My feature in Foreign Policy:
BENTIU, South Sudan — Every day, some 200 people stream into Bentiu, the site of South Sudan’s largest camp for internally displaced persons (IDPs). Women trudge past armed U.N. peacekeepers while carrying large pots and bags on their heads and tiny children in their arms. They sit on the cracked brown earth in the blistering sun and heat, sometimes for hours, waiting to be fingerprinted. Camp workers photograph children for identification purposes, while the World Health Organization and other medical groups vaccinate them against measles and cholera. Nearby, hundreds of camp residents gather as World Food Programme workers distribute basic food rations such as sorghum and oil.
Bentiu, in Unity state near the border with Sudan, sits at the center of South Sudan’s never-ending storm. The United Nations established the camp in December 2013 after a violent power struggle broke out between President Salva Kiir’s ethnic Dinka forces and Nuer-majority rebels under the command of Riek Machar, his former deputy. More than 43,000 lived in the camp at the end of 2014, according to U.N. figures. Its population has now ballooned to 100,000, while 60,000 more live in similar, smaller facilities around the country.
Ruon David Kuol, a tall, 33-year-old man sporting a pressed purple- and white-striped shirt, arrived at the Bentiu camp from nearby Bentiu town in January 2014 with his wife and four children. But after five months, his family set off on foot for the Sudanese capital of Khartoum — some 580 miles away — leaving him behind. They did not feel safe at Bentiu, a place where women are often raped and killed by soldiers when they leave the camp for firewood and charcoal, Kuol said. It’s a problem across South Sudan. On July 21, Human Rights Watch issued a report implicating soldiers of the Sudan People’s Liberation Army (SPLA), South Sudan’s military, and militias in mass rape, looting, the burning of homes, and spreading widespread destruction across Unity.
“Living here is not like home. But my house was burned down by government troops. I cannot leave the camp, even [for] Bentiu town [just] down the road. I’m too scared,” said Kuol, who now serves as a liaison between his community and the camp authorities and who wants the “war crimes” being committed in his country to stop. “The guilty must be held accountable,” he said.
Such justice seems a dim prospect here, a country of 11 million where tens of thousands have died in the fighting between Kiir and Machar. Already dilapidated infrastructure, schools, and medical facilities have collapsed, and the economy is in free-fall, as some 7.8 million suffer from food insecurity; this year, South Sudan topped the Fund for Peace’s Fragile States Index. According to U.N. figures from this July, there are now some 1.6 million IDPs in South Sudan, and nearly 608,000 South Sudanese refugees live in neighboring countries. Currently, some 11,500 overstretched U.N. peacekeepers are stationed across South Sudan.
With the government and international community both unable or unwilling to broker peace, the desperate plight of IDPs like Kuol and his family will grow only more dire. “The country is different shades of shit,” one senior U.N. official in the capital, Juba, said.
Flying this month into Bentiu on a U.N. helicopter, one could see abandoned, burned-out buildings, as well as tens of thousands of cattle gathered near the center of town. The heavy rains had left behind lush, green fields.
The International Organization for Migration says it has registered 6,000 civilians in the area, but the government claims there are 15,000 people in Bentiu town, mostly IDPs. The discrepancy is hard to explain. But the Danish Refugee Council (DRC), an independent humanitarian organization tasked with camp management in Bentiu, said that government officials could be exaggerating numbers to receive more supplies for their own men — a pervasive but tough-to-prove allegation heard across South Sudan. “It should be the job of the government to help its own people,” DRC’s Gilbert Ogeto said.
Nature also seems to be conspiring against those in the camp. When the rain pours in Bentiu, it’s like a torrent of gray and red mud turns everything into porridge. Shopkeepers selling cell phones, flip-flops, sugar, clothes, and other basics navigate the onslaught.
During the rainy season in 2014, thousands of people lived in makeshift shelters in Bentiu’s U.N. camp, where they waded through waters reaching to their waists. Conditions were abominable, with the camp flooding and children drowning in their own homes. Roughly four children under age 5 were dying every day due to disease and malnutrition.
Determined not to face a repeat of this situation in 2015, U.N. officials used the dry months to begin raising land and installing water channels. In 2015, the U.N. and the International Organization for Migration oversaw the expansion of the camp to accommodate the influx of civilians. The new, stronger houses, built from bamboo and plastic sheets, are more resistant to the natural elements. Many IDPs are excited about living in these structures, though weary of war and uncertain when they’ll be able to return home.
But few observers expected the surge of IDPs at Bentiu, a surge largely due to the increased fighting in surrounding areas, Ogeto said. “There were plans to expand the facility in early 2015 for an additional 40,000 people. Now there are over 100,000, and we [are] planning for 120,000,” he added. A U.N. official also said that the facility couldn’t manage the “projected” IDP numbers, and many NGOs worry about being able to fund their activities if the numbers greatly exceed 100,000.
While officials are impressed with improvements to the camp, they know that ensuring its total security is impossible. Gunmen, allegedly SPLA troops, have sneaked into the Bentiu camp this year and killed residents. Armed government soldiers stalk its periphery, whose protective barriers and fences are easily breached. Barbed wire to fully secure the expanded areas is also in short supply. “Secure means different things to different people,” one U.N. security consultant remarked, acknowledging the impossibility of completely securing a site with over 100,000 people.
James Madut Ruei, a 50-year-old community elder, has lived in the Bentiu camp for 18 months and has witnessed the worst of the atrocities — including those by the SPLA. In April, government forces began an 18-month campaign against the rebels in Unity. On June 30, the U.N. issued a report alleging that the SPLA has engaged in major human rights abuses. Ruei spoke of a particularly grisly incident, also detailed in the report, of soldiers, reportedly fueled by ethnic hatred, raping women and girls before pushing some of them into huts and burning them alive. “It’s too much. It’s genocide. Only God knows when things will improve,” Ruei said. He often feels helpless in the face of the conflict, he said, and wants the international community, especially the United States, to pressure South Sudanese leaders to broker peace.
None of the horrors of Bentiu were inevitable. They rose, instead, only after the United States and the rest of the international community turned its back on South Sudan.
For decades, Christians in the United States had championed the cause of Christian-majority South Sudan in the region’s bloody fight with Muslim neighbors to the north. They found a strong backer in then-President George W. Bush, whose administration pushed for the peace talks that led to South Sudan’s secession from Sudan. In 2011, President Barack Obama welcomed a newly independent South Sudan as a strategic asset against a resurgent China in Africa. But when the conflict between Kiir and Machar exploded in 2013, Washington was distracted by other things, like the rise of the Islamic State and the war in Syria. Key U.S. posts, including ambassador and special envoy to South Sudan, sat empty for many months as weapons and support flowed to both sides of the conflict from China, Uganda, Sudan, and Israel.
In the years leading up to South Sudan’s independence, through media appearances and meetings with U.S. and U.N. officials, high-profile Westerners like actor George Clooney and John Prendergast, founding director of the Enough Project, campaigned vigorously for South Sudan’s independence, with seemingly little thought for the bloody consequences to come. Fortunately, Clooney and Prendergast are now demanding that the United States, South Sudan, and its neighbors pursue a new peace process, one with “biting consequences for those South Sudanese government and rebel leaders who continue to fan the flames of war and who are completely insulated from the suffering of their people,” as they wrote with a colleague in a recent article. Clooney and Prendergast have also launched a campaign to target the money fueling Africa’s worst conflicts. “With billions in oil revenues missing from state coffers, hundreds of acres of land bartered away for pennies on the dollar, and currency speculation running rampant, South Sudan was hijacked by violent kleptocrats long before it became an independent state,” said Akshaya Kumar, Sudan and South Sudan policy analyst with the Enough Project, in congressional testimony on July 10.
In an interview earlier this year with Foreign Policy, Princeton Lyman, Obama’s special envoy to Sudan and South Sudan in 2010 and 2011, said that Washington’s use of contractors instead of the U.S. military to work alongside South Sudan’s military was a key failing. He argued that the split between Kiir and Machar might have been avoided with deeper U.S. military engagement. “We would have seen the cracks that occurred in December 2013. We might have been able to anticipate it more and do something more about it,” he said.
As the months wore on through 2014 and into this year, Juba felt forgotten by Washington and the international community. The government’s relationship with U.N. officials, in particular, deteriorated sharply, imperiling those at the Bentiu camp and others like it. Speaking off the record, countless U.N. officials at the camp said that Kiir’s government has grown less tolerant of public criticism of its actions. Toby Lanzer, the former top U.N. official in the country, was kicked out in June by the government for being overtly critical of the regime, and other U.N. officials have been threatened with expulsion for placing blame for the endless fighting and abuses on the military and government. South Sudan’s government is also currently blocking passage of a U.N. food barge on the Nile, the latest restriction on civilians getting much needed supplies in rebel-controlled areas. As a result of the growing acrimony, U.N. sources say, the organization now rarely publicly challenges official actions by South Sudan’s government. The U.N. also stands accused of turning a blind eye to a Canadian aid worker who was raped in 2015 at its Bentiu camp.
The U.N.’s patience with the South Sudanese government is wearing thin. While there is no indication that the U.N. will leave South Sudan or be kicked out anytime soon, a senior U.N. official in Bentiu was exasperated with the war’s escalation and the apparent lack of urgency by the government to end it. “Even if the U.N. leaves tomorrow,” he said, “civilians would flee to Sudan, and the South Sudanese government still wouldn’t feed its own people.”
South Sudan seems to be mimicking Sudan’s fraught relationship with the U.N., but “they’re not as clever,” one senior U.N. official said in Juba, “but getting better. They believe they can militarily defeat the rebels or its leader, Machar, will die or be killed. I don’t think the government will yet kick out the U.N. entirely because they still crave international support and legitimacy.”
U.S. policymakers are finally signaling a shift toward accepting reality. On July 9, the four-year anniversary of South Sudan’s independence, U.S. National Security Advisor Susan Rice, criticized by many Africa watchers as being too close to the continent’s dictators, issued a statement congratulating South Sudan on its independence, while ripping into Kiir and Machar “and their cronies [who] are personally responsible for this new war and self-inflicted disaster.” She promised that the United States, “along with the international community, will punish those determined to drive South Sudan into the abyss.”
Calls from activists in the United States and Africa for Obama to strongly engage the South Sudan issue during his visit to Africa were strong. On July 27, the president and regional officials met to discuss the creation of a regional intervention force and the potential for harsher sanctions against South Sudanese leaders. He condemned both Kiir and Machar during his speech to the African Union in Ethiopia. The International Crisis Group released a report on July 27 that argued that a regional solution to the war is “the best — if imperfect — chance to end the conflict and prevent further regionalisation.”
Things in Bentiu, meanwhile, are unlikely to change anytime soon. Nyamai Marko Liah, 27, and Nyawai Puot Chuol, 30, arrived in Bentiu in early July, each with four children. They wore clean, colorful dresses. They’re both married to the same man, Nyak Nong, who escaped to Sudan at the outbreak of the conflict. They haven’t seen him since, but occasionally speak to him via satellite phone. “If I could meet President Kiir and rebel leader Machar,” Liah told me, “I’d ask them to negotiate.… But we don’t see any sign of peace in this country.”