Rwandacontinues its efforts to reform the regulatory framework for faith-basedorganisations (FBOs). The Rwanda Governance Board (RGB), an organ mandated tooversee and promote good governance, has introduced a series of new directivesand guidelines on preaching and religious gatherings. These include Directivenº 003/RGB/2025 on Minimum Standards for Organising Religious Public Gatherings(the “New Directive on Religious Public Gatherings”), Directive nº002/RGB/2025 on the Regulation of Foreign Preachers Operating withinFaith-Based Organisations in Rwanda (the “New Directive on Foreign Preachers”),and Guidelines nº 001/RGB/2025 on Religious Preaching that Aligns with RwandanValues (the “New Guidelines on Preaching with Rwandan Values”)(collectively, the “New FBO Directives and Guidelines”). These New FBODirectives and Guidelines, entered into force on June 17th, 2025, thedate they were signed by the CEO of RGB.
The Rationale for the Reforms
Therationale behind these New FBO Directives and Guidelines is to ensure the safety,dignity, inclusivity, and lawful organisation of religious public gatherings; tomaintain public order; to maintain doctrinal integrity; and to enforce thelegal framework governing religious operations. Precisely, the New Guidelineson Preaching with Rwandan Values aim to promote responsible preaching practicesthat align with the Rwandan laws and regulations, while proactively preventingthe dissemination of messages that could advance divisionism, hatred, orundermine Rwanda’s shared values.
Key Changes and Stricter Requirements
TheNew FBO Directives and Guidelines introduce various substantial changes andimpose stricter requirements.
1. Directiveon Foreign Preachers
1.1. Enhanced Qualification andVisa Requirements
Foreignpreachers must now fulfill minimum academic and doctrinal qualifications asstipulated in the FBO regulatory framework. They are also required to secure avalid conference visa or any other visa category recognised by the DirectorateGeneral of Immigration and Emigration that specifically authorisesparticipation in religious conferences, seminars, workshops, or related events.
1.2. Formal Invitation and Hosting
Foreignpreachers must be formally invited and hosted by an FBO that possesses a validcertificate of legal personality issued by the RGB.
1.3. Increased Responsibility forHosting FBOs
HostingFBOs bears substantial new obligations. They must submit a formal notificationto the RGB at least fifteen (15) working days prior to the foreign preacher’s arrival.This notification must be accompanied by specific documentation, including acopy of the approved visa, evidence of the preacher’s religious qualifications,and a detailed calendar of the preacher’s activities, including dates, venues,and intended topics or themes of religious teachings. Prominently, the hostingFBO must also assume full responsibility for the conduct and compliance of theforeign preacher during their stay, ensuring compliance to Rwandan laws,cultural norms, and the Directive on Foreign Preachers itself.
1.4. Prohibited Activities
Foreignpreachers are strictly prohibited from conducting religious activities outsidethe approved framework and from engaging in political, subversive, or divisiveteachings.
2. New Guidelines on Preachingwith Rwandan Values
2.1. Explicit Prohibition ofHarmful Preaching
TheNew Guidelines on Preaching with Rwandan Values plainly prohibit FBOs andreligious preachers from teachings and practices that undermine Rwandan values,social cohesion, safety, and security. This includes promoting divisionism,genocide ideology, or any form of discrimination (ethnic, gender, religious, regional),undermining national unity and peacebuilding, inciting violence, deliveringmisleading teachings, false prophecies, or engaging in exploitative financialpractices.
2.2. Mandatory Training
Allpreachers are now required to undergo training covering the history of Rwandaand the Genocide against the Tutsi and its manifestations.
2.3. Code of Conduct Requirement
Allreligious institutions must adopt a code of conduct that specifically prohibitshate speech, false prophecies, discriminatory language and practices,disrespectful language, unethical manifestations, and any conduct not alignedwith the values of the respective FBOs.
2.4. Regulation of Public Rituals
Religiousrituals conducted in public places now require prior authorisation from theDistrict or the City of Kigali. Practices that may compromise people’s dignity,safety, and security are prohibited.
3. New Directive on ReligiousPublic Gatherings
Thisdirective establishes mandatory standards for the organisation and conduct ofreligious public gatherings to ensure compliance with legal, safety, health,and public interest obligations. It applies to all FBOs and legal entitiesintending to organise such gatherings. A “religious public gathering” isdefined as any event organised by an FBO that is open to the public forreligious purposes.
3.1. Pre-Conditions for OrganisingEvents
Only FBOs holding a valid legal personalitycertificate issued by RGB are permitted to organise religious publicgatherings. Organisers must:
(i) Obtainpermits from local authorities (District or City of Kigali) and securityorgans;
(ii) Provideadequate insurance coverage, including coverage for personal injury, propertydamage, and force majeure events; and
(iii) Submitcopies of relevant approvals to RGB upon request.
3.2. Venue and Safety Requirements
Organisers must ensure full compliance withcapacity limits, fire codes, and hygiene regulations; ensure the availabilityof emergency medical services, firefighting equipment, and trained first aidpersonnel; provide accessibility for persons with disabilities; arrange adequatepublic transport and parking arrangements; and prepare a comprehensiveemergency response plan, including evacuation routes and crowd managementstrategies.
3.3. Sanctions for Non-Compliance
Non-compliance with the New Directive onReligious Public Gatherings may result in event suspension, legal statusrevocation, administrative penalties, or criminal prosecution. To comply, FBOsin Rwanda must, among other requirements, update their internal policies, vetforeign preachers, and provide training on Rwandan history, the Genocideagainst the Tutsi, national values, and prohibited content.
This article was written by Jean-Claude Nshimiyimana, a corporate and legal services lead at Andersen in Rwanda.
jean.claude@rw.andersen.com
+250788921438
