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Heidelberg Darfur Dialogue

Outcome Document

Containing

Draft Proposals for Consideration in a FutureDarfur Peace Agreement

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III

PREFACE

The Heidelberg Darfur Dialogue

Since 2008, representatives of all political forces in Darfur, includingrepresentatives of civil society, have engaged in a dialogue addressingthe root causes of the Darfur conflicts. The dialogue was organized bythe Max Planck Institute for Comparative Public Law and International Lawin co-operation with the Peace Research Institute of Khartoum University.The meetings took place in Khartoum and, mostly, Heidelberg(Germany) for which reason the process became renowned in the regionas the Heidelberg Darfur Dialogue.

The negotiations among the Sudanese participants were chaired by Prof.Dr. Al-Tayeb Haj Ateya (Sudan) and myself, and relied on the goodoffices of the international legal experts and mediators H. R. H. PrinceRaad bin Zeid (Jordan), H. E. Prof. Dr. Tono Eitel (Germany), Dr. KamalHossain (Bangladesh), Prof. Rahmatullah Khan (India), H. E. Prof. Dr.Thomas A. Mensah (Ghana) and Judge Tafsir M. Ndiaye (Senegal).

The process focused on enabling Darfurian citizens to develop togethercomprehensive solutions addressing constitutional, political, economicand social aspects of the conflicts in Darfur. The final result of threeyears of intensive negotiations is the Draft Darfur Peace Agreement, theHeidelberg Darfur Dialogue Outcome Document that the Max PlanckInstitute for Comparative Public Law and International Law presents to alarger audience through the present publication which is launched inBerlin on 19 May 2010.

IV

The Outcome Document

The Heidelberg Darfur Dialogue Outcome Document is a Draft Darfur PeaceAgreement. Equally it is a constitution for the Region/States of Darfurwithin Sudan. In legal language, it retains the Heidelberg Group'sconsensus on provisions to be included in a future comprehensiveDarfur Peace Agreement. The draft includes criteria and guidelines forpower sharing, guarantees for human rights, provisions to ensureDarfur’s effective participation at all levels of federal government withinSudan, provisions on wealth sharing, development and management ofland and natural resources, provisions addressing transitional justiceand concerning compensation for those who have suffered in the Darfurconflict.

In detail, the Outcome Document foresees the possibility to establish, foran interim period, a Region of Darfur with its own competences andinstitutions as an additional level of government within Sudan. Theinternal organization of Darfur shall be based upon the rule of law andthe principles of democracy and accountable government. At the sametime, the Outcome Document contains provisions to strengthen localgovernment. The document envisages as one of three offeredalternatives that Darfur will be represented at the central government inKhartoum, possibly by a Second Vice President and a Senior Assistant tothe President. The marginalization of Darfur shall be redressed throughthe inclusion of Darfurians at all levels and in all branches ofgovernment and public service, including the military.

Human rights and fundamental freedoms in Darfur shall be reinforced,and their actual implementation shall be enhanced, through additionalguarantees in a bill of rights that forms part of the final Darfur peaceagreement.

The sharing of wealth and public revenues within Sudan shall follow theprinciples of fairness and equitable social and economic developmentthroughout the country. At the same time, the needs of rehabilitation,reconstruction and development of the war affected social and physicalinfrastructures in Darfur shall be taken into account. A DarfurReconstruction and Development Board shall be responsible for theadministration of funds and the sustainable management of regionaldevelopment projects.

V

Detailed provisions cover the assignment of fiscal responsibilities, theattribution of revenue bases and intergovernmental transfers betweenthe different levels of government, in particular between the centre andDarfur.

An extensive chapter addresses the development and management ofland and natural resources with a view to ensure their fair andsustainable use. This chapter contains provisions on traditional andhistorical rights to land, community land, the allocation of land toindividuals, communities and legal persons, and the development andmanagement of land through a Darfur Land Planning Commission.Moreover, the Outcome Document introduces mechanisms andinstitutions to facilitate the peaceful settlement of disputes on landissues. With respect to the use of natural resources, specific provisionsbalance the national, regional and local interests with a view to enabletheir sustainable use in compliance with international environmentalstandards.

Provisions on transitional justice rely on traditional Darfurian valuesand the principles of justice, accountability and reconciliation asenshrined in customary, national and international law. The criminalresponsibility of the most senior persons responsible for grave acts ofviolence in conjunction with the ongoing armed conflict in Darfur isconfirmed. Customary, national and international institutions areidentified as competent bodies to adjudicate on specific acts of violence.

Finally there is a chapter dealing with the question of compensation ofthose, individually or as group, have suffered during the Darfur conflict.

Acknowledgments

The Heidelberg Darfur Dialogue and the publication of the OutcomeDocument was made possible through the generous funding by theEuropean Union, the German Foreign Office and, mostly, the Max PlanckSociety for the Advancement of Science. It was facilitated by the committedadministrative support of the German and the Sudanese publicauthorities, in particular the staff of the Sudanese Embassy in Germanyand the German Embassy in Sudan. They helped us to make themeetings of the Heidelberg Group possible, and to make this document

VI

available to the ongoing peace process, thereby contributing to thebuilding of sustainable peace in Darfur.

Professor Dr. Rüdiger Wolfrum

VII

TABLE OF CONTENTS

ABBREVIATIONS ..................................................................................... XIII

DEFINITIONS ..............................................................................................XV

PREAMBLE AND GENERAL PRINCIPLES.............................................. 1

CHAPTER 1. SUDAN AND ITS PEOPLES............................................ 2

CHAPTER 2. THE REGION OF DARFUR............................................. 2

CHAPTER 3. BORDERS............................................................................ 3

CHAPTER 4. THE PEOPLES OF DARFUR ........................................... 3

CHAPTER 5. THE EXERCISE OF POWER............................................ 4

Part I. CRITERIA AND GUIDELINES FOR POWERSHARING ..................................................................................................... 5

Part II. HUMAN RIGHTS AND FUNDAMENTALFREEDOMS .................................................................................................. 7

Part III. FEDERAL SYSTEM: ALL LEVELS OF GOVERNMENTAND THEIR COMPETENCIES.............................................................. 16

CHAPTER 1. THE FEDERAL SYSTEM OF GOVERNMENT ........... 16

CHAPTER 2. THE NATIONAL LEVEL OF GOVERNMENT .......... 16

CHAPTER 3. THE REGIONAL LEVEL OF GOVERNMENT ........... 16

A. Power-Sharing within Darfur in the Interim Period................... 16

B. The Permanent Status of Darfur (Principles) ............................... 17

C. Functions and Powers of the Region of Darfur ........................... 17

D. The Government of Darfur............................................................. 18

VIII

E. The Executive of Darfur .................................................................. 19

E.1. The Governor of Darfur........................................................ 19

E.2. The Vice Governor of Darfur ............................................... 19

E.3. The Council of Ministers ...................................................... 19

E.4. Composition of the Executive prior to the Elections ........ 20

F. The Legislature of Darfur (prior to the Elections/ after theElections) ........................................................................................... 21

G. The Regional Elections Commission of Darfur ........................... 23

H. Census ............................................................................................... 23

I. The Judiciary of Darfur ................................................................... 23

CHAPTER 4. [Option THE STATE LEVEL OF GOVERNMENT] ...... 24

A. The State Executive ............................................................................ 24

B. The State Assembly............................................................................. 25

C. The State Judiciary ............................................................................. 26

CHAPTER 5. THE LOCAL LEVEL OF GOVERNMENT................... 26

A. Local Administration....................................................................... 26

B. Native Administration .................................................................... 28

CHAPTER 6. DARFUR’S EFFECTIVE PARTICIPATION INALL INSTITUTIONS AT THE FEDERAL LEVEL AND ATALL OTHER LEVELS OF GOVERNMENT ........................................ 29

A. The National Executive ................................................................... 29

A.1. Darfur’s Representation in the Presidency ........................ 29

IX

A.2. Darfur’s Representation in the Executive Branch of theFederal Government of the Sudan (FG) ............................. 35

B. The National Legislature ................................................................ 36

B.1. The National Assembly ........................................................ 36

B.2. The Council of States............................................................. 36

C. The National Judicial Organs......................................................... 37

D. The National Civil Service (NCS) .................................................. 37

E. Armed Forces, Law Enforcement Agencies and NationalSecurity.............................................................................................. 40

E.1. The Sudan Armed Forces (SAF) .......................................... 40

E.2. The Police................................................................................ 40

E.3. Darfur Regional Police.......................................................... 41

E.4. [Option Darfur States Police] ............................................... 41

F. Other National Institutions and Commissions............................ 41

G. Educational Institutions .................................................................. 42

Part IV. WEALTH [REVENUE] SHARING ............................................. 44

CHAPTER 1. GENERAL PRINCIPLES AND GUIDELINES ............ 44

CHAPTER 2. POLICIES TO BE PURSUED FOR THE SUDANIN GENERAL AND DARFUR IN PARTICULAR ............................. 45

CHAPTER 3. DARFUR RECONSTRUCTION ANDDEVELOPMENT BOARD (DRDB) ...................................................... 48

CHAPTER 4. FISCAL FEDERALISM ANDINTERGOVERNMENTAL RELATIONS ............................................ 50

A. Assignment of Fiscal Responsibilities........................................... 50

X

B. Assignment of Revenue Bases ....................................................... 51

C. Intergovernmental Transfers.......................................................... 54

C.1. Formulae/ratios..................................................................... 55

C.2. The Fiscal and Financial Allocation and MonitoringCommission (FFAMC) .......................................................... 56

C.3. Transfers ................................................................................. 56

C.4. Implementation...................................................................... 57

D. Specific Fiscal Entitlements of Darfur........................................... 58

E. External Sources of Finance............................................................ 58

F. Capacity Building ............................................................................ 59

G. Monitoring and Accountability ..................................................... 59

H. Darfur Development Policies ......................................................... 60

I. Reconstruction, Investment and Development ........................... 62

J. Joint Assessment Mission (JAM) for Darfur ................................ 62

CHAPTER 5. DEVELOPMENT AND MANAGEMENT OFLAND AND NATURAL RESOURCES................................................ 63

A. General Principles............................................................................ 63

B. Traditional and Historical Rights to Land.................................... 64

C. Community Land............................................................................. 65

D. Allocation of Land ........................................................................... 65

E. Planning and Sustainable Development of Land/LandPlanning Commission ..................................................................... 66

F. Land Commission............................................................................ 69

XI

G. Major Development Projects .......................................................... 71

H. Natural Resources............................................................................ 72

Part V. TRANSITIONAL JUSTICE.......................................................... 75

CHAPTER 1. GENERAL PRINCIPLES ................................................ 75

CHAPTER 2. INSTITUTIONS PROVIDING TRANSITIONALJUSTICE ............................................................................................ 76

CHAPTER 3. RESPECTIVE FUNCTIONS OF THEINSTITUTIONS PROVIDING TRANSITIONAL JUSTICE............... 78

A. International Criminal Court (ICC)............................................... 78

B. Hybrid Courts .................................................................................. 78

C. [Option The Extraordinary Chambers] .............................................. 80

D. Traditional Mechanisms ................................................................. 81

E. The National Judiciary of the Sudan............................................. 83

F. Compensation Programmes, as a Contribution to Peace........... 83

Part VI. COMPREHENSIVE CEASEFIRE AND FINALSECURITY ARRANGEMENTS.............................................................. 85

APPENDIX...................................................................................................... 88

Schedule (A): National Powers ................................................................. 88

Schedule (B): Powers of the Government of the Region of Darfur...... 90

[Schedule (C): Powers of States] ............................................................... 92

Schedule (D): Powers of Local Government ........................................... 92

Schedule (E): Concurrent Powers ............................................................. 93

Schedule (F): Residual Powers .................................................................. 94

XII

Schedule (G): Resolution of Conflicts in Respect of ConcurrentPowers ............................................................................................ 94

XIII

ABBREVIATIONS

ADB African Development Bank

AU African Union

CPA The Comprehensive Peace Agreement

DPA Darfur Peace Agreement

DRDB Darfur Reconstruction and Development Board

DRDF Darfur Reconstruction and Development Fund

FFAMC Fiscal and Financial Allocation and MonitoringCommission

FG Federal Government of the Sudan

IBRD International Bank for Reconstruction andDevelopment

ICC International Criminal Court

IDPs Internally Displaced Persons

INC Interim National Constitution of the Republic ofthe Sudan

JAM Joint Assessment Mission for Darfur

MDGs Millennium Development Goals

NCS National Civil Service

NRA National Revenue Account

NRF National Revenue Fund

SAF Sudan Armed Forces

XIV

UN United Nations

XV

DEFINITIONS

For the purpose of this Heidelberg Darfur Dialogue Outcome Document

“Demobilization” means the process through which the parties of thearmed conflict in Darfur begin to disband their military structure andformer combatants begin the process of transformation into civilian life.

“Disarmament” means the collection, control and disposal of smallarms, light and heavy weapons and includes de-mining.

“Displaced persons” means internally displaced persons or refugees.

“The elections” means the subsequent general elections to take placethroughout the Sudan.

“Former Combatants” means former members of the Movements’forces.

“Interim Period” means the time period of 7-10 years after the day afuture Final Peace Agreement for Darfur is signed.

“Internally Displaced Persons” (IDPs) means persons or groups ofpersons who have been forced or obliged to flee their homes or places ofhabitual residence, in particular as a result of, or in order to avoid, theeffects of armed conflict, situations of generalised violence, violations ofhuman rights or natural or man-made disaster and who have notcrossed an international border.

“Movements” means the Sudan People’s Liberation Movement/Armyand the Justice and Equality Movement.

“War-affected persons” means persons or groups of people who havesuffered persecution during the conflict in Darfur as well as those whoselife and livelihoods have been adversely affected as a result of theconflict-

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PREAMBLE AND GENERAL PRINCIPLES

The participants of the Heidelberg Darfur Dialogue

COMMITTED to contributing to a sustainable solution for the conflictin Darfur and to overcoming Darfur’s marginalization within the Sudan;

AFFIRMING the sovereignty, unity, and territorial integrity of theSudan and Darfur’s identity as an integral part of the Sudan;

MINDFUL of the previous agreements concerning peace in Darfur;

EMPHASIZING their commitment to the Interim National Constitutionof the Republic of the Sudan of 2005 (to be amended according to afuture Final Peace Agreement for Darfur); to the full implementation ofa Comprehensive Peace Agreement of January 2005; and to the AfricanUnion Decisions and United Nations Security Council Resolutionsconcerning the need to reach a political solution in order to bring theconflict in Darfur to an end;

CONDEMNING all acts of violence against civilians and violations ofhuman rights, and stressing the necessity that all parties to the ongoingarmed conflict in Darfur fully and unconditionally accept theirobligations under international humanitarian law, international humanrights laws, and relevant United Nations Security Council Resolutions;

CONVINCED that a future Final Peace Agreement for Darfur will haveto be negotiated not only between the national government of Sudanand the Movements, but also needs to take into account the voices of theDarfurian civil society and of the Darfurian population;

CONVINCED that a future Final Peace Agreement for Darfur will haveto rely also on the solution of conflicts between the Sudan and itsneighbouring countries that affect Darfur;

ENDORSE a future Final Peace Agreement for Darfur and thus submitthe following Heidelberg Darfur Dialogue Outcome Document,including its draft proposals for consideration in a future Final PeaceAgreement for Darfur.

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CHAPTER 1. SUDAN AND ITS PEOPLES

1. The Republic of the Sudan is an independent, sovereign State;sovereignty is vested in the people and shall be exercised by the Stateorgans on behalf of the peoples of the Sudan in accordance with theprovisions of the Interim National Constitution (INC) and a future FinalPeace Agreement for Darfur.

2. Religions, beliefs, traditions and customs are the source of moralstrength and inspiration for the Sudanese peoples. The cultural andethnic diversity of the Sudanese peoples is the foundation of nationalcohesion and therefore shall be promoted and developed. The Sudanesepeoples share a common heritage and aspirations, and accordingly agreeto work together.

CHAPTER 2. THE REGION OF DARFUR

3. The Region [and the three States] of Darfur (i.e. Northern Darfur,Southern Darfur and Western Darfur,) is [are] and will remain anintegral part of the Sudan.

4. For an Interim Period (of 7-10 years) to overcome the present crisisand until the population decides on the final status of Darfur, Darfurwill constitute a Region [presently composed of the three States of NorthernDarfur, Southern Darfur and Western Darfur] within the united Sudan

5. The Region of Darfur is committed to promoting democracy, therule of law, the principles of good governance, the protection of humanrights and the respect for ethnic, cultural and linguistic plurality, andequality between men and women on all governmental andadministrative levels. It [They] is [are] further committed to formulatingand implementing a repatriation, resettlement, rehabilitation,reconstruction and development plan to address the needs of those areasaffected by the armed conflict. The Region [and the States] is [are] furthercommitted to redressing the historical imbalances of development andresource allocation.

6. The Region [and the States] of Darfur, in cooperation with theFederal Government of the Sudan (FG), is [are] committed to finding and

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implementing a comprehensive solution that redresses the economicand social deterioration of Darfur and promotes social, political andeconomic justice respecting the fundamental human and political rightsof all peoples of Darfur.

CHAPTER 3. BORDERS

7. Without prejudice to the provisions of the Comprehensive PeaceAgreement (CPA) relating to the North-South border and anyinternational agreements in force between the Republic of the Sudan andits neighbouring countries, all borders of Darfur shall be demarcatedaccording to the borderlines of 1 January 1956. A technical ad hoccommittee shall be established to confirm the demarcation accordingly.1

CHAPTER 4. THE PEOPLES OF DARFUR

8. The peoples of Darfur have the right to control and govern theiraffairs in the Region [and the States] of Darfur, and to participateequitably in the FG, based upon fair representation which shall beproportional to the Darfurians’ percentage of the Sudanese population.

9. The National Civil Service (NCS), the National Armed Forces, thePolice and the Intelligence Services shall reflect at all levels a fair andequitable representation of all citizens, including those from Darfur.During the Interim Period, quota shall ensure that citizens from Darfurare represented in the NCS,2 the National Armed Forces, the Police andthe Intelligence Services in proportion to their percentage of the entireSudanese population.

10. To remedy the under-representation of women in governmentinstitutions and decision-making structures, a future Final PeaceAgreement for Darfur and a future Interim Constitution for Darfur willimplement special measures to ensure women’s equal and effectiveparticipation in decision-making at all levels of the Region [and theStates] of Darfur.

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CHAPTER 5. THE EXERCISE OF POWER

11. Power sharing is vital for national unity. Separation of thelegislative, executive and judicial powers shall consolidate goodgovernance, accountability, transparency and commitment to thewelfare of the people. The rule of law shall prevail and theindependence of the judiciary shall be guaranteed. The ConstitutionalCourt shall have the competence to decide any disputes between levelsor organs of government in respect of their exclusive, concurrent, orresidual competences.

12. The peaceful transfer of power on the basis of free and fairelections shall be the foundation for a democratic government in Darfur.Elections at all levels shall be based on free and direct voting, observedby neutral/international observers, with a view to ensuring fairparticipation of all Darfurians.

13. A peaceful devolution of powers through democratic means is aguarantor for stability and unity of the country. A federal system ofgovernment, with an effective devolution of powers and a cleardistribution of responsibilities between the centre, the Region [the States]and the local government is essential to ensure fair and equitableparticipation by the citizens of the Sudan in general, and those of Darfurin particular.

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Part I. CRITERIA AND GUIDELINES FOR POWERSHARING

14. Darfurians shall be included at all levels of government and in allpublic institutions of the Republic of the Sudan.

15. The inclusion of Darfurians at all levels of government and in allpublic institutions of the Republic of the Sudan shall be guaranteedthrough fair and equitable representation in proportion to theirpercentage of the entire Sudanese population.

16. With regard to the civil service, the judiciary, the armed forces, thepolice, the intelligence services and all other organs of government, theprinciple of inclusion shall be respected while taking into account therequired professional qualifications and competence. Specialeducational, training and public service employment opportunities willbe provided to enable Darfurians to participate fully and equally incontributing to the welfare of the nation. During the Interim Period,action shall be taken in favour of Darfurians in order to enhance theirrepresentation in public services.

17. In order to empower all sections of the population of Darfur and tobring government closer to the people, there is a need to integrateDarfurians into the administration of the political, economic, culturaland social affairs of Darfur. This policy shall be implementedimmediately after the conclusion of a future Final Peace Agreement forDarfur. In this context, it is necessary to initiate programmes that shallhelp remedy the adverse effects of the conflict.

18. The criteria and modalities for the exercise and/or the sharing ofpower after the subsequent elections shall be determined by the result ofthe elections and in accordance with the provisions of the INC (asamended according to a future Final Peace Agreement for Darfur).

19. In implementing a future Final Peace Agreement for Darfur, theparties to the armed conflict in Darfur shall act in accordance with theprinciples of good faith, transparency and accountability.

20. In their relationships to each other or to other government organs,all levels of government, including local government, shall be based on

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respect for each others’ autonomy and on mutual assistance andcollaboration concerning the task of governing and the fulfilment oftheir respective constitutional obligations.

21. Government organs at all levels, namely the national, regional[State] and local government, shall perform their functions and exercisetheir powers so as:

(a) not to encroach on the powers or functions of other levels,

(b) not to assume powers or functions conferred upon anyother level except as stipulated in a future InterimConstitution for Darfur,

(c) to promote cooperation between all levels of government,

(d) to promote open communication between all levels ofgovernment,

(e) to render assistance and support to all other levels ofgovernment,

(f) to advance good coordination of governmental functions,

(g) to adhere to procedures of inter-governmental interaction,

(h) to promote amicable settlement of disputes beforeattempting litigation,

(i) to respect the status and the institutions of all other levelsof government.

22. The harmonious and collaborative interaction of the differentlevels of government shall be guided by the spirit of national unity andthe achievement of a better quality of life for all.

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Part II. HUMAN RIGHTS AND FUNDAMENTALFREEDOMS

23. The Republic of the Sudan, including all levels of government andadministration, in particular the Region [and the States] of Darfur, shallprotect and promote, guarantee and implement the Bill of Rightsenshrined in the INC, a future Interim Constitution for Darfur, and afuture Final Peace Agreement for Darfur.

24. All rights and freedoms enshrined in international human rightstreaties, covenants and instruments ratified by the Republic of the Sudanshall be an integral part of this Bill.3

25. Citizenship shall be the basis for equal rights and obligations forall Sudanese.4

26. Every human being has a right to life, dignity and the integrity ofhis/her person. No person shall be arbitrarily deprived of his/her life.

27. Every person is entitled to freedom, safety and security. No personshall be subjected to arrest, detention, deprivation or restriction ofhis/her liberty, except in accordance with measures prescribed by thelaw and Sharia law, in particular in accordance with measuresprescribed by criminal procedural law or judicial orders.5

(a) An accused person is presumed innocent until provenguilty according to the law.

(b) Every person who is arrested shall be informed at thetime of arrest of the reasons for the arrest and shall beimmediately informed of the charges held againsthim/her. An accused person has the right to defendhimself/herself in person or through a lawyer of his/herown choice. Legal aid shall be assigned to him/her by theState where he/she is unable to defend himself/herself inserious offences.

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(c) An accused person is entitled to a fair trial within areasonable time as stipulated by the law. The law shallregulate trial in absentia.

(d) In all civil and criminal proceedings every person shall beentitled to a fair and public hearing by a competentordinary court of law in accordance with the proceduresprescribed by law.

(e) No accused person shall be charged with any act oromission which did not constitute an offence at the timeof its alleged commission.

(f) No person shall be denied the right to resort to justice.The right to litigation shall be guaranteed for all persons.

28. No person shall be subjected to torture or undergo cruel,inhumane or degrading treatment or unlawful punishment.

29. The death penalty shall:

(a) not be imposed except as retribution or punishment forextremely serious offences in accordance with the law,

(b) not be imposed on a person who was under the age ofeighteen when the crime was committed or a person whohas attained the age of seventy except in cases ofretribution or hudud,

(c) not be executed upon pregnant or lactating women,except after two years of lactation.6

30. As a matter of principle, excessive punishment or punishmentamounting to torture shall be considered unconstitutional.

31. All persons are equal before the law and are entitled, withoutdiscrimination as to race, colour, ethnic origin, tribal affiliation, regional

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provenance, gender, language, religious creed, political or other opinionto the equal enjoyment of all human rights.

32. Women and men shall be guaranteed the equal enjoyment of allhuman rights enshrined in the human rights treaties to which theRepublic of the Sudan is a party.

33. The enjoyment of these rights includes the right to equal pay forequal work and other related benefits. The Region [and the States] ofDarfur shall promote women’s rights through affirmative action. TheRegion [and the States] of Darfur shall combat any harmful customs andtraditions, which undermine the dignity and the status of women.7

34. Family is the basis of society and shall be protected by the law.Men and women shall enjoy the right to marry and to found a family inaccordance with their respective family laws.

35. The Region [and the States] of Darfur shall protect motherhood andwomen from injustice, promote equality between women and men,enhance the role of women in family, and empower them in public life.8

36. The Region [and the States] of Darfur shall give equal access tomedical care for mothers and pregnant women.

37. The Region [and the States] of Darfur shall give equal access tomedical care for children, in particular children in need, persons withspecial needs and the elderly, in line with regional and internationalinstruments ratified by the FG.

38. The Region [and the States] of Darfur shall protect the rights of thechild, as provided in the universal and regional human rights treatiesratified by the FG.

39. Slavery and slave trade in every form is prohibited. No personshall be required to perform forced or compulsory labour except as apenalty upon a conviction by a competent court of law.

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40. Every citizen who has attained the age specified by law shall havethe right, without discrimination or restriction to vote at any electionand to run for any public office based on universal adult suffrage insecret ballot, as shall be stipulated by law.

41. The privacy of all persons shall be respected and no person shallbe subject to coercive or unlawful invasion of his/her privacy, familylife, home or correspondence except in accordance with law in ademocratic society.

42. Every person shall have the right – individually or jointly withother individuals – to acquire or own property as regulated by law. Noprivate property may be expropriated except on the basis of law in thepublic interest. Persons who are expropriated from their property shallbe consulted first and have a right to prompt and adequatecompensation. No private property shall be confiscated except by orderof a court of law.

43. Every person shall have the right to freedom of movement and fullliberty to choose his/her residence except as regulated by law. Everycitizen shall have the right to leave the country as shall be regulated bylaw and shall have the right to return.

44. Every person shall have an equal right to work and trade withinthe regulations prescribed by law.

45. Every person shall have the right to freedom of religious belief andworship. The Region [and the States] of Darfur shall respect the religiousrights to:

(a) worship or assemble in connection with any religion orbelief and to establish and maintain places for suchpurposes,

(b) establish and maintain appropriate charitable orhumanitarian institutions,

(c) acquire and possess movable and immovable propertyand make, acquire and use the necessary articles and

11

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materials related to the rites or customs of a religion orbelief,

(d) publish religious writings,

(e) teach religion or belief in places suitable for thesepurposes,

(f) solicit and receive voluntary financial and othercontributions from individuals, private and publicinstitutions,

(g) train, appoint, elect or designate by successionappropriate religious leaders called for by therequirements and standards of any religion or belief,

(h) observe days of rest, celebrate holidays and ceremonies inaccordance with the precepts of religious beliefs,

(i) communicate with individuals and communities onmatters of religion and belief at national and internationallevels.9

46. Every person shall have an unrestricted right to freedom ofexpression, reception and dissemination of information and publicationas determined by law in a democratic society. The Region [and the States]of Darfur shall guarantee the right to the freedom of press and othermedia in a competitive environment, as shall be regulated by law in ademocratic society. All media shall abide by professional ethics, shallrefrain from inciting religious, ethnic, racial, tribal, or cultural hatredand shall desist from advocating violence or war.

(a) The Region [and the States] of Darfur shall have the rightto issue licenses for publishing houses, radio and TVstations and newspapers as determined by the law in ademocratic society.

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12

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(b) The right to access of information shall be guaranteedwithout any restrictions.

47.

(a) The right to peaceful assembly shall be guaranteed.

(b) Every person shall have the right to freedom ofassociation with others, including the right to form or joinpolitical parties, associations and trade or professionalunions for the protection of his/her interests.

(c) Formation and registration of political parties,associations and trade unions shall be regulated by law.

(d) Every association shall have the right to register and tofunction as a political party in accordance with the lawand in particular if:

(i) its membership shall be open to all Sudaneseirrespective of race, colour, ethnic origin, tribalaffiliation, regional or local provenance, sex, gender,language or religious creed,

(ii) it shall have a programme that does not contradictthe provisions of the INC, a future Final PeaceAgreement for Darfur, or a future InterimConstitution for Darfur,

(iii) it shall disclose in a transparent manner all sourcesof funding.

(e) There shall be an independent and impartial office of theRegistrar on the regional [and/or the State] level of Darfurto supervise the registration of political parties inaccordance with the Federal Act on Political Parties andthe disclosure of funds. All authorities shall respect thelegal rights and freedoms of the political parties. TheConstitutional Court shall protect these rights andfreedoms.

13

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(f) Civil society associations do not require registration.10

48. Ethnic and cultural communities shall have the right to practicetheir beliefs, use their languages and develop their cultures inaccordance with their customs.

49. The Region [and the States] of Darfur shall recognize and protectthe intellectual property rights of each citizen deriving from his/herscientific, literary or artistic production. Enterprises holding transferredintellectual property rights shall enjoy equal protection before the law.

50. The FG, the Region [and the States] of Darfur shall encourage andpromote arts and crafts, and foster their patronage by governmentinstitutions and citizens.

51. The FG, the Region [and the States] of Darfur shall recognize thecultural diversity of the country and shall encourage such diversecultures to flourish harmoniously and find expression through themedia and education.

52. The Region [and the States] as well as the local government ofDarfur shall provide equal access to education, including free andcompulsory primary education without discrimination on the basis ofany of the criteria mentioned in Article 31.11

53. The FG, the Region [and the States] of Darfur shall promoteeducation at all levels all over the Sudan, ensure free and compulsoryeducation at the primary level, offer illiteracy eradication programmesand mobilize public, private and popular resources and capabilities tofoster education, development and scientific research.

54. The FG, the Region [and the States] of Darfur shall guaranteeacademic freedom in institutions of higher education and shall protectthe freedom of scientific research within the ethical parameters ofresearch.12

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14

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55. Every person or group of persons shall have the right to establishand maintain private schools and other educational institutions at alllevels in accordance with the conditions and standards provided by law.

56. The Region [and the States] of Darfur shall promote public health,establish, rehabilitate and develop basic medical and diagnosticinstitutions, and provide free primary health care and emergencyservices for all citizens.13

57. The Region [and the States] of Darfur shall guarantee to personswith special needs the enjoyment of all the rights and freedoms set outin this Bill of Rights, especially in respect of their human dignity, accessto suitable education, employment, social, vocational, creative orrecreational activities and full participation in society.14

58. The elderly shall have the right to respect of their dignity. TheRegion [and the States] of Darfur shall provide them with the necessarycare and medical services as shall be regulated by law.15

59. The FG, the Region [and the States] of Darfur shall take thenecessary legislative and other measures to protect and promote thedevelopment of the country’s natural resources and to combatenvironmental degradation.

60. The FG, the Region [and the States] of Darfur shall develop policiesand strategies to ensure social justice among all the people of the Sudan,by ensuring means of livelihood and opportunities of employment,specifically supporting the war-affected population of Darfur. The FG,the Region [and the States] of Darfur shall also encourage mutualassistance, self-help, cooperation and charity.

61. The overarching aims of economic development shall beeradication of poverty, attainment of the Millennium DevelopmentGoals (MDGs), guaranteeing the equitable distribution of wealth,redressing imbalances of income and achieving a decent standard ofliving for all citizens.

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15

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62. The FG, the Region [and the States] of Darfur shall develop andmanage the national economy in order to achieve prosperity throughpolicies aimed at increasing production, creating an efficient and self-reliant economy and encouraging a free market and prohibitingmonopolies.

63. The FG, the Region [and the States] of Darfur shall enhance regionaleconomic integration.16

64. The FG, the Region [and the States] of Darfur shall protect Sudan’scultural heritage, monuments and places of national historic or religiousimportance, from destruction, desecration, unlawful removal or illegalexport.

65. There shall be no derogation of the above rights and freedomsexcept as provided for in the INC. The Human Rights Commissionprovided for in the INC, which shall enjoy full independence, shallmonitor the application of the rights and freedoms provided for herein.

66. All existing laws shall be revised in accordance with theprovisions of the INC, a future Final Peace Agreement for Darfur, and afuture Interim Constitution for Darfur.

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16

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Part III. FEDERAL SYSTEM: ALL LEVELS OFGOVERNMENT AND THEIR COMPETENCIES

CHAPTER 1. THE FEDERAL SYSTEM OF GOVERNMENT

67. The Republic of the Sudan has a federal system of government inwhich power shall be effectively devolved.

68. During the Interim Period and pending a final decision on thestatus of Darfur, governmental competences and responsibilities inDarfur shall be equally distributed between the national, regional [State]and local levels of government in accordance with the provisions of theINC, a future Final Peace Agreement for Darfur, and a future InterimConstitution for Darfur.

CHAPTER 2. THE NATIONAL LEVEL OF GOVERNMENT

69. The institutions at the national level are those as set out in the INC.

CHAPTER 3. THE REGIONAL LEVEL OF GOVERNMENT

A. Power-Sharing within Darfur in the Interim Period

70. Federalism would be strengthened, if Northern Sudan were toreturn to its former six States, Northern, Eastern, Central, Khartoum,Kordofan and Darfur.

71. Darfur emphasizes its right, in a procedure to be adopted, to beorganized as a Region; the structure of the Region shall embrace agreedpower-sharing arrangements between its different cultural, social orgeographic communities.

72. Because of the divide resulting from the current conflict, specialpower-sharing arrangements need to be made for the Interim Period.

73. During the aforementioned period, Darfurian governmentalstructures need to be inclusive. They should give due consideration tothe participation of all cultural, geographic or social communities andrespect diversity, in a manner to be agreed upon by these communities.

17

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Inclusive participation at all levels of the Darfurian government(regional [State], local) and the administration should be ensured byprofessionally qualified civil personnel, with a view to achievingconsensus among all Darfurians on the best possible administration forthe Region.

B. The Permanent Status of Darfur (Principles)

74. The permanent status of the Region of Darfur shall reflect theconstitutional principles of government at the national level.

75. The principles of the rule of law, democracy and accountabilityshall be applicable in Darfur.

76. The character of the Region of Darfur, as defined by cultural andhistorical traditions and ties, shall be respected.

77. It is of paramount importance that the governmental system forthe Region of Darfur in the post-Interim Period shall not bemonopolized by one or several communities. The cultural and socialdiversity of Darfur shall be preserved on the basis of its organizationalstructure and be considered an asset of the Region of Darfur.

C. Functions and Powers of the Region of Darfur

78. The functions of the Region are:

(a) the establishment and coordination of the economicrestructuring and rehabilitation of Darfur,

(b) the coordination of the restoration of security and thepromotion of peace and reconciliation throughout Darfur,

(c) the establishment, coordination and implementation ofprogrammes for the repatriation of refugees andinternally displaced persons (IDPs), including aprogramme for prompt and adequate compensation forthose whose life or livelihood has been adversely affectedduring the conflict,

18

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(d) development and implementation of policies directed atthe central government,

(e) the establishment and supervision of the implementationof policies concerning the protection of the environment,

(f) the establishment and monitoring of the implementationof principles concerning the use of land.

79. The functions and powers of the regional government of Darfurshall be set out in a future Final Peace Agreement for Darfur (includingits Schedules), the INC, and a future Interim Constitution for Darfur.17

D. The Government of Darfur

80. The institutions at the regional level of Darfur shall consist of:

(a) the legislature of Darfur,

(b) the executive of Darfur,

(c) the judiciary of Darfur, and

(d) such other institutions and commissions as may bespecified in a future Interim Constitution for Darfur.

81. These institutions shall function in accordance with the InterimConstitution for Darfur, which shall be drafted by an inclusive DraftingCommittee and adopted by the transitional parliament of Darfur by atwo-thirds majority of all members. The Interim Constitution for Darfurshall conform to the wording of the INC.18

82. A primary responsibility of the regional government of Darfurshall lie in the promotion of good governance, development and justice,in the exercise of authority in respect of the Region of Darfur, in the

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19

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creation of a link to the FG [and the States of Darfur], and in the assuranceof the protection of rights and interests of the peoples of Darfur.19

E. The Executive of Darfur

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83. The Governor of the Region of Darfur shall be elected directly bythe people of Darfur according to the Interim Constitution for Darfur.Such elections shall be held in accordance with the provisions set forthby the National Elections Act. The tenure of office of the Governor ofDarfur shall be five years commencing from the date of assumption ofoffice; he/she may be re-elected for one additional term only. Should thepost of the Governor of the Region of Darfur fall vacant, pending theelections within sixty days and swearing in of the Governor elect, thefunctions of the Governor of the Region of Darfur shall be assumed bythe Vice Governor of the Region of Darfur.20

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84. The Vice Governor of the Region of Darfur shall be appointed inaccordance with the provisions of the Interim Constitution for Darfur.21

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85. A council of ministers shall be appointed by the Governor of theRegion of Darfur in consultation with the Vice Governor and uponapproval by the parliament of the Region of Darfur. The council ofministers shall be established with due regard to the need forinclusiveness and shall represent all parts of the population of Darfur,including women and ethnic minorities.

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20

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86. The Governor and the Vice Governor of the Region of Darfur shallbe members of the council of ministers.22

87. The council of ministers shall be accountable to the Governor andto the parliament of the Region of Darfur in the performance of itsfunctions and may be removed by a motion supported by a two-thirdsmajority of all members of the parliament.23

88. The government of the Region of Darfur shall discharge its dutiesand exercise its competences in regard to administrative, security,financial and development issues as set forth in the INC, a future FinalPeace Agreement for Darfur, a future Interim Constitution for Darfurand any other agreement relating to the development and reconstructionof Darfur.24

89. The government of the Region of Darfur shall establish suchindependent institutions as provided for by a future Final PeaceAgreement for Darfur and a future Interim Constitution for Darfur. Itshall be empowered to establish such other commissions andinstitutions compatible with its powers, as it deems necessary topromote the welfare of the people of Darfur, good governance andjustice.25

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[Option 1

90. Pending general elections, the Governor and the Vice Governor of theRegion of Darfur shall be appointed by the President of the Republic of theSudan in consultation with the First Vice President.]

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21

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[Option 2

90. Pending general elections, the State Assemblies of Northern Darfur,Southern Darfur and Western Darfur sitting in joint session shall appoint theGovernor and the Vice Governor of the Region of Darfur.]

[Option 3

90. Pending general elections, the Governors of the three States of Darfurshall perform the functions of the Governor of the Region of Darfur as acollegial organ. The position of the chair may rotate on a six-month basis.Pending general elections, two ministerial positions and one senior advisor inthe government of Darfur as well as at least one person at a senior level in eachregional ministry shall be allocated to nominees of the Movements.26]

91. The regional government must improve the effectiveness of itsservices. Competences shall be allocated clearly and overlappingspheres of responsibility shall be avoided. A comprehensive capacitybuilding programme strengthening the regional government shall beimplemented immediately. In order to avert tribalism, nepotism andcorruption, the regional government shall be guided by objective andtransparent criteria in its recruitment policy and procedures. Specialregard should be paid to the professional experience of its employees,their impartiality as civil servants and their accountability. Acomprehensive capacity-building programme strengthening the regionalgovernment has to be implemented immediately as to improve servicedelivery to the people. Programmes shall be developed to enhance therepresentation of women.

F. The Legislature of Darfur (prior to the Elections/ after theElections)

92. Prior to general elections, a transitional parliament of the Regionof Darfur shall be constituted to adopt the Interim Constitution for

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22

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Darfur; it shall thereafter be reconstituted into the parliament[legislature] of Darfur.27

[Option 1 Unicameral

93. The parliament of the Region of Darfur shall be elected in general, free,equal, secret and direct elections in accordance with the Interim Constitutionfor Darfur and the INC.]

[Option 2 Bicameral

93. The legislature of the Region of Darfur shall be elected in general, free,equal and secret elections in accordance with the Interim Constitution forDarfur and the INC. The legislature of the Region of Darfur consists of the[first chamber] and the [second chamber]. The members of the [first chamber]are elected by direct suffrage. The members of the [second chamber] are electedby indirect suffrage. The [second chamber] assures the representation of thevarious ethnic and social groups. Its composition shall reflect the diversity of thepopulation of Darfur.]

[Option 3 Bicameral - interim

93. The legislature of the Region of Darfur shall be elected in general, free,equal and secret elections in accordance with the Interim Constitution forDarfur and the INC. During the Interim Period the legislature of the Region ofDarfur shall consist of two chambers, the [first chamber] and the [secondchamber]. The members of the [first chamber] are elected by direct suffrage. Themembers of the [second chamber] are elected by indirect suffrage. The [secondchamber] assures the representation of the various ethnic and social groups. Itscomposition shall reflect the diversity of the population of Darfur. Apart fromapplicable national legislation on matters falling within the sole authority of thenational government, legislative authority in Darfur shall be vested in thelegislature of the Region of Darfur. It is to determine its rules of procedure andelect its Speaker, Deputy Speaker and other officers as shall be regulated in theInterim Constitution for Darfur.28]

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23

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Composition prior to the Elections

[Option 1

94. Pending elections, the transitional parliament of the Region of Darfurshall be composed of delegates sent by the three Darfurian State Assembliesaccording to the percentage of the States’ populations of the overall populationof Darfur. The delegates shall mirror the ethnic and political composition of thesending States.]

[Option 2

94. Pending elections, the seats in the transitional parliament of the Regionof Darfur shall be allocated as follows: Percentages for different groups, e.g.women, the Movements, civil society representatives, National Congress Party,other political parties shall be reserved.]

G. The Regional Elections Commission of Darfur

95. The regional parliament shall enact a Regional Elections Lawwhich shall specify general rules and procedures to govern elections aswell as functions, terms and conditions of service of the RegionalElections Commission.

H. Census

96. After the signature of a future Final Peace Agreement for Darfurthe census will be undertaken in Darfur by a regional CensusCommission to be established by a regional legislative act. Such censusshall be undertaken under the supervision of the National StatisticalCouncil.

I. The Judiciary of Darfur

97. Judicial competences in the Region of Darfur shall be vested in thejudiciary of Darfur. The judiciary of the Region of Darfur shall beindependent of the executive and legislative branches of government.The judiciary of the Region of Darfur shall be structured according to

24

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the Interim Constitution for Darfur.29 Justices and judges of the Region ofDarfur are independent and shall perform their functions withoutinterference, administer justice and apply the law without fear or favour.The provisions of the INC, the Interim Constitution for Darfur and thelaw shall protect their independence. The legislature of the Region ofDarfur shall provide by law for appointments, terms and conditions ofservice and the dismissal of justices and judges appointed in the Regionof Darfur in accordance with the INC and applicable federal law.30

CHAPTER 4. [Option THE STATE LEVEL OF GOVERNMENT]

[98. There shall be executive, legislative, and judicial organs at the State level,which shall function in accordance with the INC, a future Final PeaceAgreement for Darfur and a future Interim Constitution for Darfur. The Stateshall promote and empower the local government. Organisation of the localgovernment and elections to its respective institutions shall be conducted inaccordance with the relevant State Constitution.

A. The State Executive

99. The State executive shall be headed by a State Governor elected by thepeople of a State in compliance with the procedures prescribed by the NationalElections Act and in accordance with the INC, the Interim Constitution forDarfur, the relevant State Constitution and the law. 31

100. The State council of ministers shall be appointed by the State Governor inaccordance with the State Constitution. The State council of ministers shall beestablished with due regard to the need for inclusiveness and represent all partsof the population of Darfur, including women and ethnic minorities.

101. The State ministers shall be accountable to the State Governor and theState legislature in the performance of their functions and may be removed bythe State Governor on a motion supported by two-thirds of all the members ofthe State legislature.

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25

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102. The State Governor shall exercise such executive powers of the Statetogether with the State council of ministers as are conferred upon the State bythe INC, a future Final Peace Agreement for Darfur, the Interim Constitutionfor Darfur, and the State Constitution.32


103. The State Governor of one of the three existing States of Darfur, as wellas two Deputy Governors of the other two States of Darfur shall be nominatedby the Movements. Two ministerial positions and one senior advisor in each ofthe three States of Darfur, and, in accordance with the principle established inArticle 90 (Option 3) at least one person at a senior level in each State ministry,shall be allocated to nominees of the Movements.33

B. The State Assembly

104. There shall be a State Assembly comprised of members elected inaccordance with the electoral provisions as set forth by the National ElectoralAct. The State Assemblies shall prepare and adopt the respective StateConstitutions provided that they are in conformity with the INC, a future FinalPeace Agreement for Darfur and a future Interim Constitution for Darfur. TheState Assemblies shall provide for their own rules, procedures, and committeesand elect their speakers and other officers.34 The State Assemblies shall have law-making competency as laid out in Schedule C.35

105. Elections for the State Assemblies shall be held in accordance with theprovisions of the INC, a future Final Peace Agreement for Darfur and theInterim Constitution for Darfur. Thereafter, the number of seats shall be asdetermined by the State Constitutions.36

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26

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106. Prior to the State elections, seats in the Assembly of each of the threeDarfur States shall be increased to 73. [Of these, 21 seats in each Statelegislature shall be allocated to the nominees of the Movements.]37

107. The deputy speakers of the Darfur States’ legislative assemblies shall benominees of the Movements.

(It remains necessary, should this option be embraced, to clearly provide for adivision of legislative and executive competencies between the Region [and/orStates] and the federal level.)

C. The State Judiciary

108. The State Constitutions shall provide for the establishment of such Statecourts as necessary. State legislation must provide for the appointment anddismissal of State-appointed judges (lay magistrates), for guarantees ofindependence and impartiality of the judiciary, and ensure that judges shall notbe subject to political or other interference.38]

CHAPTER 5. THE LOCAL LEVEL OF GOVERNMENT

A. Local Administration

109. Local government as the lowest level of government and closest tothe people should be strengthened. Local government is essential infulfilling the commitment of vesting sovereignty in the people, bringingpower to the grassroots and ensuring the effective participation of thecitizens. The recent changes in the Darfurian society should be reflectedin the composition of local government while taking into account theestablished historical and communal traditions, customs and practices.

110. Out of respect for the traditions and customs in Darfur, the nativeadministration is to form an integral but distinct part of local

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27

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government. Competences of the local government and its inter-relationship with the native administration are to be defined preciselyby law enacted by the legislature[s] of the Region [and/or States]39 ofDarfur. Size, number and demarcation of geographical units of localgovernment have to be reviewed.

111. Particular attention shall be paid to the situation of border tribes.The trans-border social, cultural and economic relations should besafeguarded through agreements with the neighbouring countriesconcerned.

112. Local government must improve the effectiveness of its services byensuring the clear allocation of competences and reducing/abolishingoverlapping spheres of responsibility. In order to avert tribalism,nepotism and corruption, local government shall be guided by objectiveand transparent criteria in its recruitment policy and procedures. Specialregard should be paid to the professional experience of its employees,their impartiality as civil servants and their accountability. Acomprehensive capacity-building programme strengthening the localgovernment has to be implemented immediately as to improve servicedelivery to the people. Programmes shall be developed to enhance therepresentation of women.

113. Amongst others, the local government shall be concerned with:

(a) urban land issues [and natural resources] [including disputeresolution] with due regard to the functions exercised bythe Darfur Land Commission,

(b) assisting the government[s] of the Region [and the States]of Darfur in implementing the demobilization,disarmament and re-integration schemes,

(c) the reintegration of IDPs and refugees,

(d) the management of water resources,

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28

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(e) the collection of local charges/fees,

(f) general public service delivery,

(g) elementary education,

(h) primary health care,

(i) security management on the local level,

(j) environmental issues.

114. Local government shall receive funds commensurate to thefunctions they shall perform. Every five years a review shall beundertaken to reassess whether the funds transferred to them inaccordance with Article 185 are adequate.

115. Municipal councils have legislative functions concerning localaffairs. In accordance with the INC,40 members of the local legislativecouncils are to be elected democratically. The Region [the States] ofDarfur shall enact a comprehensive act on local government within 12months after the signing of a future Final Peace Agreement for Darfurdetailing its competences and its organization, its relation to thegovernment of the Region [and the States] of Darfur, as well as itsrelationship to the native administration. Such local government actshall provide for twenty-five percent (25%) representation of women inthe legislative councils.

B. Native Administration

116. The native administration of Darfur is part of its cultural heritageand provides for the Darfurian identity. The establishment of the nativeadministration shall follow the tradition and customs of the communityconcerned.

117. A Council of Elders as custodians of traditions and customs shallbe established to oversee the implementation of the traditions and

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customs and to recommend their modification if modern developmentsso require.

118. In case of conflict, the national, regional [and State] Constitution orlaw shall prevail over community traditions, customs and practices.

119. It will be the function of the native administration to provide forthe security of all persons living under its jurisdiction under thesupervision of the local administration.

120. Among others, the native administration shall cooperate with andassist the local government in the repatriation, resettlement andcompensation of IDPs and refugees.

121. The reasonable costs of the assisting functions of the nativeadministration shall be carried by the local government.

CHAPTER 6. DARFUR’S EFFECTIVE PARTICIPATION IN ALLINSTITUTIONS AT THE FEDERAL LEVEL AND AT ALL OTHERLEVELS OF GOVERNMENT

A. The National Executive

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[Option 1

122. In making appointments to determine the composition of the Presidencyduring the period after signing a future Final Peace Agreement for Darfur aVice President from Darfur (Second Vice President) shall be appointed inconsultation with the government[s] of the Region [and the States of Darfur].

[Option 2 Senior Assistant to the President

122. Upon the signing of a future Final Peace Agreement for Darfur, thePresident of the Republic of the Sudan shall appoint a Senior Assistant to thePresident from a list of nominees provided for by the Movements. The Senior

30

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Assistant shall be the fourth ranking member in the Presidency.41

123. The Senior Assistant shall have powers enabling him/her to influencenational policies. To this end, he/she shall be a member of, inter alia, theNational Council of Ministers, the National Security Council and the NationalPlanning Council and shall participate in their deliberations and decision-making. In addition, the Senior Assistant shall:

(a) serve as the focal point and Principal Advisor to the Presidenton the implementation of a future Final Peace Agreement forDarfur,

(b) have primary responsibility for assisting the President on allmatters pertaining to Darfur,

(c) coordinate the formulation and implementation of plans,policies and programmes concerning Darfur, includingrehabilitation, reconstruction and development of Darfur, aswell as facilitate the return of refugees and IDPs,

(d) having consulted the FG and the Movements, appoint theHeads of the Darfur Rehabilitation and ResettlementCommission (DRRC), the Darfur Reconstruction andDevelopment Fund (DRDF) respectively the DarfurReconstruction and Development Board (DRDB),42 the DarfurLand Commission, the Darfur Security ArrangementsImplementation Commission, the Darfur Peace andReconciliation Council, the Darfur Compensation Commission,and such other bodies as may be agreed upon by the FG and theMovements. In making such appointments, the SeniorAssistant to the President shall consider prominent and well-respected individuals who are capable of commanding theconfidence of all parties to the armed conflict in Darfur.

124. In addition to the Senior Assistant, the President shall also appoint oneAdvisor to the President from among the people of Darfur.

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125. Following the general elections throughout the Sudan, the Governor ofthe Region [and the three Governors of the States] of Darfur shall present ajoint list of three nominees as candidates for the post of Senior Assistant to thePresident. The President shall appoint the Senior Assistant from among thecandidates presented.]

[Option 3 Second Vice President in personal union with the Governor of theRegion of Darfur

122. The President of the Republic of the Sudan shall appoint the person whohas been elected Governor of the Region of Darfur as the Second Vice Presidentof the Republic of the Sudan. The Second Vice President shall be the thirdranking member in the Sudanese Presidency. The Second Vice President shallsatisfy the same conditions required for the office of the President of theRepublic of the Sudan. To assume his/her office the Second Vice President shalltake before the President of the Republic of the Sudan the same oath as thelatter.

123. The Second Vice President appointed in accordance with Article 122shall:

(a) act in the absence of the President of the Republic of the Sudanand the First Vice President in accordance with the provisionsof the INC as amended by a future Final Peace Agreement forDarfur,

(b) supervise ministers and federal commissions in accordance withthe INC as amended by a future Final Peace Agreement forDarfur,

(c) be a member of the National Council of Ministers,

(d) be a member of the National Security Council,

(e) be a member of the Presidential Council,

(f) be a member of the Foreign Affairs Council,

(g) be a member of the National Planning Council,

32

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(h) be Commander-in-Chief of Sudan Armed Forces (SAF) shouldthe office of the President of the Republic of the Sudan fallvacant according to Articles 65 and 66 INC as amended43 and

(i) execute any other function or duty that may be assigned tohim/her by the President.

In addition the Second Vice President shall:

(a) serve as the focal point and Principal Advisor to the Presidenton the implementation of this Agreement,

(b) have primary responsibility within the Presidency for allmatters pertaining to Darfur; his/her consent shall be requiredfor all decisions affecting Darfur,


(d) appoint the Heads of the Darfur Rehabilitation andResettlement Commission (DRRC), the Darfur Reconstructionand Development Fund (DRDF) respectively the DarfurReconstruction and Development Board(DRDB),44 the DarfurLand Commission, the Darfur Security ArrangementsImplementation Commission, the Darfur Peace andReconciliation Council, the Darfur Compensation Commissionand of such other bodies as may be agreed by the parties to thearmed conflict in Darfur. In making such appointments, theSecond Vice President shall consider prominent and well-respected individuals who are capable of commanding theconfidence of all parties to the armed conflict in Darfur.

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124. Should the office of the Second Vice President fall vacant, the President ofthe Republic of the Sudan shall appoint a new Second Vice President fromDarfur in accordance with a future Final Peace Agreement for Darfur.45

125. In addition to the Second Vice President, the President shall also appointfrom among Darfurians one or more advisor(s) to the President.46]

[Option 4 Second Vice President different from the Governor of Darfur

122. The President of the Republic of the Sudan shall appoint a person fromDarfur as the Second Vice President of the Republic of the Sudan. The SecondVice President shall be member in the Sudanese Presidency.

123. The President shall appoint a person from a list of candidates

Sub-Option 1: nominated by the legislative councils of Darfur (recommendedoption).

Sub-Option 2: nominated by the Governors of the States of Darfur.

Sub-Option 3: nominated jointly by the Governor of the Region of Darfur andthe Governors of the States of Darfur.

Sub-Option 4: nominated by the legislature of the Region of Darfur.

Sub-Option 5: nominated by the legislatures of the States of Darfur.

Sub-Option 6: nominated by the Governor of the Region of Darfur.

124. The Second Vice President appointed in accordance with Article 122shall:

(a) act in the absence of the President of the Republic of the Sudanand the First Vice President in accordance with the provisionsof the INC as amended by a future Final Peace Agreement forDarfur,

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(b) supervise ministers and federal commissions in accordance withthe INC as amended by a future Final Peace Agreement forDarfur,

(c) be a member of the National Council of Ministers,

(d) be a member of the National Security Council,

(e) be a member of the Presidential Council,

(f) be a member of the Foreign Affairs Council,

(g) be a member of the National Planning Council,

(h) be Commander-in-Chief of Sudan Armed Forces (SAF) shouldthe office of the President of the Republic of the Sudan fallvacant according to Articles 65 and 66 INC as amended47 and

(i) execute any other function or duty that may be assigned tohim/her by the President.

In addition the Second Vice President shall:

(a) serve as the focal point and Principal Advisor to the Presidenton the implementation of this Agreement,

(b) have primary responsibility within the Presidency for allmatters pertaining to Darfur; his/her consent shall be requiredfor all decisions affecting Darfur,


(d) appoint the Heads of the Darfur Rehabilitation andResettlement Commission (DRRC) and the DarfurReconstruction and Development Fund (DRDF) respectively

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the Darfur Reconstruction and Development Board (DRDB)48,the Darfur Land Commission, the Darfur SecurityArrangements Implementation Commission, the Darfur Peaceand Reconciliation Council, the Darfur CompensationCommission, and of such other bodies as may be agreed by theparties to the armed conflict in Darfur. In making suchappointments, the Second Vice President shall considerprominent and well-respected individuals who are capable ofcommanding the confidence of all parties to the armed conflictin Darfur.

125. The Second Vice President shall monitor the Governor of the Region ofDarfur and the Governor shall monitor him/her regarding issues related toDarfur.]

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126. After the signing of a future Final Peace Agreement for Darfur andprior to the subsequent general elections throughout the Sudan andDarfur in particular, and with a view to reflecting the need for unity andinclusiveness, the FG shall ensure effective representation of Darfurians,including the Movements, so as to ensure that Darfurians arerepresented at the level of cabinet ministers and State ministersproportional to the representation of the population of Darfur. As aminimum, Darfurians shall be represented as follows:

(a) three posts of cabinet minister and three posts of Stateminister currently held by Darfurians shall continue to beheld by Darfurians,

(b) one additional post of cabinet minister and two additionalposts of state ministers shall be allocated to nominees ofthe Movements,

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(c) the chairmanship of one of the parliamentary committeesof the National Assembly shall be allocated to a nomineeof the Movements,

(d) special effort shall be made to ensure that women arerepresented in these nominations.

127. In making further appointments provided for in the INC or in afuture Final Peace Agreement for Darfur, the President shall takeappropriate steps to ensure the fair representation of Darfuriansincluding an equitable representation of women.

B. The National Legislature

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128. After the signing of a future Final Peace Agreement for Darfur andprior to the subsequent general elections throughout the Sudan andDarfur in particular the FG shall ensure the representation of Darfuriansin the National Assembly, including the Movements. The seats of theNational Assembly, including the seats in the Presidency of theAssembly and in the chairing of Committees shall be allocated so thatpolitical forces from Darfur shall be represented in proportion to theirpercentage of the entire Sudanese population, but not less than twentypercent (20%). For this period the number of seats in the NationalAssembly will be increased by 120 seats to be filled solely byrepresentatives from Darfur. Twenty-five percent (25%) of these seats inthe National Assembly shall be reserved for women.

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129. The representatives of the Region [and the States of Darfur] in theCouncil of States shall be eminent persons accepted by the people and tobe selected in accordance with a future Final Peace Agreement forDarfur.

37

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C. The National Judicial Organs

130. Darfurians shall be represented proportionally to their percentageof the population in the Constitutional Court, the National SupremeCourt and other National Courts, as well as in the National JudicialService Commission, by competent and qualified lawyers.

D. The National Civil Service (NCS)

131. The FG shall ensure that in the NCS, notably at the senior andmiddle-levels, Darfurians are represented proportionally to theirpopulation percentage. In order to achieve this objective, the FG shallobserve the following guidelines:

(a) imbalances and disadvantages which exist must beredressed,

(b) merit is important and training is necessary,

(c) there must be fair competition for jobs in the NCS takinginto account the percentages agreed upon,

(d) no level of government shall discriminate against anyqualified Sudanese citizen on the basis of race, colour,ethnic origin, tribal affiliation, regional or localprovenance, gender, language, religious creed, political orother opinion,

(e) for a transitional period of 15 years the NCS will utilizeaffirmative action and vocational training to achieveequitable targets for representation within an agreed timeframe,

(f) additional educational opportunities shall be created forthe war-affected or otherwise marginalized parts of theSudanese population.49

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132. A National Civil Service Commission shall be established toredress, among other things, the imbalances in the NCS and to ensurefair representation for Darfurians in the NCS. In order to create a senseof national unity and belonging, Darfurians shall be fairly represented inthe National Civil Service Commission. A Darfurian shall occupy theposition of a deputy chair.

133. For the long term, following the signing of a future Final PeaceAgreement for Darfur, a Panel of Experts shall be established under theNational Civil Service Commission to determine the level ofrepresentation of Darfurians in the NCS across all tiers. Competent andqualified Darfurians nominated by the Movements and the civil societyshall be appointed to serve on the Panel. The Panel shall:

(a) identify any area of imbalances that have undermined therepresentation of Darfurians in the NCS and makepractical and action-oriented recommendations towardsaddressing such imbalances and discrepancies in theNCS.

(b) Recommend appropriate measures, taking into account:

(i) population size based on the 1993 census,

(ii) affirmative action on recruitment, training andpromotion, including measures to promote genderbalance,

(iii) precedents in the CPA.

The Panel shall complete its work and submit its report not later than sixmonths after the signing of a future Final Peace Agreement for Darfur,after which the FG shall take remedial action within a period of one yearfrom the date the Panel submits its report.

39

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134. For the Interim Period, while awaiting the outcome of thedetermination by the Panel, the FG shall:

(a) formulate policies and take affirmative action with theobjectives of ensuring equitable representation in the NCSand of redressing past imbalances,

(b) formulate policies for training and recruitment into theNCS, targeting twenty percent (20%) of the positions [to beadjusted after the outcome of the census referred to in Article96, in order to ensure proportional representation for qualifiedpersons from Darfur],

(c) ensure that not less than fifteen percent (15%) of themiddle and upper level positions in the NCS (includingbut not limited to Under-Secretaries, Ambassadors, BoardMembers and Chairpersons of para-statal entities) areassigned to qualified persons from Darfur within the firstthree years, and that the final target figure of twentypercent (20%) is achieved at the end of the Interim Period,thereby taking into account the need for the Movementsto be represented within the NCS and thus reservingsome of these positions exclusively for nominees of theMovements,50

(d) reserve thirty percent (30%) of the posts in the NCSexclusively for qualified women, particularly those fromDarfur,

(e) take special measures to ensure the participation ofwomen in the NCS,

(f) review, after the first three years, the progress made inimplementing the formulated policies, and, on this basis,set new goals and targets to implement the percentagesagreed upon taking into account the results of the census.

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40

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E. Armed Forces, Law Enforcement Agencies and National Security

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135. The SAF shall be regular, professional and non-partisan.Darfurians shall be fairly represented at all levels therein, including insenior command positions, in accordance with the INC, a future FinalPeace Agreement for Darfur and a future Interim Constitution forDarfur.

136. The mission of the SAF is to defend the sovereignty and secure theterritorial integrity of the country, participate in its reconstruction andassist in addressing national disasters in accordance with the INC, afuture Final Peace Agreement for Darfur and a future InterimConstitution for Darfur.51

137. Qualified former combatants of the Movements shall be integratedinto the SAF, law enforcement agencies and security services, inaccordance with the INC, a future Final Peace Agreement for Darfur anda future Interim Constitution for Darfur.

138. The FG shall take appropriate measures to rectify any imbalancesthat may exist in the representation of Darfurians at senior levels of theSAF in general and in the acceptance into the Military Academies inparticular.

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139. The Police are a regular service force whose mission is to prevent,combat and investigate crime, and to maintain law and order.52 It shalldischarge its duties with impartiality and integrity in compliance withthe law and the nationally and internationally accepted standards.

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140. The Police of Darfur shall be established and organized at the levelof the Region of Darfur. Statutory law passed by the legislature of theRegion of Darfur shall regulate its organization, structure, functions,competences, responsibilities and terms and conditions of service.53

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[141. The Police of Darfur shall be established and organized at the level of theStates of Darfur. Statutory law passed by the legislatures of the States of Darfurshall regulate its organization, structure, functions, competences,responsibilities and terms and conditions of service.]

142. The Police, Customs, Immigration and Border Guards, the Prisonsand Wildlife Services shall reflect the diversity of the Sudanesepopulation and be open to all Sudanese, including in particularDarfurians and nominees of the Movements.

143. The National Security Service shall be representative of the peopleof the Sudan. Darfurians shall be fairly represented at all levels therein.

F. Other National Institutions and Commissions

144. Taking into account the requirements of qualification andcompetence, Darfurians, including members of the Movements, shall beadequately represented in all institutions and commissions provided forin the INC, a future Final Peace Agreement for Darfur and a futureInterim Constitution for Darfur and the law, including in particular theNational Constitutional Review Commission, the National ElectionsCommission, the Population Census Council and the Technical ad hocBorder Committee to demarcate precisely the 1 January 1956North/South borderline.

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G. Educational Institutions

[Option 1 National Priority

145. Education is a national priority and responsibility. Educationalinstitutions are a means of peace building and national integration. Inpromoting and reforming the educational system, special emphasis shall be puton rural, underdeveloped, war-affected or otherwise marginalized areas of thecountry.]

[Option 2 Regional Responsibility

145. The responsibility for the implementation of education policies in Darfurlies primarily with the Region of Darfur. The government of the Region ofDarfur shall be guaranteed from the FG the necessary resources for establishingspecial funds for education.

146. Darfurians shall be fairly represented in the Management and GoverningCouncils of Public Universities and other educational institutions of higherlearning in the national Capital and in Darfur, taking into account therequirements of qualification and competence.

147. The problems associated with the declining quality of education and thelack of educational opportunities for Darfurians must be addressed as a matterof priority. Therefore the following measures shall be taken:

(a) the universities in Darfur shall be especially supported increating offers for students in the fields relevant to thedevelopment of Darfur, such as law, engineering, medicine andveterinary science, natural resources and environment,

(b) an emphasis shall also be laid on higher technical education toenable Darfurians to benefit from the exploitation of naturalresources,

(c) the number of primary and secondary schools shall be increased,

(d) the FG shall establish a system to promote the posting ofteachers to rural areas, especially in Darfur. Likewise the

43

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movement of students within the Sudan shall be facilitated andpromoted,

(e) the admission opportunities for Darfurians at the primary,secondary and university levels must be enhanced. Affirmativeaction shall be taken to increase the admission rate ofDarfurians through among others:

(i) flexibility in the application of the eligibility criteria foradmission into universities and other educationalinstitutions of higher learning in the Sudan and

(ii) exemption from the payment of school fees for newstudents of Darfurian origin at all levels for the InterimPeriod.

148. In drawing up and implementing its national plans for investment ineducational institutions and provision of grants, scholarships and training, theFG shall give priority to redressing the imbalances in access to primary,secondary and university education in Darfur, with the aim of bringing Darfurto parity in national levels of educational enrolment and achievement at alllevels.

149. Subject to compliance with admission requirements, not less than fifteenpercent (15%) of the places in the annually admitted student contingents ofpublic universities and other institutions of higher learning in the nationalCapital, and not less than fifty percent (50%) in the case of such universitiesand institutions located in Darfur, shall be reserved for students from Darfurfor a minimum period of ten years. Nothing herein is intended to limit otherprogrammes designed to benefit Darfurian students.

150. The FG shall establish a special fund for education in order to achieve theabove listed goals.]

44

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Part IV. WEALTH [REVENUE] SHARING

151. Wealth [Revenues] means in this context:

- taxes, revenues, charges, fees, royalties,

- revenues from public enterprises and projects,

- duties,

- revenues from oil and other natural resources,

- licenses,

- grants and foreign financial assistance,

- loans, national or international.

CHAPTER 1. GENERAL PRINCIPLES AND GUIDELINES

152. The wealth sharing in Darfur under a future Final PeaceAgreement for Darfur shall be directed by the following generalprinciples and guidelines listed under this heading.

153. The sharing and allocation of wealth shall be based on the premisethat all parts of the Sudan are equally entitled to social and economicdevelopment. Acknowledging that poverty is widespread in the Sudanand particularly in Darfur, a nationwide poverty eradication strategyshall be adopted to constitute a framework for the country’sdevelopment policy, which is aimed at achieving the MDGs.

154. The wealth of the Sudan shall be shared in view of enabling eachlevel of government to discharge its legal and constitutionalresponsibilities and duties to the people of the Sudan. The FG shall maketransfers, as referred to in Articles 185, 187 and 193 to the Region [and theStates] of Darfur. The Region [and the States] of Darfur shall maketransfers as referred to in Articles 185 and 187 to the local government.

155. Darfur has urgent and serious needs for rehabilitation,reconstruction and development of social and physical infrastructures

45

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affected by the conflict, especially with regard to IDPs, refugees andwar-affected persons. In addition, Darfur needs to perform basicgovernment functions and build up civil administration. Thus,rehabilitation and reconstruction of Darfur is a priority. To that endeffective and prompt measures have to be taken to remedy the situationthrough affirmative action in economic policies in favour of Darfur, tocompensate the people of Darfur and to address grievances for lives lost,assets destroyed or stolen and suffering caused by the armed conflict.

156. The cumulative effects of underdevelopment and the prolongeddeprivation of Darfur, which are compounded by the destructive effectsof the armed conflict, are evident. In order to address these conditions, acomprehensive assessment of the needs shall be conducted and aneffective, transparent and accountable system for the distribution ofwealth shall be established.

CHAPTER 2. POLICIES TO BE PURSUED FOR THE SUDAN INGENERAL AND DARFUR IN PARTICULAR

157. The primary objective of the national economic policy is thepursuit of full employment through sound policies that focus on thestability of prices, increased and stable employment levels, thepromotion of sustainable economic growth and the eradication ofpoverty.

158. National and regional economic policies shall be formulated toensure that the quality of life, living conditions and dignity of all thecitizens of the Sudan are promoted without discrimination on groundsof race, colour, ethnic origin, tribal affiliation, regional or localprovenance, gender, language, religious creed, political or other opinion.

159. National economic policies shall be formulated to create aconducive environment for the effective participation of the privatesector (national and foreign) in the development of the Sudan and inparticular in Darfur. National and regional laws shall be reviewed andamended, as appropriate, to attract investment.

160. National and regional economic policies shall be directed toencourage exports from Darfur to national and international markets.

46

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161. Fiscal and monetary policies, especially the banking system, shallbe reviewed to meet the requirements of sustained growth and equitabledevelopment, as well as to increase access to international capitalmarkets.

162. The Central Bank of the Sudan shall introduce innovative financemethods and instruments that will expedite development in Darfur.

163. Policies shall be adopted and implemented to improve theeducational system and to ensure that Darfurians, irrespective of raceand sex, have equal access to better education and training within theRegion or nationwide. Particular effort should be taken to eradicateilliteracy of women.

164. Research and development and especially technologicaldevelopment in the areas of agriculture, livestock, mining, environmentand energy shall be encouraged and promoted.

165. Policies shall be developed for an efficient rehabilitation of theenvironment, in particular reforestation where feasible.

166. Policies directed to the development and modernization of theagricultural sector, including livestock, shall be given priority whilerespecting the nomadic culture and a sustainable natural environment.

167. Efforts shall be made to create a solid and environmentallysustainable base for industrial development with a special emphasis onagro-industry.

168. Policies shall be developed to improve the economic and socialconditions of women constituting the majority of the labour force in theagricultural and livestock raising sector. Such policies shall ensure theirequal and effective participation in committees, commissions and bodiesestablished for the progressive development of the Sudan and Darfur inparticular.

169. Land management structures and institutions as referred to inArticle 238 et seq., taking into account historical experiences, shall bedeveloped and legally supported to promote sustainable developmentand address issues of environmental degradation.

47

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170. Darfur as a whole, and in particular those areas in need ofconstruction or reconstruction, shall be brought up to the level that willallow them to reach the MDGs rapidly. A programme for thedevelopment of basic physical and social infrastructures, including theconnection to the national electricity and the national road system, shallbe formulated to integrate Darfur with the rest of the national andinternational economy. This programme shall be guided by theinternational standards for the accomplishment of the MDGs.

171. Darfur shall be aided in its effort through substantial, reliable andtimely transfers from the National Revenue Fund (NRF), as detailed inArticle 178, other national sources as well as from foreign aid.

172. In addition to the transfers from the Fiscal and FinancialAllocation and Monitoring Commission (FFAMC)54 and the transfersfrom the NRF to Darfur, the national government shall allocate anamount equivalent to US $ 300,000,000 (three hundred million dollars)as seed money for the DRDB. The FG is further committed to allocatingto the DRDB:

(a) an amount of not less than US $ 200,000,000 (two hundredmillion dollars) per annum for (number of years to bespecified) which shall be adjusted on the basis of the JointAssessment Mission (JAM)’s55 outcome,

(b) its share of the JAM commitments as determined at thepost-JAM donor pledging conference for the period fixedby the JAM and adjusted accordingly,

(c) the amount necessary to complete the Darfurdevelopment projects determined in the JAM, if these areincomplete at the end of the JAM period, until the end of2015 within the overall objective of achieving the MDGs.

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48

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CHAPTER 3. DARFUR RECONSTRUCTION ANDDEVELOPMENT BOARD (DRDB)

173. The DRDF shall be transformed into the DRDB. This Board shallconstitute an independent institution with legal personality underSudanese law. The members of the governing body of the Board shall beappointed by the FG, the government of the Region [governments of theStates] of Darfur with the approval of the legislatures and the donorsconcerned.

174. For the Interim Period the functioning of the Board shall besupervised by the International Bank for Reconstruction andDevelopment (IBRD) and the African Development Bank (ADB).

The DRDB is responsible for the administration of funds and thesustainable management of regional development projects, while thepolitical responsibility rests with the government.

(a) The DRDB shall be professionally managed andtransparently administered. To ensure accountability,transparency, equity and fairness in the utilization of thefunds, the DRDB shall develop with the assistance of theIBRD an effective system of monitoring and evaluation.

(b) The DRDB shall collect the funds from the FG as referredto in Article 187 et seq. as well as the funds from theregional government [governments of the States] of Darfuras referred to in Article 185.

(c) The DRDB shall solicit, raise and collect other andadditional funds from domestic and international donors.

(d) The DRDB shall fund all projects for the development ofDarfur according to the principles and policies referred toin Article 206 et seq.

(e) The DRDB shall set aside special funding and developspecial funding mechanisms to address the specific needsof women and children, in particular orphans. Thesemechanisms shall cover, but are not limited to, the

49

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creation of investment opportunities, enhancement ofproductive capacities, provision of credit, productioninputs and capacity building for women.

(f) The DRDB shall set aside special funding for education.

(g) The DRDB shall set aside special funding for culturalinformation.

(h) The DRDB shall set aside special funding for therehabilitation of the environment.

175. In exercising its functions the DRDB shall, within the frameworkof the overall economic policy, be guided by the following principles:

(a) reinvigoration of the economy of the Region [and theStates] of Darfur to enable them to integrate into thenational economy and to promote interregional trade,

(b) rehabilitation of basic social services such as education,health care and provision of water,

(c) achievement of sustainable economic growth, equitabledevelopment, social stability and considerableimprovement in access to social services,

(d) eradication of poverty and enhancement of economicempowerment and awareness,

(e) creation of adequate employment opportunities,

(f) development of individual and institutional capabilitiesfor good governance with an emphasis on accountabilityand transparency,

(g) development of physical infrastructure, including theconnection to electricity and the national road system,that will improve the Darfurians’ access to their mainmarkets, as well as to the rest of the Sudan and inneighbouring countries,

50

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(h) creation of a transparent and stable legislative frameworkfor investments to enhance national and foreign privateinvestment,

(i) building of technical and analytical capabilities in the keyareas of economic management, financial management,project management and procurement,

(j) investment in education and research to improve thedevelopment of human resources and

(k) encouraging the production of alternative energy sourcesand addressing causes of environmental degradation.

CHAPTER 4. FISCAL FEDERALISM ANDINTERGOVERNMENTAL RELATIONS

A. Assignment of Fiscal Responsibilities

176. Expenditure and revenue responsibilities shall be assigned to thenational, the regional [the State] and the local levels of governmentaccording to the following principles:

(a) An expenditure function shall be assigned to that level ofgovernment whose jurisdiction most closely reflects thegeographical area benefiting from that function. Thedelivery of a particular public service (expenditureassignment) may be carried out exclusively by a givenlevel of government, or concurrently by two or morelevels.

(b) The governments of the Region [and the States] of Darfurshall endeavour to pay for the public services delivered topeople living in the given geographic area with revenuesraised in the respective area (revenue assignment).Considering the devastation caused by the Darfurianconflict, the government of the Region shall have access toadditional sources and financial support.

51

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177. The governments of the Region [and the States] of Darfur shall havethe right to determine, without national interference, the structure of therevenue base and the level of the charge or tax rate applied to that baseconsistent with the Articles below.

B. Assignment of Revenue Bases

178. All revenues collected nationally for or by the FG including thosegenerated by any government ministry, department, or share of thenational government in profits from any corporation, company or anyother entity, through commercial activity or otherwise, shall be pooledin the National Revenue Account (NRA) administered by the NationalTreasury. This fund shall embrace all accounts and sub-accounts intowhich financial means due to the FG are collected, recorded ordeposited.

179. All revenues collected regionally [and by the States for the Region]including those generated by any ministry, department, or share of theregional [or State] governments in profits from any corporation,company or any other entity, through commercial activity or otherwiseshall be pooled in a Regional [State] Revenue Fund administered by theRegional [State] Treasury. These funds shall embrace all accounts andsub-accounts necessary.

180. All levels of government and its affiliated institutions shall,without any exception, make publicly available after the end of everyfiscal year a comprehensive report specifying all tax and non-taxrevenues and all expenses (annual fiscal report) in order to ensuretransparency and accountability of the executive.

181. Zakat revenues and their detailed distribution are to form anintegral part of the annual budget of the respective level of governmentand are to be included as separate entries in its annual fiscal reports. TheZakat revenues shall be used solely for its religiously prescribedpurposes.

182. A violation of the principles referred to in the Articles aboveconstitutes corruption, a criminal offence which is to be included in thecriminal code.

52

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183. The FG may legislate to raise revenue or collect taxes from thefollowing sources:

(a) national personal income tax,

(b) corporate or business profit tax,

(c) customs duties and import taxes,

(d) seaports and airports revenue,

(e) service charges,

(f) oil revenues,

(g) national government enterprises and projects,

(h) value added tax or general sales tax or other retail taxeson goods and services,

(i) excise duties,

(j) loans including borrowing from the Central Bank ofSudan and the public,

(k) grants and foreign financial assistance,

(l) other taxes to be legislated by the national legislature.

184. The government of the Region of Darfur shall be entitled to raiseand administer:

(a) service charges of the government of the Region ofDarfur,

(b) license fees,

(c) levies on tourism,

(d) Darfur’s share in revenues from oil and other naturalresources produced in the Region of Darfur,

53

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(e) government of the Region of Darfur projects, enterprisesand nature parks,

(f) loans and borrowing, both domestic and foreign inaccordance with their creditworthiness and consistentwith the national macro-economic policy framework,

(g) grants in aid and foreign aid grants,

(h) allocations from the NRA mentioned in Article 178 above,

(i) all allocations for the DRDB established consistent withthe general principles agreed upon by the parties to thearmed conflict in Darfur,

(j) all other taxes or fees legislated from time to time, withintheir jurisdictions.

185. Fifty percent (50%) of the revenues collected by the Region shall betransferred to the DRDB to be used for reconstruction and developmentin Darfur. Twenty percent (20%) shall be transferred to localadministration for establishing an appropriate and efficientadministrative infrastructure including the native administration. Theremaining thirty percent (30%) is to be used for general administration.

[Option for States

184. The governments of the States of Darfur shall be entitled to raise andadminister:

(a) State Land and property tax, as well as royalties,

(b) service charges for State services,

(c) license fees,

(d) State personal income tax,

(e) State shares of oil revenues and other national resourcesproduced in the State concerned,

54

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(f) State government projects and State nature parks,

(g) stamp duties,

(h) agricultural taxes,

(i) grants in aid and foreign aid through the national government,

(j) excise taxes,

(k) other State taxes which do not encroach on the national or theRegion of Darfur government taxes,

(l) loans and borrowing both, domestic and foreign in accordancewith their creditworthiness and consistent with the nationaleconomic policy framework,56 and

(m) animal resources tax.

185. Fifty percent (50%) of the revenues collected by the States shall betransferred to the DRDB to be used for reconstruction and development inDarfur. Twenty percent (20%) shall be transferred to local administration forestablishing an appropriate and efficient administrative infrastructureincluding the native administration. The remaining thirty percent (30%) is tobe used for general administration.]

186. The government[s] of the Region [and the States] of Darfur may,within their competencies and jurisdictions, enter into agreements toenhance revenue mobilization and administration.

C. Intergovernmental Transfers

187. To accomplish the task of fiscal equalization, the FFAMC shallensure that the interests and views of Darfur will be represented on abasis commensurate with the other areas of the Sudan. The FFAMC,established by national legislative act, shall be structured in order toensure:

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55

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(a) appropriate utilization and sharing of financial resourcesboth vertically and horizontally,

(b) transparency and fairness in the allocation of funds to theRegion of Darfur [and by the Region to the States of Darfur]and from the Region [States] of Darfur to theadministrative units, and

(c) to monitor and ensure that equalization grants from thenational government are promptly transferred. TheFFAMC shall report to the national legislature.

C.1. ?%'5,1+#J'+4.%3

188. The President shall appoint an independent Panel of Expertsrecommended by the FFAMC, to be approved by the nationallegislature. The Panel shall be comprised highly qualified economistsand other relevant experts from academic, governmental, and otherinstitutions and from the private sector. The Panel shall proposeformulae and criteria for resource allocation including the proportionthat the Darfurian population has of the entire Sudanese population, aswell as the relative state of development. Account shall also be taken ofthe effects of the armed conflict in the area concerned. The Panel’sproposals shall include weights attached to those criteria. The terms ofreference for the Panel shall be prepared by the FFAMC.57

189. The Panel shall submit its proposals or the revised proposals to thePresident through the FFAMC within six months of its appointment.The President shall then table the proposals before the nationallegislature for approval within one month of their submission. If theproposals are approved, the FFAMC is obliged to implement theformulae and criteria for resource allocation contained therein.

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56

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C.2. !"# ?.3/+1 +(< ?.(+(/.+1 D11%/+4.%( +(< 2%(.4%'.(F 0%55.33.%(A??D20B

190. The FFAMC shall be independent and shall have the capacity toperform its work in an effective and independent manner. To be able tocarry out its work with continuity and autonomy, the head of theFFAMC shall be appointed by the President with the approval of thelegislature for a specific time period, during which he/she cannot beremoved without compelling cause. A removal shall require theapproval of the legislature.

191. To conduct its work effectively the FFAMC shall have a technicalsecretariat that is adequately staffed with highly competentprofessionals. The FFAMC shall take its decisions by consensus.

192. The FG shall take all necessary steps to ensure that the FFAMCbecomes operational in the fiscal year in which a future Final PeaceAgreement for Darfur is concluded, and submits its recommendationson a formula for the vertical and horizontal allocations, to thePresidency and the national legislature in time for inclusion in thenational budget of the following year. To that effect, the Panel of Expertsshall be appointed immediately following the signing of a future FinalPeace Agreement for Darfur. In the event that the FFAMC proposalshave not been prepared or approved by the national legislature in thefiscal year in which a future Final Peace Agreement for Darfur isconcluded, the FFAMC shall propose a formula based on preliminaryindicators suggested by the Panel of Experts to enable the FG to make anallocation from the NRA to the DRDB. The Northern States maycollectively negotiate for a higher vertical allocation from the FG. TheFFAMC shall also determine the formula for horizontal allocationamong the Region[s] and the States to be included in the budget that thePresidency submits to the legislature for the fiscal year following theyear in which a future Final Peace Agreement for Darfur will have beenconcluded.

C.3. !'+(3)#'3

193. Transfers from the FG shall be necessary to address theexpenditure needs of the Region [and the States] of Darfur. The financial

57

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equalization procedures shall be adopted as set out by the FFAMC. Suchprocedures or measures may:

(a) not diminish the discretion local authorities may exercisewithin their own sphere of responsibility,

(b) supplement all forms of transfers such as project andconditional grants,

(c) ensure that the quality of life, dignity and livingconditions of all people are promoted withoutdiscrimination.

194. The FFAMC shall institute a transparent, formula-based processwhereby the transfers to the Region [and the States] of Darfur shall bemade in a predictable and timely manner, with the guarantee that thenational government may not withhold the transfer of funds to theRegion [and the States] of Darfur.

195. Seventy percent (70%) of the funds transferred to the Region[States] shall be transmitted directly to the DRDB for the purposes ofreconstruction and development of Darfur. This percentage shall bereviewed on a regular basis.

196. Thirty percent (30%) of the funds transferred shall be transmittedto the Revenue Fund of the Region [States] to be used for generaladministration.

C.4. K561#5#(4+4.%(

197. The Region [and the States] of Darfur may initiate proceedings inthe Constitutional Court in case the FG withholds financial means orshould not allocate the funds designated for the Region of Darfur. [TheStates of Darfur may initiate proceedings if the Region of Darfur withholdsfinancial means due to them or does not allocate the funds expeditiously.]

58

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D. Specific Fiscal Entitlements of Darfur

198. Within the context of the federal system, the appropriate level ofgovernment in Darfur shall be entitled to:

(a) transfers from the nationally collected revenues inaccordance with the criteria above,

(b) raise and collect revenues as set out above,

(c) appropriate representation in the FFAMC,

(d) resources from the National Reconstruction andDevelopment Fund,

(e) allocation of resources from the Multi Donor Trust Fund,

(f) timely and full transfer of the agreed allocations from theNRA.

199. A system of specific purpose grants shall be developed with aview to achieving the MDGs, poverty eradication and the equalitybetween women and men.

E. External Sources of Finance

200. The Region of Darfur shall have access to borrowing from nationaland international capital markets as long as borrowing is consistent withthe macro-economic policy framework and the regional [and the States’]government[s] of Darfur is [are] deemed creditworthy. Withoutprejudice to the independence of the Central Bank of Sudan and to theextent that the FG or the Central Bank of Sudan or both are issuingsovereign guarantees for loans to Region[s] [and States], potential loansto Darfur and other war-affected and least developed areas shall begiven priority to receive such guarantees.

201. The government of the Region of Darfur shall report the amount ofall external finance and grants it received to the FG.

59

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F. Capacity Building

202. Immediately after the signing of a future Final Peace Agreementfor Darfur, the FG shall assist the Region of Darfur to develop andimplement an advanced and comprehensive programme for capacitybuilding and planning with respect to public finance andintergovernmental relations, including expenditure management toensure accountability.

G. Monitoring and Accountability

203. The Region of Darfur shall cooperate with the FG to report fullyand completely on a periodic basis (quarterly, semi-annually andannually) the amount of all their expenditures and revenues (tax, non-tax fees and charges). All such expenditures and revenues shall be in thebudget and the format of their reporting shall be determined accordingto transparent national government standards. It is recognized that suchcomplete and standard reporting shall assist the determination ofnational transfers from the FG. The standards referred to shall beformulated with the assistance of the IBRD and the ADB, which willboth monitor the procedure for an Interim Period.

204. A violation of these standards shall be considered corruption andprosecuted and tried accordingly.

205. The institutions responsible for the monitoring are:

(a) national legislative bodies,

(b) the FFAMC,

(c) the National Audit Chamber,

(d) the legislative Assembly of Darfur,

(e) State legislatures,

(f) Darfur FFAMC as a branch of the national FFAMC.

60

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H. Darfur Development Policies

206. The national development policy shall be based on the premisethat all parts of the Sudan are entitled to equitable development (e.g.access to natural resources, employment and economic opportunities)and that such policies shall give special priority to the mostdisadvantaged parts of the country including Darfur.

207. Within this framework, the Region of Darfur shall pursue the shortand medium term objectives of rehabilitation, reconstruction,construction and development while taking care of urgent needs andlaying the basis for longer term development. Special attention shall begiven to programmes and projects that enable Darfur to speed up thetransition from relief to development.

208. Darfur, being historically deprived and having severely sufferedfrom destruction caused by the armed conflict, is in serious need to:

(a) restore peace, security, and social stability,

(b) carry out government functions more effectively,

(c) strengthen civil administration and

(d) rehabilitate, reconstruct and construct physical,institutional and social infrastructures.

209. Key strategic objectives of Darfur’s post-conflict economicrecovery and development, within the overall national economic policyframework consist of:

(a) reinvigoration of the economy of the Region [and theStates] of Darfur to enable them to integrate into thenational economy and to promote interregional trade,

(b) rehabilitation of basic social services such as education,health care and provision of water,

(c) achievement of sustainable economic growth, equitabledevelopment, social stability and considerableimprovement in access to social services,

61

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(d) eradication of poverty and enhancement of economicempowerment and awareness,

(e) creation of adequate employment opportunities,

(f) development of individual and institutional capabilitiesfor good governance with emphasis on accountability andtransparency,

(g) development of physical infrastructure, including theconnection to the national electricity and the nationalroad system, that will improve the Darfurians’ access totheir main markets as well as to the rest of the Sudan andneighbouring countries,

(h) creation of a transparent and stable legislative frameworkfor investments to enhance national and foreign privateinvestment,

(i) building of technical and analytical capabilities in the keyareas of economic management and financialmanagement and procurement,

(j) investment in education and research to improve thedevelopment of human resources and

(k) encouraging the production of alternative energy sourcesand addressing causes of environmental degradation.

210. Competition for pasture and water between nomadic herders andsettled agricultural producers is an important problem. It shall beaddressed in a comprehensive way by:

(a) developing policies to reverse environmental degradationand the decline in agricultural yields,

(b) gradually shifting the emphasis of herders from quantityto quality,

(c) developing a framework for equitable access by varioususers to land and water resources, as well as

62

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(d) developing research capacities in these areas.

211. All levels of government shall make every effort to bring Darfurup to the national average level of human development in the shortestpossible time with a view to attaining the MDGs.

I. Reconstruction, Investment and Development

212. Darfur will need a rapid transition from war to peace whichwould in turn create an enabling environment for an acceleratedtransition from humanitarian relief assistance to economic recovery anddevelopment.

213. To sustain this transition and to achieve the above-mentionedobjectives, Darfurians are in need of resources well beyond what theycan possibly raise from their local economy in the foreseeable future.Therefore, Darfur shall be aided in its effort through substantial, reliableand timely transfers from the NRF, other national sources as well asfrom foreign aid.

J. Joint Assessment Mission (JAM) for Darfur

214. A JAM shall be initiated and continue to identify and quantify theneeds of post-conflict economic recovery and a development andpoverty eradication programme for the Region of Darfur. These needswill be presented to the donors at a donors’ conference to be convenedwithin three months after the signing of a future Final Peace Agreementfor Darfur. The IBRD, the United Nations (UN) and the ADB are calledupon to supervise the JAM exercise, in collaboration with the IslamicDevelopment Bank, the AU, the League of Arab States and the ArabFunds as well as interested States and regional economic organizations.

63

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CHAPTER 5. DEVELOPMENT AND MANAGEMENT OF LANDAND NATURAL RESOURCES

A. General Principles

215. The land referred to in this document as Darfur shall have as itsboundaries the boundaries referred to in Article 7.

216. Considering the fact that the people in Darfur did not benefit fromthe Land Resettlement Act of 1925, a new legislation concerning landand land use has priority immediately after the conclusion of a futureFinal Peace Agreement for Darfur. Such legislation shall reflect thetraditional tribal land ownership rights (hawakir), historical rights toland, traditional or customary livestock routes and access to water.

217. Government land established by the 1970 Unregistered Lands Actshall be returned to the communities previously holding respectivetraditional or historical rights. If no such rights exist, such land shall beconsidered unallocated land. If land claimed by the FG has already beenallocated to enterprises, it shall either be returned to the previousowners; alternatively the owners shall be compensated.

218. Without prejudice to Article 217, rights to land owned by the FGwithin Darfur shall be exercised through the appropriate or designatedlevel of government.

219. All displaced persons and other persons arbitrarily or unlawfullydeprived of their possession or rights to land shall have their possessionand rights restored to them and shall be compensated promptly andadequately for the losses or damages accrued in the period ofdeprivation.

220. Mechanisms shall be established to ensure the sustainable use andmanagement of land and other natural resources. All citizens affected bythe development of land and the exploitation of natural resources are tobe consulted and their views are to be taken into account whenconducting that development or exploitation. Persons whose property orlivelihood is adversely affected by the development of land and the

64

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exploitation of natural resources have a right to prompt and adequatecompensation.

221. The Darfur Land Planning Commission established pursuant toArticle 239 shall have a recommendatory function towards thelegislature of the Region of Darfur as far as the planning of land use isconcerned. The Darfur Land Commission, established pursuant toArticle 245, shall have an executive function concerning traditional andhistoric rights to land, registration of land and allocation of land rights.

222. The Darfur Land Planning Commission and the Darfur LandCommission shall cooperate with the National Land Commission andthe Geological Research Authority of the Sudan. They shall alsocooperate with the Department of Surveying. All information on landshall be made public.

B. Traditional and Historical Rights to Land

223. Tribal land ownership rights (hawakir), historical rights to land,traditional or customary livestock routes and access to water, shall berecognized and protected. All levels of government shall institute aprocess to progressively develop and amend the relevant laws in orderto incorporate customary laws, practices, international trends andpractices and protect cultural heritage. Traditional or customarylivestock routes, which have been blocked, shall be opened again, as faras feasible, otherwise alternative routes shall be established.

224. The land laws as amended in accordance with Article 223 aboveshall include provisions for the recognition and protection of traditionalor customary rights to land.

225. No person or group of persons shall be deprived of any traditionalor historical right in respect of land or access to water without beingconsulted and receiving prompt and adequate compensation.

226. Traditional dispute settlement mechanisms concerning rights toland shall be reformed and incorporated into the judicial system in orderto supplement the courts in the settlement of land disputes as far astraditional rights to land are concerned.

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C. Community Land

227. Lands, which are community land by customary law shall not beconsidered unallocated public lands but shall remain the property of therespective community in accordance with customary law.

228. The government may only develop community land with theapproval of the community that owns such land or has rights thereto.The community shall be entitled to receive an equitable share of therevenue accrued from developing this land; alternatively the communityin question shall be compensated in kind and/or in cash.

229. The government may not dispose of or develop any communityland unless the Darfur Land Planning Commission established pursuantArticle 239 has certified that the disposition or development is consistentwith the development plan drawn up and enacted by law.

D. Allocation of Land

230. All land in Darfur is unallocated public land unless:

(a) it is registered by an individual or community or legalperson,

(b) it is customarily owned by an individual or a community,or

(c) it is actively being used by the government at thenational, regional level or by the local administration.

231. Individuals, communities and legal persons can registercustomarily owned public land in Darfur as private or communal land.Customarily unallocated land can be allocated. Such allocation entitlesto the use of land in conformity with the zonal plan referred to in Article238 c.

232. The registration process shall commence after the conclusion of afuture Final Peace Agreement for Darfur and after the legislature of theRegion of Darfur has enacted the law on zoning of all land in Darfur asreferred to in Article 238 c.

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233. A campaign to create public awareness shall be launched at thebeginning of the registration period involving local administration,native administration and the media.

234. The registration period shall last no less than twenty years.

235. Registration shall be free of charge.

236. Registration shall reflect the zonal qualification of the land inquestion.

237. After the registration period, all non-registered lands shall becomeproperty of the respective local authorities.

E. Planning and Sustainable Development of Land/Land PlanningCommission

238. The development and management of land is to be undertakenwith a view to:

(a) the recognition of traditional rights (including hawakir)and historical rights to land essential for establishing asecure and sustainable basis for livelihood anddevelopment in Darfur,

(b) the development of a sustainable system of land andconflicts resulting from competing uses of land,

(c) the association of all land in Darfur with one of thefollowing zones:

(i) for residential purposes,

(ii) for agricultural purposes,

(iii) for pastoral purposes,

(iv) for industrial purposes, including foreigninvestment,

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(v) for natural reserves,

(vi) to accommodate seasonal nomadic movements(routes, pastures etc.),

(vii) forestry and/or reforestation.

239. A Darfur Land Planning Commission shall be established todevelop the zonal plan referred to in Article 238 c as a recommendationfor the legislature[s] of the Region [and the States] of Darfur. This planshall be reviewed every five years.

240. The establishment of the Darfur Land Planning Commissionreferred to in Article 239 above shall be regulated by law enacted by thelegislature[s] of the Region [the States] of Darfur concerned.

241. The Darfur Land Planning Commission shall consist ofrepresentatives of the government of the Region [and the concerned States]of Darfur, native administration and the FG. In formulating itsrecommendation it shall hear those whose land rights may be affected.

242. On the basis of the recommendation of the Darfur Land PlanningCommission, the legislature of the Region [and the concerned States] ofDarfur shall enact a law on the zonal qualification of all land in Darfur.

243. The system of land and natural resource planning anddevelopment shall have as its objectives:

(a) the proper management, development and conservationof natural resources, including agricultural land, pastoraland natural reserve areas, forests, minerals, water, cities,towns and villages, for the purpose of promoting thesocial and economic welfare of the community and abetter environment,

(b) the promotion and coordination of the orderly andeconomic use and development of land and naturalresources,

(c) ecologically sustainable development,

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(d) the protection of cultural heritage,

(e) the protection, provision and coordination ofcommunication and utility services,

(f) the provision of land for public purposes,

(g) the provision and coordination of community servicesand facilities,

(h) the protection of the environment, including theprotection and conservation of native animals and plants,threatened species, and ecological communities,

(i) the rehabilitation of degraded land and re-vegetationprogrammes,

(j) the promotion of shared responsibility for environmentalplanning between the different levels of government inDarfur,

(k) the provision for public involvement and participation inenvironmental planning and assessment,

(l) the provision for consultation of all persons affected byproposed development of land and natural resources,

(m) the provision for prompt and adequate compensation forpersons whose livelihood or property are affected bydevelopment decisions in respect of land and naturalresources.

244. Communities or persons whose existing use of land or livelihoodsis adversely affected by a new zonal qualification as referred to inArticle 238 c shall be compensated promptly and adequately. Suchcompensation may consist of allocating alternative adequate land to thatcommunity or person to be used in accordance with the zonal plan.

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F. Land Commission

245. Without prejudice to the jurisdiction of courts and the Darfur LandPlanning Commission, a Darfur Land Commission shall be establishedto address issues related to traditional and historical rights to land,registration of land and allocation of land.

246. The Darfur Land Commission shall:

(a) be independent and impartial,

(b) have membership that reflects land use interests inDarfur,

(c) determine its own procedures,

(d) have access to all pertinent land records,

(e) carry out its functions in a timely manner,

(f) take all reasonable measures to ensure full and effectiveparticipation of all affected persons and communities inits procedures,

(g) report annually to the government[s] of the Region [and/orthe States] of Darfur on its operations and the expenditureof its annual budget,

(h) ensure that membership, appointment, terms andconditions of service of the Darfur Land Commission areregulated by law,

(i) take into account the historical and traditional rights toland.

247. The Darfur Land Commission shall exercise the followingfunctions:

(a) arbitrate disputes between willing contenders over rightsto land,

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(b) make recommendations to the appropriate level ofgovernment concerning recognition of traditional orhistorical rights to land,

(c) assess prompt and adequate land compensation, whichneed not be limited to monetary compensation, forapplicants in the course of arbitration or in the course of areference from a court,

(d) advise different levels of government on how tocoordinate policies on projects of the government[s] of theRegion [and/or the States] of Darfur affecting land or landrights taking into account the zonal plan referred to inArticle 238 c,

(e) establish and maintain records of existing and historicalland use,

(f) conduct research on land tenure and land usage in thegeographical area in which jurisdiction is exercised,

(g) review existing land instruments and recommend theintroduction of such necessary changes as may berequired including restitution of land rights orcompensation to the relevant authority.

248. In carrying out its function as an arbitrator, the Darfur LandCommission shall have discretion to entertain applications, and with theconsent of the contenders, may apply traditional and customary lawand/or principles of justice and equity. The outcome of the arbitrationshall be binding on the contenders and may be enforced in a court ofcompetent jurisdiction.

249. After the exhaustion of dispute settlement mechanisms of thenative administration, the judiciary shall have the exclusive jurisdictionfor claims with regard to land. The courts shall decide disputes betweencontenders over rights to land and shall assess prompt and adequateland compensation, which need not be limited to monetarycompensation.

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250. The Darfur Land Commission shall be bound by decisions madeby any body or authority given jurisdiction by a future Final PeaceAgreement for Darfur to make decisions concerning land of displaced orother war-affected persons.

251. The National Land Commission and the Darfur Land Commissionshall cooperate and coordinate their activities so as to use their resourcesefficiently. Without limiting the matters of coordination, the NationalLand Commission and the Darfur Land Commission shall agree:

(a) to exchange information and decisions of eachcommission,

(b) that certain functions of the National Land Commission,including collection of data and research, may be carriedout through the Darfur Land Commission and

(c) on a way to solve any conflicts between the findings orrecommendations of the different commissions.

252. In case of conflict between the findings and recommendations ofthe National Land Commission and the Darfur Land Commission,which cannot be resolved by agreement, the commissions shall reconciletheir positions. The matter shall be referred to the Constitutional Courtfor adjudication if the positions cannot be reconciled.

G. Major Development Projects

253. In exceptional circumstances the regional legislature [Statelegislatures] of Darfur may authorize the regional [State] government[s]to agree upon the implementation of major development projects, whichmay be inconsistent with any previous land use management plan orplanning legislation. The regional [State] government[s] of Darfur mayseek authorization only if the agreement contains detailed provisionssetting out:

(a) the clear definition of the envisaged project,

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(b) the measures that will be adopted under the agreementfor protection of the environment,

(c) the steps to be taken to consult with all persons whoseinterests are affected by the proposed development,

(d) the benefits that will accrue to local communities and thepeople of Darfur as a result of entering into the agreementand

(e) the level of compensation that will be paid to personswhose property or livelihoods will be adversely affectedby the agreement and a statement of whether or not thatcompensation has been agreed to by the persons soaffected.

The land use management plan or the planning legislation shall beamended accordingly.

H. Natural Resources

254. The management and development of natural resources shallprovide for the sustainable utilization of these resources consistent with:

(a) the national interest and the public good,

(b) the interest of the affected Region [and the States],

(c) the interest of the local population in the affected areas,

(d) national, regional [and State] environmental policies,biodiversity conservation guidelines and cultural heritageprotection principles,

(e) rights to land, including customary and traditional landrights,

(f) internationally recognized industry standards ofenvironmentally sensitive natural resource extraction ordevelopment.

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255. Persons and communities enjoying rights to land shall beconsulted and their views shall duly be taken into account in respect ofdecisions to exploit subterranean natural resources from the area inwhich they have rights. They shall have a share of the benefits of thatexploitation.

256. Persons and communities enjoying rights to land are entitled toprompt and adequate compensation on just terms resulting fromacquisition or exploitation of land for the extraction of subterraneannatural resources from the area in respect of which they have rights.

257. The communities which are affected by the exploitation shall havethe right to participate in the negotiation of contracts concerning theexploitation of those resources through the appropriate levels ofgovernment.58

258. Regions of Darfur in which oil or mineral resources are exploitedshall have the right to negotiate and shall receive the negotiated share ofrevenue generated there from.

259. The framework for wealth sharing from the exploitation of naturalresources, emanating from Darfur shall balance the needs of nationaldevelopment and the reconstruction of Darfur.

260. An Oil Revenue Stabilization Account shall be established fromthe government oil net revenue derived from actual export sales abovean agreed benchmark price. The benchmark price will be determinedannually as part of the national budget.

261. Without diminishing any entitlements resulting from Article 258 etseq., at least two percent (2%) of oil revenue shall be allocated to the oilproducing local community in proportion to the output produced intheir local community.

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[Option 1

262. After the payment to the Oil Revenue Stabilization Account and to theoil producing Region [States], fifty percent (50%) of net oil revenue derivedfrom oil producing wells in Darfur shall be allocated to the government[s] of theRegion [and/or the States] of Darfur as of the beginning of the Interim Period.The remaining fifty percent (50%) shall be allocated to the FG and the otherStates of the Sudan.]

[Option 2

262. After the payment to the Oil Revenue Stabilization Account and to theoil producing Region [States], an appropriate amount of net oil revenue derivedfrom oil producing wells in Darfur shall be allocated to the government[s] of theRegion [and/or the States] of Darfur as of the beginning of the Interim Period.The remaining revenues shall be allocated to the FG and the other States of theSudan.]

263. All funds and special accounts referred to in a future Final PeaceAgreement for Darfur and any future accounts shall be on-budgetoperations in accordance with the public budget.

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Part V. TRANSITIONAL JUSTICE

CHAPTER 1. GENERAL PRINCIPLES

264. All Darfurians shall revert to the values and beliefs enshrined intheir respective cultural traditions, which have previously enabled themto live together peacefully.

265. The principles governing justice, accountability, reconciliation andhealing as expounded in the 'Report of the African Union High-LevelPanel on Darfur' (the 'Mbeki Report') and the principles on social,political and economic justice as enshrined in the CPA are to beendorsed.

266. All parties to the ongoing armed conflict in Darfur shall fully andunconditionally acknowledge their obligations under locally applicablecustomary law, national law or international law, includinginternational humanitarian law and international human rights law, andshall fully implement the ensuing obligations and accept the pertinentResolutions of the UN Security Council.

267. All violations of human rights that have occurred, and continue tooccur, in conjunction with the ongoing armed conflict in Darfur betweenJanuary 2003 and the conclusion of a future Final Peace Agreement forDarfur [between June 1989 and the conclusion of a future Final PeaceAgreement for Darfur] are to be condemned. Equally all acts of violencelike arson and the wanton destruction of property, farms and pasturesresulting in the deterioration of the natural bases of life in Darfur are tobe condemned. Accordingly, all parties to the ongoing armed conflict inDarfur shall immediately and permanently cease to commit such acts ofviolence.

268. There can be no sustainable peace in Darfur without bringing tojustice the most senior persons responsible for grave acts of violence inconjunction with the ongoing armed conflict in Darfur and withoutremedying the wrongs done.

269. In the quest for justice reconciliation, restitution or compensationwill be the primary objectives. However, the principle of reconciliation

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shall be without prejudice to the individual criminal responsibility of theperpetrators of grave acts of violence.

270. No party to the ongoing armed conflict in Darfur shall be exemptfrom individual criminal responsibility under locally applicablecustomary law, national law or international law. In accordance withprinciples of Islamic law, immunity shall not be invoked or accepted inrespect of individual criminal responsibility under customary, nationalor international law.

271. All perpetrators of acts of violence shall resort to the proceduresforeseen in their specific local traditions for the purpose of facilitatingthe search for peace and truth, as well as reconciliation with, and, as thecase may be, pardoned by the victims of the acts of violence. Personsalleged of having committed crimes who refuse to resort to suchprocedures shall be prosecuted and tried in accordance with theprocedure set out below.

272. All steps should be taken to avoid that the traditional conflictresolution mechanisms and the national judiciary of the Sudan arepolitically manipulated. Traditional conflict resolution mechanisms shallbe left to the Darfurians and shall involve neutral, non-partisan nativeadministration leaders.

CHAPTER 2. INSTITUTIONS PROVIDING TRANSITIONALJUSTICE

273. The following institutions shall be vested with the function ofbringing justice to the victims, and holding the perpetrators accountablefor all acts of violence committed in conjunction with, or at the occasionof the ongoing armed conflict in Darfur:

(a) the International Criminal Court (ICC),

(b) hybrid courts

[extraordinary chambers within the national judiciary of theSudan],

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(c) the Ajaweed, functioning as a Truth and ReconciliationCommission,

(d) Traditional Conflict Resolution Mechanisms that may,depending upon the nature of the conflict, be establishedlocally, regionally or nationally. The traditionalmechanisms include, but are not limited to:

(i) native courts as more formal local disputesettlement bodies,

(ii) native administrators in their function as mediators,

(iii) juddiya as ad hoc voluntary mediation mechanisms,and

(iv) reconciliation mechanisms as bodies for thesettlement of inter-tribal disputes,

(e) the national judiciary of the Sudan.

274. All institutions listed in Article 273 shall exercise their functionsdiligently, independently, impartially, without fear or favour and in fullcompliance with the requirements of fair trial. With respect to thealready existing institutions, these requirements may call for substantivereforms, capacity building and modernization.

275. Among the judges and commissioners appointed to theinstitutions listed in Article 273, women shall be represented equitably.

276. Recalling United Nations Security Council Resolution 1325, allinstitutions providing transitional justice shall, in the exercise of theirrespective functions, ensure that all forms of violence that particularlyaffect women and children are heard and redressed in an adequatemanner. All institutions providing transitional justice shall take intoaccount the particular vulnerability of these groups of victims and theirspecial status in international human rights.

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CHAPTER 3. RESPECTIVE FUNCTIONS OF THEINSTITUTIONS PROVIDING TRANSITIONAL JUSTICE

A. International Criminal Court (ICC)

277. The ICC bases the exercise of its subject matter jurisdiction on theSecurity Council Resolution 1593 (2005), which refers the situation inDarfur since 1 July 2002 to the Prosecutor of the ICC. RecallingResolution 1593, all parties to the conflict in Darfur shall cooperate fullywith, and provide any necessary assistance to, the ICC and itsProsecutor.

B. Hybrid Courts

278. The hybrid courts, as established by a national legislative act, shallbe criminal courts of law, which have features of both international andSudanese criminal jurisdictions. They shall exercise original andappellate jurisdiction over individuals who appear to bear particularresponsibility for the gravest crimes committed during the conflict inDarfur. The hybrid courts shall be composed of national andinternational staff, including national and international judges andprosecutors. The hybrid courts shall apply a compound of internationaland national substantive and procedural law.

279. The hybrid courts' exact competences, structures, functions,procedures and substantive provisions require further discussion. Theprocedures to be developed shall include measures for ensuring thesafety and dignity of witnesses and victims, in particular victims of rapeand sexual violence. The respective provisions shall be contained in astatute to be included as an annex to the future Final Peace Agreementfor Darfur.

280. Without prejudging whether or not the following crimes haveoccurred, the hybrid courts shall exercise subject matter jurisdiction

(a) for the crimes of:

(i) genocide,

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(ii) crimes against humanity,

(iii) war crimes,

(iv) intentional killing of human beings, and

(v) rape,59

(b) as far as an alleged perpetrator is accused of

(i) having planned, organized, instigated or supervisedthese crimes,

(ii) having acted in a position of legal or effectivecommand responsibility,

(iii) having distinguished him- or herself by virtue of hisor her particular zeal or malice.

281. In particular, the hybrid courts shall exercise their jurisdiction withrespect to crimes imputed to leaders of governmental police forces andall militias.

282. Arrangements which would allow the ICC to exercise a reviewfunction vis-à-vis the jurisprudence of the hybrid courts so as to ensuretheir impartiality, independence and effectiveness shall be provided for.

283. The hybrid courts shall refer all files outside their subject matterjurisdiction to the competent institution providing for transitional justicein that case.

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C. [Option The Extraordinary Chambers]

[278. Extraordinary chambers shall be established as an integral part of theSudanese national judiciary. They shall be composed of national andinternational staff, including national and international judges andprosecutors. They shall apply a compound of international and nationalsubstantive and procedural law.

279. The extraordinary chambers' exact competences, structures, functions,procedures and substantive provisions require further discussion. Therespective provisions shall be contained in an ordinary Sudanese Law accordingto Article 127 of the INC.

280. Without prejudging whether or not the following crimes have occurred,the extraordinary chambers shall exercise subject matter jurisdiction

(a) for the crimes of:

(i) genocide,

(ii) crimes against humanity,

(iii) war crimes,

(iv) intentional killing of human beings, and

(v) rape,60

(b) as far as an alleged perpetrator is accused of

(i) having planned, organized, instigated or supervised thesecrimes,

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(ii) having acted in a position of legal or effective commandresponsibility,

(iii) having distinguished him- or herself by virtue of his orher particular zeal or malice.

281. In particular, the extraordinary chambers shall exercise their jurisdictionwith respect to crimes imputed to leaders of governmental police forces and allmilitias.

282. Arrangements which would allow the ICC to exercise a review functionvis-à-vis the jurisprudence of the extraordinary chambers so as to ensure theirimpartiality, independence and effectiveness shall be provided for.

283. The extraordinary chambers shall refer all files outside their subjectmatter jurisdiction to the competent institution providing for transitionaljustice in that case.]

D. Traditional Mechanisms

284. All traditional mechanisms shall exercise jurisdiction over acts ofviolence in conjunction with the ongoing armed conflict in Darfur andcommitted within the framework of intra-tribal and inter-tribal conflictson a local or regional scale.

285. When exercising dispute settlement and reconciliation functions,the primary objectives of all traditional mechanisms shall bereconciliation, restitution or compensation of victims.

286. In the exercise of their functions, all traditional mechanisms shallfollow their traditional procedural rules and issue decisions or verdictswithin the scope of their traditional competencies.

287. Traditional mechanisms shall have no jurisdiction in cases inwhich the FG or any militia groups are involved as a party to the case.

288. If a particular case submitted to any of the traditional mechanismsrefers to an individual who has allegedly acted on behalf of thegovernment or any militia group, but is not accused of any of the crimes

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falling within the jurisdiction of the hybrid courts [the extraordinarychambers], the traditional mechanisms shall refer the case to the Ajaweed.

289. If a particular case submitted to any of the traditional mechanismsrefers to an individual who has allegedly committed a crime fallingwithin the jurisdiction of the hybrid courts [the extraordinary chambers],the traditional mechanisms shall refer the case to the hybrid court [to theextraordinary chambers].

290. If a particular case submitted to any of the traditional mechanismsrefers to an individual who has allegedly committed a common crime atthe occasion, but without an inherent link to the ongoing armed conflictin Darfur, the traditional mechanisms shall refer the case to the nationaljudiciary of the Sudan.

291. The Ajaweed, a traditional procedure for the resolution of conflicts,shall be institutionalized and assume the function of a truth andreconciliation mechanism. This institutionalization shall be regulated bylegislative act of the Region in adhering to the traditions of the Ajaweed.

292. In their function as a Truth and Reconciliation Commission, theAjaweed shall engage in the procedures foreseen in their specific localtraditions for the purpose of facilitating the search for peace, truth andreconciliation. Within the limits of the specific local cultural traditionand as far as this enhances the search for peace, truth and reconciliation,the Ajaweed shall conduct their procedures with a view to facilitateconfessions and apologies.

293. The Ajaweed shall hear any grievances arising from acts of violencein conjunction with the ongoing armed conflict in Darfur.

294. The Ajaweed shall hear cases against individuals accused of acts ofviolence against human beings, property or the natural bases of life.

295. The procedures and records of the Ajaweed shall be public.

296. Any reports issued by the Ajaweed on cases against individualsaccused of acts of violence against human beings, property or thenatural bases of life shall be final and binding and exclude any further

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national or international criminal procedures against the concernedindividuals.

297. If a case submitted to the Ajaweed refers to an individual accusedof a crime falling within the jurisdiction of the hybrid courts [theextraordinary chambers], the Ajaweed shall refer the case to the hybridcourts [the extraordinary chambers].

298. If a case submitted to the Ajaweed refers to acts of violence inconjunction with the ongoing armed conflict in Darfur and committedwithin the framework of intra-tribal and inter-tribal conflicts on a localscale, the Ajaweed shall refer the case to the most appropriate bodyamong the traditional mechanisms.

299. If a case submitted to the Ajaweed refers to common crimescommitted by ordinary criminals at the occasion, but without aninherent link to the ongoing armed conflict in Darfur, the Ajaweed shallrefer the case to the national judiciary of the Sudan.

E. The National Judiciary of the Sudan

300. The national judiciary of the Sudan exercises its subject matterjurisdiction as far as the prosecution concerns common crimescommitted by ordinary criminals at the occasion, but without aninherent link to the ongoing armed conflict in Darfur.

301. The national judiciary of the Sudan requires substantiverestructuring before being in a position to fulfil its judicial functionsimpartially and independently.

F. Compensation Programmes, as a Contribution to Peace

302. The Compensation Programme to be developed by the FG [and thegovernment of the Region of Darfur] as a matter of priority shall be basedupon the following principles:

(a) Every Darfurian – man, woman or child – who has beenpersecuted or suffered economic losses or bodily harm,

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including loss of life, is entitled to prompt and adequatecompensation;

(b) the compensation shall be an individual and a collectiveone;

(c) the timeframe for applying for compensation shall allowfor everybody to register the claim.

303. A Compensation Commission, composed of experts, shall beestablished as a matter of priority by national [regional] legislative act.The commission shall cooperate closely with the native administrationsand local governments. Equally there shall be set up a CompensationFund by national legislative act which shall be endowed at the time of itsestablishment with sufficient resources to cover the most basic needs forrepatriation and resettlement within the first six months of the signing ofa future Final Peace Agreement for Darfur. The fund shall bereplenished by the FG as necessary. It may receive donations frominternational organisations as well as foreign states.

304. The measures provided for by the mechanisms of TransitionalJustice are without prejudice to any measures which are to beimplemented under future compensation programmes and other formsof reparation.

305. This compensation programme is without prejudice to thecompensation in land referred to in Articles 211 et seq. and Article 238.

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Part VI. COMPREHENSIVE CEASEFIRE AND FINALSECURITY ARRANGEMENTS

306. The comprehensive ceasefire agreement shall be supervised by

Option 1: the AU.

Option 2: the UN.

Option 3: a joint AU / UN supervisory body.

Option 4: the Arab League.

Option 5: the FG.

Option 6: a joint supervisory body composed of representatives of theFG and the government of the Region of Darfur.

Option 7: the Sudan People’s Liberation Movement/ Sudan People’sLiberation Army.

307. The Comprehensive Ceasefire in Darfur shall be based upon thefollowing general principles:

(a) Lasting peace in Darfur shall, among other things, beachieved and consolidated through a comprehensiveCeasefire Agreement and final Security Arrangementsthat address the root causes and different aspects of thearmed conflict.

(b) All parties to the conflict must refrain from acts such asmobilization, recruitment or initiatives that are likely tojeopardize the peace process including offensive militaryactions, deployment of forces and engaging in hostilepropaganda campaigns as a reaffirmation of commitmentto create and maintain a conducive atmosphere.

(c) The free movement of people, goods and services inDarfur shall be guaranteed.

(d) All parties to the conflict must:

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(i) re-state their commitment to create appropriatesecurity conditions for the unimpeded flow ofhumanitarian assistance and goods,

(ii) refrain from any act that may jeopardize thehumanitarian operations in Darfur,

(iii) guarantee security in the camps hosting IDPs, and

(iv) create an atmosphere conducive to the voluntaryreturn of IDPs and refugees to their areas of origin.

(e) The Janjaweed/armed militias shall be disarmed anddemobilized in line with UN resolutions 1556 and 1564,the AU Summit Resolutions, the N’djamena Agreementand the November 2004 Abuja Protocol, in order toensure security in Darfur.

(f) Confidence and trust building measures shall beimplemented. These measures shall provide for therelease of persons detained as a result of the conflict inDarfur, this shall not include such persons as wereconvicted through the due process of law.

(g) Law enforcement must be effective. The internal securityof Darfur must be assured. The prime responsibility forthe enforcement of the law and the maintenance of publicpeace rests with the recognized police authority acting inaccordance with the law and accepted standards.

(h) Processes shall be designed in a way to enable all politicalforces and civil society organizations to play an effectiverole in achieving a comprehensive peace.

(i) Proper mechanisms for the disarmament, demobilization,rehabilitation and social reintegration of formercombatants returning to civilian life shall beimplemented.

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(j) All parties to the armed conflict shall ensure that, at alllevels, the troops and forces under their commandobserve, implement and protect a future Final PeaceAgreement for Darfur.

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APPENDIX

Schedule (A): National Powers

The exclusive legislative and executive powers of the national level ofgovernment shall be as follows:

1. national defence, national security and protection of the nationalborders,

2. foreign affairs and international representation,

3. nationality and nationalization,

4. passports and visas,

5. immigration and aliens,

6. currency, coinage and exchange control,

7. the Constitutional Court and other national courts,

8. national police (including Criminal Investigation Department,coordination of international, regional and bilateral criminal matters,and standards and regulations including the standards for training thepolice in the National Capital),

9. the fixing of and providing for salaries and allowances of civil andother officers of the national government,

10. postal services,

11. traffic regulations,

12. civil aviation,

13. maritime shipment,

14. beacons,

15. navigation and shipment,

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16. national lands and national natural resources,

17. the Sudanese Central Bank, the incorporation of national banksand issuing of paper money,

18. bills of exchange and promissory notes,

19. weights, measures and standards, dates and standards of time,

20. meteorology,

21. tertiary education, education policy and scientific research,

22. establishment and maintenance of national prisons,

23. national institutions as envisaged under the Darfur PeaceAgreement (DPA) or as set forth in the INC,

24. customs, excise and export duties,

25. intellectual property rights, including patents, trademarks andcopyright,

26. national flag, national emblem and national anthem,

27. signing of international treaties on behalf of the Republic of theSudan,

28. national debt and borrowing on public credit,

29. national census, national surveys and national statistics,

30. national states of emergency,

31. international and inter-state transport, including roads, airports,waterways, harbours and railways,

32. national public utilities,

33. national museums and national heritage sites,

34. national economic policy and planning,

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35. the Nile Water Commission, the management of the Nile Waters,trans-boundary waters and disputes arising from the management ofinter-state waters,

36. national information, publications, telecommunicationsregulations,

37. national taxation and national revenue collection,

38. national budget,

39. bankruptcy and insolvency,

40. laws providing for national elections and their supervision by theNational Elections Commission,

41. issuance of national identity card,

42. disaster preparedness, management and relief and epidemicscontrol.

Schedule (B): Powers of the Government of the Region of Darfur

The exclusive legislative and executive powers of the government of theRegion of Darfur shall be as follows:

1. the adoption and amendment of the Constitution of thegovernment of the Region of Darfur,

2. police, prisons and wildlife services,

3. security forces during the Interim Period,

4. legislation relating to the government of the Region of Darfurstructures for the delivery of services at all levels of government of theRegion of Darfur,

5. borrowing of money on the sole credit of the government of theRegion of Darfur within the national macro-economic policy,

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6. planning for Region of Darfur government services such health,education and welfare,

7. the appointment, tenure and payment of government of theRegion of Darfur officers and civil servants,

8. development of financial resources for the government of theRegion of Darfur,

9. taxation and revenue collection in Darfur,

10. Darfur budget,

11. public utilities of the government of the Region of Darfur,

12. government of the Region of Darfur flag and emblem,

13. reconstruction and development of the Darfur,

14. government of the Region of Darfur information, publications,media and telecommunications utilities,

15. rehabilitation and benefits to disabled war veterans, orphans,widows and care for the dependents of deceased war heroes,

16. natural resources and forestry,

17. town and rural planning,

18. fire fighting and ambulance services,

19. government of the Region of Darfur reformatory institutions,

20. government of the Region of Darfur recreation and sports,

21. such matters relating to taxation, royalties and economic planningwith reference to Part IV on Wealth Sharing,

22. local government,

23. cultural matters within the Region,

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24. regulation of religious matters,

25. the management, lease and utilization of lands belonging to theRegion,

26. local works and undertakings,

27. registration of marriage, divorce, inheritance, births, deaths,adoption and affiliations,

28. enforcement of regional laws,

29. primary and secondary schools and education administration inregard thereto,

30. intra-state public transport and roads,

31. regional cultural and heritage sites, State libraries, State museums,and other historical sites,

32. traditional and customary law.

[Schedule (C): Powers of States]

[The exclusive executive and legislative powers of a State of Darfur and theirinterrelationship to the Region of Darfur have to be decided upon when and if itis decided that States should exist as an additional level of government in theRegion of Darfur.]

Schedule (D): Powers of Local Government

See Part III, Chapter 5, Articles 109 et seq.

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Schedule (E): Concurrent Powers

The national government, the government of the Region [and Stategovernments] of Darfur, shall have legislative and executivecompetencies on any of the matters listed below:

1. economic and social development in Darfur,

2. legal and other professions and their associations,

3. health policy,

4. urban development, planning and housing,

5. trade, commerce, Industry and industrial development,

6. delivery of public services,

7. banking and insurance,

8. manufacturing licenses,

9. electricity generation and water and waste management,

10. information, publications, media, broadcasting andtelecommunications,

11. environmental management, conservation and protection,

12. relief, repatriation, resettlement, rehabilitation and reconstruction,

13. without prejudice to the national regulation the initiation,negotiation and conclusion of bilateral international and regionalagreements on culture, sports and developmental assistance withforeign governments and foreign non-governmental organizations,

14. financial and economic policies and planning,

15. women’s empowerment,

16. gender policy,

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17. pastures, veterinary services, and animal and livestock diseasescontrol,

18. consumer safety and protection,

19. residual powers, subject to Schedule E,

20. mother, child protection and care,

21. water resources other than inter-state waters,

22. notwithstanding Schedules A, B and C, such matters relating totaxation, royalties and economic planning,

23. such matters relating to taxation, royalties and economic planningas a matter or matters in regard to which the government of the Regionof Darfur is accorded concurrent authority,

24. human and animal drug quality control,

25. regulation of land tenure, usage and exercise of rights to land.

Schedule (F): Residual Powers

The residual powers shall be dealt with according to their nature (e.g., ifthe power pertains to a national matter, requires a national standard, oris a matter which cannot be regulated by a single State, it shall beexercised by the FG. If the power pertains to a matter that is usuallyexercised by the Region/State or local government, it shall be exercisedby the Region/State). [Where a matter is susceptible to a regulation of theRegion of Darfur, in respect of the States of Darfur, it shall be exercised by thegovernment of the Region of Darfur.]

Schedule (G): Resolution of Conflicts in Respect of ConcurrentPowers

If there is a contradiction between the provisions of Darfur law [and/or aState law] and/or a National law, on the matters referred in Schedule E,the law of the level of government which shall prevail shall be that

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which most effectively deals with the subject matter of the law, havingregard to:

(1) the need to recognize the sovereignty of the Nation whileaccommodating the status of Darfur as a Region [or of the States],

(2) whether there is a need for national or regional norms andstandards,

(3) the principle of subsidiarity,

(4) the need to promote the welfare of the people and to protect eachperson’s human rights and fundamental freedoms.

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