The group's latest report names civilian and military officials it says helped co-ordinate militias and armed forces who attacked civilians.
Sudanese President Omar Hassan al-Bashir and 20 other government and army officials are named in the report.
Tens of thousands have been killed and two million people have been displaced from their homes since the violence began in Darfur in early 2003.
The Sudanese government has denied that it co-ordinated the violence. It has dismissed the HRW report as 'ridiculous'.