Serving a state that couldn’t pay: why South Sudan’s civil servants didn’t quit during the war

When civil war broke out in South Sudan in December 2013, civil servants found themselves at the centre of a deep political and economic crisis.

The state was, and remains, the largest employer, surpassing private companies and NGOs. In 2015, the approved national budget accounted for 465,041 government personnel. Over 85% were engaged in security-related functions. Despite the absence of official statistics, observations confirm that the civil service has not shrunk over the years.

As the conflict became increasingly politicised and shaped by ethnic divisions, civil servants had to navigate shifting loyalties and growing insecurity.

The war also triggered an economic collapse. In 2015, the South Sudanese pound lost nearly 90% of its value against the US dollar. Trade routes were disrupted. Domestic production of products declined and shortages of imported goods fuelled hyperinflation.

The near-total collapse of oil exports – the government's main source of revenue – severely weakened state finances. By late 2015, the government was effectively bankrupt and increasingly unable to fund the public sector.

This resulted in long delays in civil servants' salary payments from several months to a year. Hyperinflation also eroded the value of wages.

This did not lead to a mass exodus from the civil service, however. During my PhD fieldwork, I found that many civil servants chose to stay. As a political sociologist, I was interested in understanding their decision to remain in a broke administration during such challenging times. I explored the little-known wartime experiences of ordinary middle-ranking civil servants to make sense of it.

Drawing on 22 months of fieldwork in South Sudan, I found that civil servants chose to remain in government because – despite the absence of a salary and direct income – their jobs provided benefits. These included social status, and access to networks and opportunities. The job provided a sense of normality, too, during a period of political upheaval. It was also a realistic route to paid employment in a hoped-for future. Other options were scarce.

The civil war formally ended with the 2018 peace agreement, but South Sudan remains mired in political and economic crises. My findings help explain why, despite repeated shocks, state institutions have endured.

The study

I collected the data in my study between 2017 and 2022 in the region of Western Equatoria in South Sudan. The region doesn't have oil resources, hosts a variety of ethnic groups and plunged into war later than many others. I relied on observations from various administration offices at county and state levels, and informal conversations held during these visits.

As part of my research, I followed the stories of six civil servants – two women and four men – from different departments and directorates at the county and state levels. They held different grades within the administration. They were aged over 30 and held at least a high school certificate.

The findings

My study shows that civil servants' attachment to a state with no money was shaped by material, social and political factors.

Before the war – from independence in 2011 to 2013 – even lower-ranking government jobs provided civil servants with a modest but stable standard of living. For instance, a cleaner (grade 16) in public administration earned around US$180 to US$200 at the time. But after the conflict began, that economic security disappeared.

By April 2017, a director's monthly salary (grade 3) could only buy a 20kg bag of rice and a 10kg bag of red beans. An administrative officer's (grade 12) salary could barely pay for 2kg of rice.

All civil servants had to look for other sources of income for daily survival. These included farming, small-scale businesses, and renting or selling properties. The economic security attached to a position in the civil service had vanished.

Yet civil servants continued to go to the office because it still gave them access to other forms of resources, helped them maintain their status and preserved an appearance of normality.

The benefits included:

• access to opportunities, such as NGO trainings and workshops that provided per diems for the period of participation, or a certificate of attendance that could be added to a CV

the knowledge and power to help people and do favours, which helped them cultivate social networks that could be used to access goods, services or credit

A desired future

Despite the South Sudanese government's withdrawal from many of its social responsibilities, civil servants continued to imagine a different kind of state. Those I interviewed shared a vision of a strong and functioning state.

It was often accompanied by a sense of self-fulfilment, as they imagined themselves helping to build such a state. Maintaining the functioning of state institutions and preserving some level of public service during the crisis became a meaningful commitment, a survival strategy and an investment in upward mobility within a “wished-for state”.

The decision to remain in this career was also shaped by a lack of alternatives, however. Middle-ranking civil servants had relatively low levels of formal education and lacked the networks needed to secure other employment. The private sector has remained small because of a difficult business climate and a lack of economic diversification.

The total collapse of a functioning state would mean the disappearance of their jobs – which helps explain their efforts to keep the administration going.

The economic crisis in South Sudan raises questions, however, about how long civil servants can continue to sustain state institutions.

In many cases, salaries have gone unpaid for more than a year. And cash shortages in banks prevent civil servants from accessing whatever funds may be available to them.

Emmanuelle Veuillet does not work for, consult, own shares in or receive funding from any company or organisation that would benefit from this article, and has disclosed no relevant affiliations beyond their academic appointment.

By Emmanuelle Veuillet, Associate professor, University of Juba

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