Terms of reference for ICAI review on UK aid to Sudan
1. Overview
Sudan is currently facing the world’s worst humanitarian crisis, caused by conflict between the Sudanese Armed Forces (SAF) and the Rapid Support Forces (RSF). Over 11.4 million people are now displaced and over 3 million people, mainly women and children, have fled to neighbouring countries. Famine was officially declared in ZamZam internally displaced persons camp in August 2024 and has now spread to 10 additional areas, with a further 17 areas at risk of famine. Sudan-wide, around 25 million people are in need of humanitarian assistance and protection services.
Sudan is a diplomatic and funding priority for the UK. UK aid funding to Sudan has increased since the fighting broke out in April 2023. Following the announcement of the reduction of official development assistance to 0.3% of UK gross national income, the prime minister said that the UK would continue to play a key humanitarian role in Sudan, Ukraine and Gaza.
2. Purpose and scope
The purpose of this review is to generate evidence to inform the UK’s approach to its ongoing support in Sudan and to people affected by the crisis in neighbouring countries. It aims to generate broader lessons for fragile and conflict affected contexts, including on how humanitarian aid, development assistance and diplomacy can work together to achieve results.
The review will cover the period from the 2019 uprising, when long-time President Omar al-Bashir was overthrown by the Sudanese Armed Forces, to the present-day conflict. This includes the April 2019 to October 2021 post al-Bashir period of transitional government, the subsequent coup and return to military government during October 2021 to April 2023, and the current crisis period from April 2023 onwards. Despite this temporal scope, the review will still be situated within the context of earlier Sudanese history.
The geographic scope will cover spillover effects and refugee flows into neighbouring countries Chad and South Sudan.
The review methodology will include a literature review; strategy review; key informant interviews; locally led research with Sudanese stakeholders in Nairobi and Kampala; a perception survey; and both in-person and virtual visits to Kenya, Ethiopia, Chad and South Sudan.
3. Review questions
This review will look at the following questions:
- Has the UK demonstrated responsible global leadership through its past, present and planned efforts both in Sudan and regarding the impact on neighbouring countries?
- Has the UK demonstrated genuine partnership through its past, present and planned efforts both in Sudan and regarding the impact on neighbouring countries?
- Has the UK delivered, contributed to and supported an effective humanitarian response post-April 2023 both in Sudan and regarding refugee flows into neighbouring countries?
- Has the UK acted for and with women and girls through its past, present and planned efforts both in Sudan and regarding refugee flows into neighbouring countries?
4. Governance and resourcing
Liz Ditchburn will be the lead commissioner for the review, providing guidance and oversight, with additional input from the Chief Commissioner, Jillian Popkins.
The review will be undertaken by ICAI’s Service Provider and will be supported by ICAI’s Secretariat who will provide advice and support throughout the process.
The methodology and final report will be peer reviewed by Hugo Slim of the University of Oxford.
The review will be informed by engagement with UK government officials, international donors to Sudan, Sudanese and international actors engaged in peace processes, Sudanese diaspora, Sudanese civil society, self-help/mutual aid and advocacy groups, regional organisations, multilateral organisations and NGO funding partners.
5. Timetable and output
The review will progress to the following timetable:
- January-May: Research and fieldwork
- May: Key impressions (update to government)
- June-September: Emerging insights (update to government), report drafting and factual accuracy checks
- October: Publication of the review