Sudan’s Political Framework Agreement: The Future of Civilian Rule

Jess Diez
Director of Educational Programs & Managing Editor

December 6, 2022

On Monday, December 5, Sudan’s ruling military generals, President Abdel-Fattah el-Burhan and Vice President Mohammed Hamdan Dagalo, and the pro-democracy group Forces of Freedom and Change signed a political framework agreement. Burhan seized power through a military coup in October of 2021, thus undermining Sudan’s transition to civilian rule. This framework deal, however, aims to guide Sudan’s civilian-lead transition towards elections and criminalize military coups moving forward. While many civilians are hopeful of this upcoming two-year political transition, others see this deal as a cycle of failed efforts towards civilian rule. 

Signed in Khartoum, the framework deal was welcomed by the Trilateral Mechanism, consisting of the African Union (AU), the Intergovernmental Authority on Development (IGAD), and the United Nations Integrated Transition Assistance Mission in Sudan (UNITAMS). Africa Business highlighted that the Trilateral Mechanism “calls on the transitional authorities to commit to respect and protect the rights and freedoms of all Sudanese to ensure the success of the ongoing political process. It also calls on the international donor community to fully resume its financial support once a functioning government is in place.”

The deal, the first of at least two phases, includes new regulations regarding military duties and companies. Written in Al Jazeera, the deal “stipulates that the military will form part of a new ‘security and defence council’ under the appointed prime minister. The agreement also vows to unify Sudan’s armed forces and impose controls on military-owned companies.”

Beyond domestic considerations, the deal highlights potential compromise in foreign policy. Explained in Arab News, “​​the framework agreement will also adopt a ‘balanced’ foreign policy that serves the interests of Sudan.”

Signed by Sudanese president and vice president as well as Forces of Freedom and Change (FFC), Sudan’s largest pro-democracy group, this mutual cooperation marks change. However, not all observers value the deal. According to Ethiopian Monitor, “key dissenters, including anti-military protest groups and factions loyal to former leader Omar al-Bashir, who was overthrown in 2019, oppose it…Protests challenging the agreement have also begun in Khartoum as people call for those who led the coup to be held accountable.”

Resistance rose merely an hour after the framework agreement was signed. According to Alrakoba, “demonstrations affiliated with the Khartoum Resistance Committees launched towards the presidential palace, on Monday, while the police fired tear gas at demonstrators at the ‘Sharoni’ station in the vicinity of the presidential palace.” *

Beyond the capital, several forces have boycotted the deal, including the Resistance Committee, Sudan’s grassroots pro-democracy network. Written in Africa News, the Resistance Committee “has continually refused to negotiate with the ruling generals. According to the draft, the deal envisions Sudan’s military step back from politics…It does not address details concerning thornier political issues, such as a transitional judiciary system and the implementation of military reforms, which have been left for a follow-up accord.”

Amid this progression, the Trilateral Mechanism released a statement on the signing of the political framework agreement. Quoted on IGAD’s website, the statement “outlines the importance of starting to work without delay on the second phase of the process. It encourages broad-based consultations to address the outstanding issues envisaged by the signatories to the Political Framework Agreement.” 

*translated from Arabic