Rwanda continues its efforts to reform the regulatory framework for faith-based organisations (FBOs). The Rwanda Governance Board (RGB), an organ mandated to oversee and promote good governance, has introduced a series of new directives and 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 within Faith-Based Organisations in Rwanda (the “New Directive on Foreign Preachers”),and Guidelines nº 001/RGB/2025 on Religious Preaching that Aligns with Rwandan Values (the “New Guidelines on Preaching with Rwandan Values”)(collectively, the “New FBO Directives and Guidelines”). These New FBO Directives and Guidelines, entered into force on June 17th, 2025, the date they were signed by the CEO of RGB.
The Rationale for the Reforms
The rationale behind these New FBO Directives and Guidelines is to ensure the safety, dignity, inclusivity, and lawful organisation of religious public gatherings; to maintain public order; to maintain doctrinal integrity; and to enforce the legal framework governing religious operations. Precisely, the New Guidelines on Preaching with Rwandan Values aim to promote responsible preaching practices that align with the Rwandan laws and regulations, while proactively preventing the dissemination of messages that could advance divisionism, hatred, or undermine Rwanda’s shared values.
Key Changes and Stricter Requirements
The New FBO Directives and Guidelines introduce various substantial changes andimpose stricter requirements.
1. Directive on Foreign Preachers
1.1. Enhanced Qualification and Visa Requirements
Foreign preachers must now fulfill minimum academic and doctrinal qualifications as stipulated in the FBO regulatory framework. They are also required to secure a valid conference visa or any other visa category recognised by the Directorate General of Immigration and Emigration that specifically authorises participation in religious conferences, seminars, workshops, or related events.
1.2. Formal Invitation and Hosting
Foreign preachers must be formally invited and hosted by an FBO that possesses a valid certificate of legal personality issued by the RGB.
1.3. Increased Responsibility for Hosting FBOs
Hosting FBOs bears substantial new obligations. They must submit a formal notification to the RGB at least fifteen (15) working days prior to the foreign preacher’s arrival. This notification must be accompanied by specific documentation, including a copy 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 hosting FBO must also assume full responsibility for the conduct and compliance of the foreign preacher during their stay, ensuring compliance to Rwandan laws, cultural norms, and the Directive on Foreign Preachers itself.
1.4. Prohibited Activities
Foreign preachers are strictly prohibited from conducting religious activities outside the approved framework and from engaging in political, subversive, or divisive teachings.
2. New Guidelines on Preaching with Rwandan Values
2.1. Explicit Prohibition of Harmful Preaching
The New Guidelines on Preaching with Rwandan Values plainly prohibit FBOs and religious 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, delivering misleading teachings, false prophecies, or engaging in exploitative financial practices.
2.2. Mandatory Training
All preachers are now required to undergo training covering the history of Rwanda and the Genocide against the Tutsi and its manifestations.
2.3. Code of Conduct Requirement
All religious institutions must adopt a code of conduct that specifically prohibits hate speech, false prophecies, discriminatory language and practices, disrespectful language, unethical manifestations, and any conduct not aligned with the values of the respective FBOs.
2.4. Regulation of Public Rituals
Religious rituals conducted in public places now require prior authorisation from the District or the City of Kigali. Practices that may compromise people’s dignity, safety, and security are prohibited.
3. New Directive on Religious Public Gatherings
This directive establishes mandatory standards for the organisation and conduct of religious public gatherings to ensure compliance with legal, safety, health, and public interest obligations. It applies to all FBOs and legal entities intending to organise such gatherings. A “religious public gathering” is defined as any event organised by an FBO that is open to the public for religious purposes.
3.1. Pre-Conditions for Organising Events
Only FBOs holding a valid legal personality certificate issued by RGB are permitted to organise religious public gatherings. Organisers must:
(i) Obtain permits from local authorities (District or City of Kigali) and security organs;
(ii) Provide adequate insurance coverage, including coverage for personal injury, property damage, and force majeure events; and
(iii) Submit copies of relevant approvals to RGB upon request.
3.2. Venue and Safety Requirements
Organisers must ensure full compliance with capacity limits, fire codes, and hygiene regulations; ensure the availability of emergency medical services, firefighting equipment, and trained first aid personnel; provide accessibility for persons with disabilities; arrange adequate public transport and parking arrangements; and prepare a comprehensive emergency response plan, including evacuation routes and crowd management strategies.
3.3. Sanctions for Non-Compliance
Non-compliance with the New Directive on Religious Public Gatherings may result in event suspension, legal status revocation, administrative penalties, or criminal prosecution. To comply, FBOs in Rwanda must, among other requirements, update their internal policies, vet foreign preachers, and provide training on Rwandan history, the Genocide against 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
