Sudan's formal constitutional framework rests on the 2019 Constitutional Document as amended in 2025. A permanent constitution and nationally elected central organs have not been established. The amendment changed the planned Transitional Legislative Council into the Transitional Legislative Authority, an interim body intended to legislate and exercise oversight. The Juba Peace Agreement of 2020 also remains relevant to the constitutional arrangement. The Transitional Sovereignty Council is the formal head of state structure, with Abdel Fattah al-Burhan as its chair. Prime Minister Kamil Idris leads the executive administration through the Council of Ministers, sometimes described as the Hope Government. The Prime Minister prepares budget proposals, directs state administration and coordinates crisis responses. The Transitional Sovereignty Council confirms the Prime Minister, ministers and state governors. Key ministries include Defence, Interior, Justice, Finance, Federal Governance and Foreign Affairs. The National Council for Planning and International Cooperation operates under the Transitional Sovereignty Council. Sudan is divided formally into 18 wilayat, or states, which contain localities. Governors, state councils and local administrations perform public functions where they remain operational. Revenue distribution and salary payments between the national and state levels affect whether formal institutions can continue working. The Abyei Area has a special status, and its sovereignty remains unresolved between Sudan and South Sudan. Native administration, regional peace arrangements and local emergency administrations supplement the formal structure. Territorial control is not uniform. Around June 2026, the Sudanese Armed Forces, known as the SAF, predominantly controlled the north, east and centre, including Khartoum, River Nile, Northern, Kassala, Gedaref, Red Sea and Al Jazirah. The Rapid Support Forces, known as the RSF, predominantly controlled western Sudan, Darfur, West Kordofan and parts of North and South Kordofan. Blue Nile and the Nuba Mountains remained contested or partly under the Sudan People's Liberation Movement-North, or SPLM-N. The Sudan Liberation Army faction led by Abdel Wahid al-Nur, known as SLA-AW, retained influence in Jebel Marra. These lines change quickly. The RSF-linked Government of Peace and Unity, also referred to as TASIS, operates a parallel structure with a Presidency Council, civil administrations and separate central-bank and currency arrangements. The United Nations, the United Nations Security Council and the African Union have rejected this parallel state structure and territorial fragmentation. It does not have equal international recognition with Sudan's formal state institutions. Sudan's civil service, ministries, state administrations, localities, public registries, passport offices, tax bodies, customs authorities and police form the formal administrative system. Legal access generally depends on nationality or residence and on the requirements of the responsible authority. Actual access also depends on whether that authority operates in the area, whether staff and infrastructure are available, which armed actor controls checkpoints and whether competing instructions are being issued. Displacement, damaged infrastructure and loss of personnel prevent a uniform nationwide administrative pathway. The Constitutional Document formally recognises fundamental rights, the rule of law, an independent judiciary and duties linked to public service, taxation and compliance with the law. It also provides for emergency and security powers. In practice, protection varies sharply by territory and authority. Reports document arbitrary detention, enforced disappearance, torture and restricted access to legal assistance. The Judicial Authority is formally independent. The Supreme Judicial Council, Constitutional Court, Supreme Court, Public Prosecution and Auditor-General are part of the oversight framework. The Anti-Corruption and Public Funds Recovery Commission also has a formal role. Their practical independence, resources and territorial access are limited, and effective parliamentary scrutiny is weak. Some military- and security-linked companies remain outside effective public financial control. The International Criminal Court, the Office of the United Nations High Commissioner for Human Rights and the United Nations Fact-Finding Mission provide external accountability and documentation channels, particularly for serious abuses. The Ministry of Culture and Information, state media, the Journalists Syndicate, professional associations, non-governmental organisations, humanitarian networks and Emergency Response Rooms contribute to Sudan's public sphere. Freedom of expression, the press and association exists formally but is heavily restricted in practice by threats, abductions, registration pressure, internet and information controls, propaganda and self-censorship. Conditions differ between areas controlled by the SAF and the RSF. The Ministry of Finance and Economic Planning manages the formal public finance system. The 2026 emergency budget prioritises reconstruction, the return of state functions, basic services, war-related expenditure, domestic revenue and unified budget management. Revenue comes from taxes, customs, gold, livestock, agriculture, transit and other resources, but collection depends on war conditions and territorial control. Parallel financial systems and informal charges add uncertainty. No reliable nationwide schedule of administrative fees or processing times exists; the responsible authority, control area, security situation, document status and local practice determine the practical cost and duration. Formal security responsibilities lie with the Transitional Sovereignty Council, the Ministry of Defence, the Ministry of Interior, the SAF, the police and the General Intelligence Service. In daily life, security is also exercised by the RSF, allied militias, the SPLM-N, the SLA-AW and local armed actors. Sudan therefore has no uniform nationwide monopoly on force or guarantee of protection. Air and drone attacks, checkpoints, forced payments, recruitment, arbitrary detention and displacement can affect access to administration, movement and humanitarian assistance.
State in Sudan
Sudan is a formal transitional state whose institutions and territorial authority are severely fragmented by the civil war. The Transitional Sovereignty Council, the Prime Minister and the Council of Ministers form the central executive structure, while 18 wilayat, or states, and localities provide subnational administration. In practice, access to public services, documents, security and justice depends heavily on the authority controlling the area.
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