Baliet County, Upper Nile State
including Akoka County (see note below)
Demographics
2008 NBS Census population: 48,010
2021 NBS PES population estimate*: 29,750**
2022 UN OCHA population estimate*: 57,866
2024 UN OCHA population estimate*: 29,751
2024 IPC population estimate: 35,158
2025 UN OCHA population estimate*: 76,145
Ethnic groups: Padang Dinka (Dunjol/Dong Jol, Ngok Lual Yak [comprising eleven sub-clans including: Ajuba, Awieer/Awiɛɛr, Adong/Adɔ̈ŋ, Achaak/Acaak, Abii, Baliët, Balak, Duut, Ding/Dïng, Ngaar/Ŋäär and Dhiaak]), Nuer, Shilluk/Chollo
Displacement Figures as of September 2024: 4,800 IDPs (-1,375 Sept. 2023) and 21,595 returnees ( -514 Sept. 2023)
November 2022 IPC Food Security Projections: November 2024 – Crisis (Phase 3); December to March 2025 – Crisis (Phase 3); April to July 2025 – Emergency (Phase 4)
Economy & Livelihoods
Baliet County is located at the centre of Upper Nile State. It borders Panyikang and Malakal Counties to the west, Fashoda County to the north-west, Melut County to the north, Maban, Longochuk and Luakpiny/Nasir Counties to the east and Ulang County to the south. It also borders Jonglei State (Nyirol County) to the south-west.
The county is part of the Eastern flood plains livelihood zone, located in the northeast corner of South Sudan and home to several different agro-pastoralist groups. The White Nile flows along its northwest border, the Sobat and Fulus rivers flow across the southwest corner of the county, and the Adar River across the northeast. The main economic activities in the county are agriculture, livestock and fishing.
An estimated 30% of households are farmers and the main crops grown are sorghum, maize, cowpeas, and pumpkin (FAO 2016). More recent figures from the FAO/WFP indicate the figure increased to 50% of households in the county being engaged in farming, with a gross cereal yield of 0.6 tonnes per hectare in 2021 and 2022 (FAO/WFP 2022, FAO/WFP 2023). Agriculture is rain-fed with the rainy season lasting from May to October, during which seasonal rivers, streams, marshlands and lakes are created. During the dry season, households fish in the White Nile and Sobat River.
The county is also home to cattle herders and is part of traditional pastoral migratory routes, moving westward across the county towards grazing grounds and water access by the Sobat and Fulus rivers. Cattle movements have been significantly disrupted by the sustained violence.
Food security for the Baliet County has alternated between Crisis (IPC Phase 3) and Emergency (IPC Phase 4) levels since the onset of violence in December 2013. Current IPC projections for Baliet are at Crisis levels (IPC Phase 3) of food insecurity as of November 2024, and are projected to remain at the same level through March 2025, when they are projected to deteriorate to Emergency (IPC Phase 4) and remain at that level at least through July 2025. Traditionally, cattle raids, livestock diseases, crop pests and drought are the major factors affecting livelihoods. Conflict in the county has often coincided with the planting season, which has depleted local food sources.
Due to Baliet’s location, it has historically relied on trade routes with Ethiopia. However, due to a combination of the civil war and localized violence, trade along this route has decreased over the last ten years.
Infrastructure & Services
The administrative headquarters for Baliet County is Baliet town in Nyongkuach Payam. Note that the disputed Akoka County (which is located within the north-west part of Baliet County) is discussed in the Conflict Dynamics section below.
Baliet County is home to five (5) Early Childhood Development centres, seventeen (17) primary schools, and one secondary school.
In December 2024, the WHO reported that Baliet County had sixteen (16) health facilities, of which eleven (11) were functional. These functional facilities included seven (7) primary health care units (PHCUs), four (4) primary health care centres (PHCCs), and no hospitals. This means there were approximately 1.38 PHCUs per 15,000 people and 2.63 PHCCs per 50,000 people in the county at that time.
According to OCHA’s 2025 Humanitarian Needs Overview, there are an estimated 62,698 people in need in Baliet County, which represents approximately 82% of the county’s total population reported by OCHA for 2025. For comparison, in 2024, OCHA reported that there were an estimated 20,546 people in need in Baliet County, of whom 12,321 were non-displaced people, with the remainder comprising IDPs and returnees. According to OCHA’s 2023 Humanitarian Needs Overview, over 48,750 people in Baliet County were considered to have humanitarian needs (up from 39,400 in 2021). This represented approximately 84% of the estimated population of the county reported in the HNO. In 2020 the county was assessed to have one of the lowest resilience capacities in the country (HNO 2020) and in 2021, Baliet was identified as one of six counties that fell under the catastrophic category for GBV risk (HNO 2021). These challenges are partly due to the fact that sporadic clashes and insecurity have hindered consistent humanitarian access to the area, leaving many needs, protection-related and otherwise, unmet. Additionally, access is also a challenge during the rainy season when roads deteriorate.
Conflict Dynamics
Baliet County has experienced complex patterns of conflict and political contestation in recent decades, with violence becoming increasingly organised along ethnic lines since the 2005 Comprehensive Peace Agreement (CPA). There are competing claims between the Padang Dinka and Shilluk/Chollo communities over the right to settle and graze along the White Nile, with the area around Akoka in north-western Baliet becoming a focal point for these claims, and an epicentre for conflict (see below). However, there are indications that coexistence between the two communities – including shared use of grazing land along the east bank of the River Nile (including Akoka) – has been the norm for much of the 20th century (Craze 2019, p.26). Another axis of conflict involves Padang Dinka and neighbouring Nuer communities, including from parts of the Lou and Eastern Jikany Nuer clans of north-east Jonglei State and south-east Upper Nile State, respectively.
During the second Sudanese civil war (1983-2005), Baliet was the site of significant inter-factional fighting between the SPLM/A forces who remained loyal to John Garang and those who joined the SPLM/A-Nasir faction following the 1991 split. The Nasir faction was subject to further splintering and co-optation by the Sudanese government, while splits affecting the Padang Dinka community (some of whom aligned with the Nasir faction) drove instability and displacement in areas along the east bank of the Nile (PACT Sudan 2006, p.104, 117). SPLM/A forces under the command of George Athor were gradually able to dislodge SPLM/A-Nasir forces (and successor factions) from much of the area during the 1990s (Kuyok 2015, p.837; HRW 1996), though government-aligned militias retained a presence in the north-western Akoka area during the latter stages of the conflict (ISS 2004, p.5; Deng 2004, fn.72).
Peace and reconciliation initiatives in 2003 and 2004 improved relations among affected parts of the Padang Dinka after the signing of the 2005 CPA, while reducing violence and allowing for greater possibilities for travel in the area (PACT Sudan 2006, pp.104-5). Baliet has been particularly affected by boundary disputes linked to political developments and administrative changes since the CPA. In addition to the dispute relating to Akoka County (discussed below), parts of the border between Baliet and Panyikang counties are also reportedly disputed (UNMIS 2010, p.4; see also Small Arms Survey 2014, fn.14). This includes Nagdiar, which is claimed by both the Shilluk/Chollo and Padang Dinka communities, and experienced clashes in 2009 (Small Arms Survey 2016, pp.6-7). Community consultations in 2012 identified various issues affecting Baliet and Akoka and neighbouring counties, including land and grazing disputes alongside cross-border cattle raiding, alongside disputes relating to the collection of taxation revenue by different county authorities in the region (UNDP 2012, pp. 11,16, 29, 35).
Within Baliet County is the disputed Akoka County, which lies in the north-west of Baliet County and was established towards the end of the CPA era. As with a number of other parts of western Upper Nile State, the area of Akoka has been contested between the Shilluk/Chollo and parts of the Padang Dinka, with both advancing competing historical claims regarding ultimate ancestral ownership. Akoka County was established in 2010, and exhibits characteristics of a county-level administrative area, despite not having formally agreed-upon boundaries or any payams listed in NBS reports. Prior to the establishment of the county, conflict reportedly escalated in the Akoka area in 2006, 2008 and 2009 as disputes between parts of the parts of the Shilluk and Padang Dinka communities intensified, and was linked to a brief insurgency in 2010 (Concordis International 2010, p.105; Small Arms Survey 2015, p.9; Small Arms Survey 2016, p.7; Craze 2019, pp.22,31). The majority of Dinka inhabitants from Akoka are from the Dunjol/Dong Gol section of the Padang Dinka. However, both the nominal boundaries and necessity of the county are contested by the Shilluk and Padang Dinka. Accompanying these contestations are disputes over the rights to extract resources (including raising taxation) and concerns over the apportionment of development assistance and employment opportunities in the NGO sector (Craze 2019, p.28). A detailed narrative of the broader conflict that has affected much of the Shilluk and Padang Dinka communities of Upper Nile State can be found in the profile for Malakal County.
Baliet – alongside Akoka – were particularly affected during the first half of national conflict (2013-2018), with events in the areas at points driving the wider conflict in Upper Nile State (which is discussed further in the profile for Malakal County). At the outset of the conflict, Baliet was heavily contested between the government and SPLA-IO, with a 2014 UNMISS report noting allegations that opposition forces – in particular opposition-aligned white army*** militia – were involved in large-scale killing and looting in parts of the county (UNMISS 2014, pp.38-40; see also CIVIC 2016, pp.33-35). The violence also resulted in the displacement of civilians from Baliet to the Malakal Protection of Civilians (PoC) site (Deng et al. 2015, p.5) and to Melut County (UNMISS 2014, p.38).
Across early 2014, fighting continued to affect both the Baliet and Akoka areas (Radio Tamazuj 2014a), though SPLA forces were reported to have pre-emptively split in Baliet in order to avoid fighting between government and opposition forces (Small Arms Survey 2014). The government was gradually able to regain control of much of the area over the coming months (Small Arms Survey 2015), and were allegedly supported by recently mobilised pro-government militias from part of the Padang Dinka community in Akoka and Baliet (Small Arms Survey 2016, p.3). Meanwhile, an assassination attempt was reported against the county commissioner of Akoka in mid-2014, in unclear circumstances (Radio Tamazuj 2014b).
The area was also affected by the increasing tensions in Malakal in early 2015, which led to a re-escalation of conflict between Agwelek forces commander by Johnson Olonyi and government forces. Fighting broke out between militias from the Shilluk and Padang Dinka communities along the border between Fashoda County and Akoka in March 2015, which was reportedly linked to contested claims over land in the east bank of the Nile (UN 2015; Craze 2019, p.44). The incident escalated into further fighting involving militias, during which several aid workers were killed (Coghlan 2017, pp.198-199). Tensions were raised in Malakal town after Johnson Olonyi’s deputy was killed during the militia fighting (Small Arms Survey 2015, p.9), which also generated significant displacement of civilians from both communities to the Malakal PoC site (UN 2015). Following the defection of Johnson Olonyi, conflict spread to the disputed Akoka County, with control of the area changing hands over the following months before the government consolidate control (Small Arms Survey 2016, pp.13-14). There was no further large-scale fighting in Baliet or Akoka between the warring parties for the remainder of the national conflict.
Following the signing of the 2018 R-ARCSS, Baliet has been relatively insulated from the increasing instability that has spread through much of Upper Nile State. However, the combination of contested boundaries and large-scale displacement – including of the Shilluk community – has created a number of sensitivities linked to the return of displaced persons (Small Arms Survey 2021, pp.6-7). Moreover, localised incidents – including cattle raids – have occurred in the post-R-ARCSS era, while serious conflict occurred following attacks from militia from the Eastern Jikany Nuer community of Ulang and Nasir counties in the Akoka area in February and March 2021 (UN Panel of Experts 2021, p.20; Small Arms Survey 2021, p.6). The cause of the attacks is unclear, though resulted in significant displacement, looting, and torching of villages.
Finally, southern Baliet has been affected by periodic raiding and conflict in recent years, while land in the area of Gashia to the south of the county is reportedly contested (UNMIS 2010, p.4). Following an alleged Lou Nuer raid in September 2016 near Baliet town, the area was reportedly evacuated by military forces, with displaced persons being resettled in Malakal town (IOM DTM 2017, p.3). Although raiding – as well as tensions around a fishing site in Gel Achel Payam – have been reported in recent years, these have tended to be relatively limited in scale, while a large raid from Jonglei State in mid-2023 was reportedly stymied following the intervention of security forces.
Administration & Logistics
Payams listed in Government and UN documents: Abwong, Adong, Akotweng, Gel Achel, Kuel, Nyongkuach (County HQ), Nyongrial, Rom, Wunthow
Additional payams listed by local actors: Mijok
UN OCHA 2020 map of Baliet County: https://reliefweb.int/map/south-sudan/south-sudan-baliet-county-reference-map-march-2020
Roads:
- A primary road runs across southern Baliet County, connecting Baliet town to Malakal town in the west and Nasir town in the east. The Logistics Cluster listed the entirety of this road as impassable during both the rainy season of 2024 and dry season of 2025.
- A primary road running north-south between Malakal town and Paloich (in Melut County) passes through the disputed Akoka County in the north-west of Baliet County. The Logistics Cluster listed the entirety of this road as impassable during both the rainy season of 2024 and dry season of 2025.
- The River Nile route between Malakal and Renk passes through the county, with Akoka and Rom listed as destinations. Additionally, the Sobat River runs along the southern edge of the county, with various destinations in the county listed along the route.
UNHAS-Recognized Heli-Landing-Sites and Airstrips: None
The logistic cluster serves ports between Akoka and Renk and coordinates humanitarian barge and boat traffic. As of 2025, the logistics cluster is operating river transportation at 50%, owing to funding constraints.
References
CIVIC. (2016). “Those Who Could Not Run, Died”: Civilian Perspectives on the Conflict in South Sudan. Retrieved 17 July 2023.
Coghlan, N. (2017). Collapse of a Country: A Diplomat’s Memoir of South Sudan. Montreal: McGill-Queen’s University Press.
Concordis International. (2010). More than a line: Sudan’s North-South BorderHYPERLINK “https://www.usip.org/sites/default/files/Grants-Fellows/2010_More-than-a-line_Sudan_Report.pdf”. Retrieved 12 December 2023.
Deng, D. (2004). Self-Reckoning: Challenges of Socio-Cultural Reconstruction and Unity in South Sudan. UNICEF. Retrieved 3 February 2024.
Deng, D.K., Pritchard, M. and Sharma, M. (2015). A War Within: Perceptions of Truth, Justice, Reconciliation and Healing in Malakal POC. South Sudan Law Society. Retrieved 31 March 2024.
FAO/WFP. (2019). Special Report: FAO/WFP Crop and Food Security Assessment Mission to South Sudan. Retrieved 17 July 2023.
FEWSNET. (2018). Livelihoods Zone Map and Descriptions for the Republic of South Sudan (Updated). Retrieved 10 July 2023.
FEWSNET. (2019). Risk of farming (IPC phase 5) will persist in 2020 despite slight improvements during harvesting period. Retrieved 17 July 2023.
HRW, Human Rights Watch. (1996). Behind the Red Line: Political Repression in Sudan. Retrieved 3 February 2024.
ISS, Institute for Security Studies. (2004). The South Sudan Defence Force (SSDF): A challenge to the Sudan Peace Process. Retrieved 12 March 2024.
Kuyok, K.A. (2015). South Sudan: The Notable Firsts. Bloomington, IN: AuthorHouse.
OCHA. (2019). Humanitarian Needs Overview: South Sudan 2020. Retrieved 10 July 2023.
OCHA. (2021). Humanitarian Needs Overview: South Sudan 2021. Retrieved 10 July 2023.
PACT Sudan. (2006). Sudan Peace Fund (SPF): Final Report October 2022 – December 2005. USAID.
Radio Tamazuj. (2014a). Attack on villages in Upper Nile State: official. Retrieved 6 February 2024.
Radio Tamazuj. (2014n). Akoka County commissioner survives ambush. Retrieved 3 February 2024.
Small Arms Survey. (2014). The Conflict in Upper Nile State (18 March 2014 update). Retrieved 3 February 2024.
Small Arms Survey. (2015). The Conflict in Upper Nile State: Describes events through 9 April 2015. Retrieved 3 February 2024.
Small Arms Survey. (2016). The Conflict in Upper Nile State: Describing events through 8 March 2016. Retrieved 17 July 2023.
Small Arms Survey. (2021). MAAPSS Update 13 May 2021: Upper Nile State. Retrieved 3 February 2024.
- (2015). Note to the Secretary-General Ban Ki-moon on the Security Situation in Malakal, Upper Nile State, South Sudan. The Collected Papers of Secretary-General Ban Ki-moon. Retrieved 3 February 2024.
UNDP. (2012). Community Consultation Report: Upper Nile State, South Sudan. Retrieved 17 July 2023.
UNICEF. (2021). County Social Map: Baliet County. Retrieved 17 July 2023.
UNMIS, UN Mission in Sudan. (2010). Resident Coordinator Support Office, Upper Nile State Briefing Pack. Retrieved 3 February 2024.
UNMISS, UN Mission in South Sudan. (2014). Conflict in South Sudan: A Human Rights Report. Retrieved 3 February 2024.
UN Panel of Experts. (2021). Final report of the Panel of Experts on South Sudan submitted pursuant to resolution 2521 (2020), S/2021/365. Retrieved 3 February 2024.
Reports on Baliet
Craze, J. (2019). Displaced and Immiserated: The Shilluk of Upper Nile in South Sudan’s Civil War, 2014-19. Small Arms Survey/HSBA. Retrieved 17 July 2023.
Craze, J. (2022). The Periphery Cannot Hold: Upper Nile since the Signing of the R-ARCSS. Small Arms Survey/HSBA. Retrieved 17 July 2023.
IOM DTM. (2017). Baliet County – Upper Nile State Village Assessment Survey. Retrieved 3 February 2024.
Short, A. (2015). Cattle and Pastoralism in Greater Upper Nile Research Report.
* Note: The National Bureau of Statistics (NBS) Population Estimation Survey (PES) was published in April 2023 based on data collected in May-June 2021. This uses a different method to the UN Office for the Coordination of Humanitarian Affairs (OCHA) Population Working Group (PWG) figures produced based on a combination of 2008 census data and population movement data up to 2022. The large discrepancies are primarily attributable to these different methods rather than changes in the actual population numbers over time and have been disputed by some civil society and analysts. Although the later PWG figures were produced more recently for the HNO 2023, at the request of the Government of South Sudan the data and method used by the PES is being used as the basis for the Common Operational Dataset (COD) for the UN system for the HNO 2024 and likely beyond. For further detail on this and other sources used in the county profiles, see the accompanying Methodological Note.
**Note: This number includes 7,823 people estimated by the NBS as residing in the disputed Akoka County, and 21,927 estimated by the NBS to be present in other areas of Baliet County.
*** Note: ‘White’ armies are distinguished from ‘black’ armies in that the white armies are informal, and the black armies are the organized, uniformed forces. The white army militia that sided with the SPLA-IO at the outset of the conflict were predominantly from parts of the Nuer communities of Jonglei and Upper Nile States.
