South Sudan
An initiative of the Small Arms Survey’s Human Security Baseline Assessment (HSBA) Project
www.maapss.org
Update No. 1
cabinet—speaks to a wholesale reversal in government continues. Nadia Arop Dudi,
South Sudanese politics over the last the Minister of Culture, Museums, and
decade. Those figures close to former National Heritage, and Simon Mijok Mijak,
SPLM leader John Garang, and hostile to the Minister of Roads and Bridges, are the
the former-National Congress Party (NCP) only Padang Dinka given ministerial posts.
regime in Khartoum, have been However, Padang disappointment is to a
marginalized or excluded from Kiir’s SPLM. degree offset by the formal creation of the
Now the South Sudenese State is Ruweng Administrative Area (RAA) as part
dominated by those close to (or former of Kiir’s apparent compromise in returning
members of) the now-dissolved NCP. to ten states. The RAA answers long-held
Gatluak is foremost among this group. Padang desires to have a political space
separated from the majority-Nuer Unity
This regional realignment is the most state.
important development in South Sudanese
politics in the last decade. At an internal The previously powerful Ngok Dinka of
level, the delicate ethnic balance of cabinet Abyei have no ministerial representation at
positions continues. The Bor Dinka, among all in the new cabinet. This reflects the
the main Dinka constituencies within the waning importance of the once central issue
SPLM-IG, continue to have a strong of the Sudan-South Sudan border.
presence in the cabinet with Michael
Makuei and Deng Dau Deng Malek as
Deputy Minister of Foreign Affairs. Initially, Regional balance within the
there was surprise in Bor that there was no TGoNU (ministers and deputy
position for Kuol Manyang Juuk, the former ministers)
Minister of Defense. However, his
appointment as Senior Presidential Advisor
Greater
mollified those anxious about the Bor Dinka Equatoria
power-base in government.
27%
36%
Greater Upper
Kiir also appointed a number of Rek Dinka Nile
from Gogrial, including Awut Deng Achuil as 37%
the Minister of General Education and Greater Bahr el
Instruction and Joseph Malek Arop as the Ghazal
Deputy Minister of Justice and
Constitutional Affairs. Gogrial is also the
home of Akol Koor Kuc, the Director of
Internal Security within the National The ethnic calculations underlying the
Security Service (NSS). Koor is the most creation of the cabinet form only part of a
important political and military leader in broader calculus of political and economic
South Sudan, and his forces have effective alliances. Indeed, cabinet positions
command of the capital. themselves constitute a relatively
unimportant part of the political equation in
The principal losers among the Dinka are South Sudan. Cabinet positions have
the Padang, whose marginalization from neither the finances nor the autonomy that
3Mapping Actors and Alliances Project in South Sudan
An initiative of the Small Arms Survey’s Human Security Baseline Assessment (HSBA) Project
www.maapss.org
Update No. 1
would enable ministers to exercise any Machar’s choices for the cabinet are
authority or independence from the Office of reflective of his extremely weak position in
the President. Many of these political South Sudan; he is almost as little a leader
positions, such as Denay Chagor’s, are of the opposition today as Taban Deng Gai
arguably financial rewards for loyalty. was after Machar fled Juba in July 2016. His
Others, such as Baba Medan Konyi’s choices to fill SPLA-IO cabinet minister and
position as Deputy Minister of Information or deputy minister positions reflect these
Khalid Boutrous’ appointment as Deputy straitened circumstances. Among the
Minister of Public Service and Human relatively important positions that the SPLA-
Resource Development, are mollifying gifts IO was allowed to choose—including the
to make up for David Yau Yau retaining Ministries of Defense and Veterans’ Affairs,
control the Greater Pibor Special Petroleum, Mining, and Health—Machar
Administrative Area (GPSAA). In all cases, has chosen either family members
power is concentrated in the two men at the (including his wife, and son’s mother-in-
top of the hierarchy: President Salva Kiir law), or close allies, such as Henry Dilang
and Akol Koor Kuc. Odwar as the Minister of Mining. Odwar, an
elderly Lango politician, is also the Deputy
It’s a family affair: Machar’s SPLA-IO Chairman of the SPLA-IO, and one of the
few men that Machar trusts.
The formation of the TGoNU and Machar’s
choices for the cabinet have set in motion a Machar also picked relatively young and/or
wave of desertions from the SPLM/A-IO inexperienced politicians who he can easily
[RM] that likely presages the fragmentation control, such as newly appointed Minister of
of the opposition. Superficially, the cabinet Petroleum Puot Kang Kuol, the former
appears to reflect that the SPLA-IO is a Chairman of SPLM-IO Youth Union.
broad coalition: only a third of appointments
are Nuer, and many of Machar’s choices are Machar’s appointment of his wife, Angelina
from important Equatorian and Dinka Teny, as Minister of Defense, was also
constituencies. Underlying this apparent controversial. Many in the SPLA-IO see this
balance, however, is the central story of the as a self-serving appointment, designed to
SPLA-IO cabinet. draw power (and wages and cash) narrowly
around Machar’s family and to the exclusion
Ethnicity of cabinet members of other important figures inside the SPLA-
within the SPLM-IO IO. Her appointment is not without some
merit, however. Teny previously served in
Dinka Khartoum as Deputy Minister of Petroleum
8% in the Sudanese cabinet. More recently, she
33% Nuer was the co-chair of the Strategic Defense
25%
and Security Review Board (SDSRB),
Equatorian
which was designed to plot the future of
33%
Other (Fertit,
South Sudan’s army. Machar also
Shilluk, Murle) appointed his son’s mother-in-law, the
Dinka Elisabeth Acuei Yol, as Minister of
Health.
4Mapping Actors and Alliances Project in South Sudan
An initiative of the Small Arms Survey’s Human Security Baseline Assessment (HSBA) Project
www.maapss.org
Update No. 1
Since July 2015, the leading military These resignations were soon followed by
commanders of the SPLA-IO have others. James Nando Mark, an important
expressed disquiet with the political SPLA-IO Division 9B Commander in
leadership around Machar, which they Western Equatoria, defected to the
consider self-centered and more interested government on 26 March 2020, again
in gaining power in Juba than in obtaining blaming SPLA-IO leadership. On 16 April, a
justice for the Nuer civilians killed in number of principally Jikany Nuer SPLA-IO
December 2013 in the capital. Sometimes, politicians also defected. This group was led
this has resulted in commanders by Dak Duop Bichiok, a Nasir-born member
abandoning the movement. Following of the SPLA-IO political bureau. He had
Machar’s announcements of SPLA-IO hoped to be appointed Minister of
cabinet appointments, important defections Petroleum and was angered by the choice
occurred almost immediately. These may of Angelina Teny’s supporter, Puot Kang
begin an inexorable cascade of desertions Kuol, for the position. In the letter
that will leave Machar, effectively, without a announcing their defection, the group again
military power-base. accused Machar of using his position to
enrich himself and his family.
On 17 March, James Koang Chuol, the co-
chair of the Joint Defense Board (JDB), There are signs that the joint military
announced that he would join the South operation of SPLA-IO and SSPDF against
Sudan People’s Defense Force (SSPDF) Thomas Cirillo’s National Salvation Front
under Kiir. Koang, a Jikany Nuer and the (NAS [TC]) in former Yei River state has led
former Chief of General Staff for the SPLA- to a growing dissatisfaction with Riek
IO, is a commander widely respected in Machar among Equatorian members of
South Sudan. He was joined by Gathkor SPLA-IO. If left unresolved, the issue could
Gatluak Koryom, co-chair of the Joint further erode the movement in Equatoria.
Military Ceasefire Commission (JMCC), For Machar, the danger is that these
Wang Chany, a member of the JDB defections become a cascade. Further
Technical Team, and Joseph Albiros Yata, defections would make him a weaker
the SPLA-IO commander of Division 2B in opposition figure and could eventually leave
Central Equatoria. In their joint resignation him powerless militarily and politically.
letter, the commanders complained that
Machar’s appointments were made without There are SPLA-IO commanders, however,
consulting the SPLA-IO military command, who are unlikely to defect to the SSPDF.
and they turn the opposition group into a The two most powerful that remain loyal to
“family Affairs [sic] or business enterprise.” the SPLA-IO are currently in Khartoum: the
Their resignations are indicative of a new Shilluk general Johnson Olonyi and the
reality in which core members of the SPLA- current SPLA-IO chief-of-staff Simon
IO have been marginalized by Machar’s Gatwech Dual, a Lou Nuer.
appointments and political maneuvring. Among their respective home communities,
This reveals that Machar has become opposition to the government is strong and
increasingly alienated from the real substantive. Their loyalty to Machar now
opposition on the ground. rests on the government’s choices for state
5Mapping Actors and Alliances Project in South Sudan
An initiative of the Small Arms Survey’s Human Security Baseline Assessment (HSBA) Project
www.maapss.org
Update No. 1
governorships (Upper Nile in Olonyi’s case, Michael Makuei Lueth – Minister of
and Jonglei for Dual). Unlike cabinet Information – SPLM-IG
positions, the governorships are active Lasuba Ladoru Wango – Minister of
positions that come with real political power Federal Affairs – SPLM-IO
and responsibility. If Machar concedes too John Luk Jok – Minister of East African
much to the government, and the Community Affairs – SPLM-FD (Died: 2
governorships in Greater Upper Nile are not June 2020)
taken by figures palatable to Olonyi and Salvatore Garang Mabiordit – Minister of
Dual, then the possibility is strong that both Finance and Planning – SPLM-IG
men will leave the SPLA-IO. Subsequently, Puot Kang Chuol – Minister of Petroleum –
the ‘opposition’ in Juba will effectively be SPLM-IO
controlled by the government, while the Henry Dilang Odwar – Minister of Mining –
substantive opposition (consisting of the SPLM-IO
National Salvation Front in Equatoria, Josephine Lagu Yanga – Minister of
Olonyi’s Agwelek in Upper Nile, and Dual’s Agriculture and Food Security – SSOA
Lou Nuer forces in the Bieh/Akobo regions (PDM-P)
of Jonglei) will be elsewhere. In this Onyoti Adigo Nyikwec – Minister of
scenario, the ‘real’ opposition will not be Livestock and Fisheries – SPLM-IG
included within the peace agreement at all. (SPLM-DC)
Kuol Athian Mawien – Minister of Trade
and Industry – SPLM-IG
List of ministers and deputy ministers
Josephine Napwon Cosmos – Minister of
of the Transitional Government of Environment and Forestry – SPLM-IG
National Unity nominating party Manawa Peter Gatkuoth – Minister of
(as of 15 June 2020) Water Resources and Irrigation – SPLM-IO
Michael Chiengjiek Geay – Minister of
Martin Elia Lomuro – Minister of Cabinet
Land, Housing, and Urban Development –
Affairs – SPLM-IG
SPLM-IG (SPLA-IO [TDG])
Nhial Deng Nhial – Minister of Presidential
Rizik Zachariah Hassan – Minister of
Affairs – SPLM-IG
Wildlife, Conservation, and Tourism –
Beatrice Khamis Wani – Minister of
SPLM-IG
Foreign Affairs and International
Dhieu Mathok Diing – Minister of
Cooperation – SPLM-IG
Investment – SPLM-IG (SPLA-IO [TDG])
Angelina Jany Teny – Minister of Defense
Denay Jok Chagor – Minister of Higher
and Veterans’ Affairs – SPLM-IO
Education – SSOA (SSUM)
Paul Mayom Akech – Minister of Interior –
Awut Deng Achuil – Minister of General
SPLM-IG
Education and Instruction – SPLM-IG
Stephen Par Kuol – Minister of Peace
Elisabeth Acuei Yol – Minister of Health –
Building – SPLM-IO
SPLM-IO
Reuben Madol Arol – Minister of Justice
Bangasi Joseph Bakosoro – Minister of
and Constitutional Affairs – SPLM-IG
Public Service and Human Resource
Obuto Mamur Mete – Minister of National
Development – SSOA (NMC)
Security – SPLM-IG
James Hoth Mai – Minister of Labour –
Jemma Nunu Kumba – Minister of
SPLM-IG
Parliamentary Affairs – SPLM-IG
6Mapping Actors and Alliances Project in South Sudan
An initiative of the Small Arms Survey’s Human Security Baseline Assessment (HSBA) Project
www.maapss.org
Update No. 1
Peter Marcello Nasir – Minister of Energy NAS [KB] National Salvation Front [Khalid
and Dams – SPLM-IO Boutrous]
Madut Biar Yel – Minister of Transport – NCP National Congress Party
SPLM-FD NDM National Democratic Movement
NDM [LA] National Democratic Movement –
Simon Mijok Mijak – Minister of Roads and
Lam Akol
Bridges – SPLM-IG
NMC National Movement for Change
Ayaa Benjamin Warille – Minister of NSS National Security Service
Gender and Social Welfare – SPLM-IO OPP Other Opposition Parties Alliance
Peter Mayen Majongdit – Minister of RAA Ruweng Administrative Area
Humanitarian Affairs – OPP SPLA Sudanese People’s Liberation Army
Nadia Arop Dudi – Minister of Culture, SPLA-IO Sudanese People’s Liberation Army -
Museums, and National Heritage – SPLM- in Opposition
IG SPLM Sudanese People’s Liberation Movement
Albino Bol Dhieu – Minister of Youth and SPLM-FD Sudan People’s Liberation Movement
– Former Detainees
Sports – SPLM-IG
SPLM-IG Sudanese People’s Liberation Army –
Deng Deng Akon – Deputy Minister of
in Government
Cabinet Affairs – SPLM-IO SPLM/A-IO [RM] Sudanese People’s
Deng Dau Deng – Deputy Minister of Liberation Movement/Army – in Opposition
Foreign Affairs and International [Riek Machar]
Cooperation – SPLM-IG SPLM/A-IO [TDG] Sudanese People’s
Malek Reuben Riak – Deputy Minister of Liberation Movement/Army – in Opposition
Defense – SPLM-IG [Taban Deng Gai]
Joseph Malek Arop – Deputy Minister of SSOA South Sudan Opposition Alliance
SSUM South Sudan United Movement
Justice and Constitutional Affairs – SPLM-
TGoNU Transitional Government of National
IG
Unity
Agok Makur Kur – Deputy Minister of
VP Vice President
Finance and Planning – SPLM-IO
Lily Albino Akol – Deputy Minister of Disclaimer
Agriculture and Food Security – SPLM-IG Information provided in this Update is sourced
Martin Tako Moyi – Deputy Minister of from field research conducted by Small Arms
General Education and Instruction – Survey and HSBA experts, including interviews
with officials from the SPLM, SSPDF, SPLA-IO,
SPLM-IG local and state leaders, and other prominent
Khalid Boutrous Bora – Deputy Minister of officials both in and outside of South Sudan.
Public Service and Human Resource Where appropriate, in-text links are provided
Development – SPLM-IG (NAS [KB]) for secondary source material.
Baba Medan Konyi – Deputy Minister of
Information – SPLM-IG
Acronyms and abbreviations
GPSAA Greater Pibor Special Administrative
Area
JDB Joint Defense Board
JMCC Joint Military Ceasefire Commission
NAS National Salvation Front
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