Sudan RSF-aligned groups sign transitional charter in Nairobi, back secular state

March 4, 2025 (NAIROBI) – Sudanese political groups and armed movements aligned with the paramilitary Rapid Support Forces (RSF) signed a transitional charter in Nairobi on Tuesday, endorsing, among other provisions, a secular state for Sudan.

The groups, including the RSF, factions of the Sudan Revolutionary Front, the Sudan People’s Liberation Movement-North (SPLM-N) led by Abdelaziz al-Hilu, the National Umma Party, civil society groups, and other civilian entities, signed a founding pact on February 23. The agreement paves the way for a parallel government in RSF-controlled areas, which is expected to be announced in the coming weeks. The Sudanese government has rejected the move, saying it encourages the division of African countries and violates their sovereignty.

A statement issued by the Founding Sudan Coalition, seen by Sudan Tribune, said the parties had “signed today in Nairobi the transitional constitution of the Republic of Sudan for the year 2025.”

The transitional charter calls for the repeal of the 2019 transitional constitutional document and all prior laws, decisions, and decrees. It also states that Sudan will be a secular, democratic, and decentralized state with a Sudanese identity based on the separation of religion and state.

The charter establishes a transitional period comprising two phases: a pre-foundational phase, starting from the date the charter takes effect and continuing until the official end of the wars; and a foundational transitional phase, beginning immediately after the official end of the wars and lasting for ten years.

The charter sets out tasks for the planned government, including ending the wars, achieving a just and sustainable peace, creating an environment for a comprehensive political process, promoting security, stability, justice, and development, strengthening voluntary national unity, fostering peaceful coexistence, combating hate speech, addressing the humanitarian crisis, and protecting civilians.

The transitional charter proposes eight regions for Sudan: Khartoum, the Eastern Region, the Northern Region, Darfur, the Central Region, Kordofan, the South Kordofan/Nuba Mountains, and the New Fung region. Each region would have its constitution, respecting its specific characteristics without undermining the nature of the state as defined in the charter.

The charter stipulates that the governing structures will consist of a founding legislative body, an independent legislative authority comprising a Council of Regions and a Council of Deputies. The Council of Regions will have 24 members, and the Council of Deputies 177 members. The charter mandates fair representation of Sudanese communities and at least 40% women’s representation in the legislative body.

The charter says a presidential council will act as Sudan’s sovereign authority and a symbol of its voluntary unity. It will consist of 15 members chosen by the Founding Sudan Coalition, including regional governors, who will represent the president on behalf of their regions.

The charter also provides for a Council of Ministers, formed without party quotas from qualified individuals committed to the charter and the pact. The parties to the Founding Sudan Pact will consult and choose a prime minister, who will select up to 16 ministers in consultation with all parties within 30 days of the prime minister’s appointment.

The planned government will establish a new army comprised of the RSF, the SPLM-N under al-Hilu, and other signatory movements to the “Nairobi” charter. The army’s composition should reflect the diversity of the Sudanese people and be subject to civilian oversight and control from its inception, remaining independent of any ideological, political, party, regional, or tribal affiliation. Its role will be limited to protecting the country and its sovereignty.

The “Nairobi Charter” has drawn concern from the United Nations and the United States, which called it “a new escalation” and “a step that will not help bring peace and security to Sudan.” Saudi Arabia, Egypt, Kuwait, Jordan, Somalia, and Qatar have also rejected the move to form a government parallel to the Sudanese army’s authority in Port Sudan.