May 11, 2015
Rwanda: Current Issues
Overview
Figure 1. Rwanda Key Facts
Under the leadership of President Paul Kagame, Rwanda
has become known for its rapid development and security
gains since the devastating 1994 genocide, in which an
estimated 800,000 people were killed. The minority ethnic
Tutsi community was targeted in the genocide, along with
politically moderate members of the Hutu majority, in a
state-backed extermination campaign. The Tutsi-led
Rwandan Patriotic Front (RPF) took power in 1994 and
ended the genocide. RPF efforts to improve health systems,
the economy, and gender equality have received substantial
support from foreign donors, including the United States.
Development indicators have improved markedly in the
past two decades, but poverty remains widespread. While
praising Rwanda’s progress, U.S. officials have also
criticized its domestic constraints on political and civil
freedoms and the government’s recent history of backing
rebel groups in the Democratic Republic of Congo (DRC).

By investing in its people, Rwanda is building a strong
The State Department’s most recent human rights report
foundation for peace and prosperity in the years to
states that one of Rwanda’s “most important human rights
come. Secretary of State John Kerry, July 2, 2014.
problems” is “the government’s targeting of political
opponents and human rights advocates for harassment,
arrest, and abuse.” Some observers question whether
President Kagame has been in office since 2000, and
constraints on freedom of expression and political activity
previously served as Vice President and Defense Minister
may threaten stability by depriving opponents of peaceful
in post-genocide transitional regimes. He last won
avenues for activism.
reelection with 93% of votes in 2010. The election was
Some RPF defectors and other regime opponents have
peaceful and well organized, but observers—including
attempted to organize outside the country. Human rights
Obama Administration officials—expressed concerns about
organizations accuse the government of targeting exiled
media restrictions, the expulsion of an international human
dissidents for assassination, which the government denies.
rights researcher prior to the vote, and prohibitions on
In early 2014, a top RPF defector—a former head of
opposition party participation. Analysts debate whether
external intelligence who had become active in a diaspora
Kagame may seek to remain in office past 2017, when his
opposition movement known as the Rwanda National
current term ends and he faces constitutional term limits.
Congress (RNC)—was murdered in South Africa. President
Politics and Security
Kagame said in a press interview that “Rwanda did not kill
this person... but I add that, I actually wish Rwanda did it.”
He also reportedly stated in public remarks that “whoever
The RPF dominates state institutions, and Kagame appears
betrays the country will pay the price.” Another leading
to face no serious internal challenger. Independent
RNC figure, former army chief of staff General Kayumba
opposition parties, media outlets, and civil society groups
Nyamwasa, was the victim of an armed attack in 2010
are few in number and reportedly operate with difficulty.
while living in South Africa. In 2014, a South African court
Public criticism of the RPF’s overarching policies or
convicted two Rwandans and two Tanzanians in the attack,
legitimacy is not tolerated; nor is public discussion of
and the judge stated that he believed the incident was
ethnic identity. Critics assert that the government has used
politically motivated.
laws criminalizing “genocide ideology” and “divisionism,”
along with national security provisions, to suppress dissent,
Rwanda’s military is considered to be among the most
to justify prosecutions of journalists and opposition figures,
effective in Africa. Rwandan peacekeepers have
and to limit the ability of human rights groups to report on
participated in multiple U.N. and African-led peacekeeping
the country. Rwandan officials reject allegations of abusing
operations, and are generally reported to be disciplined and
human rights, while often arguing that some restrictions are
committed. In 2015, however, news reports implicated
needed to prevent the return of ethnic violence and
Rwandan soldiers serving in Mali in the shooting of
asserting that the country is gradually liberalizing.
protesters during a violent anti-U.N. demonstration.
Rwanda reportedly withdrew the units involved.
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Rwanda: Current Issues
Rwanda asserts that it faces a national security threat from
investment and trade, but political differences among EAC
the Democratic Forces for the Liberation of Rwanda
members have hindered progress.
(FDLR), a DRC-based militia founded by Hutu extremists
involved in the Rwandan genocide. The FDLR and its
Donor aid is substantial, and Rwanda qualified for
leaders are under United Nations (U.N.) and U.S. sanctions.
international debt relief in 2005. However, in 2012, some
The FDLR is also nominally the target of DRC military
donors reduced or redirected funding due to Rwanda’s role
operations, and the U.N. peacekeeping operation in DRC is
in the M23 crisis. In response, Rwanda sought new
authorized to disarm it. However, previous military
domestic and private-sector sources of finance, creating a
operations have failed to defeat the group. In 2014, Human
national “solidarity” fund, which solicits donations, and
Rights Watch reported that Rwanda had held some alleged
issuing international bonds.
FDLR collaborators in unacknowledged detention centers
U.S. Policy and Aid
prior to charging them in court.
The United States and Rwanda have cultivated close ties
Role in Democratic Republic of Congo
since the late 1990s, although in recent years the Obama
Rwanda has security, political, and economic interests in its
Administration and some Members of Congress have
larger and chronically unstable neighbor. It has deployed its
expressed concerns about Rwanda’s domestic and regional
military into DRC on several occasions since the 1990s, and
policies. As noted above, the Administration openly
has reportedly backed several armed rebellions there. At
criticized Rwanda’s role in the M23 insurgency in DRC.
times, Rwandan and DRC troops have also cooperated in
Congress has also enacted restrictions on certain types of
operations to counter militia groups in DRC. While denying
U.S. military aid to Rwanda through foreign aid
specific allegations of backing DRC rebel groups, Rwandan
appropriations measures since FY2010. Previously, U.S.
officials often voice potential justifications for such actions.
officials had largely avoided public censure of Rwanda.
They contend that DRC security forces have failed to rein
U.S. bilateral aid to Rwanda grew significantly from $39
in groups, such as the FDLR, that threaten Rwanda—and
million appropriated in FY2003 to $188 million in FY2014.
have at times collaborated with them. Officials also
In part, this rise reflected overall trends in U.S. aid to
sometimes point to discrimination and violence targeting
Africa, which increased substantially during the same
ethnic communities of Rwandan origin in DRC, implying
period, particularly for health programs. It also reflected a
that they may require protection. Some analysts contend
widely-held view that Rwanda is a leader in achieving
that economic incentives are another factor in Rwanda’s
donor-assisted development outcomes. U.S. aid to Rwanda
involvement in DRC, and that powerful Rwandans have
is largely focused on health, food security, and other
profited from resource smuggling there.
socioeconomic goals, along with support for Rwanda’s
U.S. officials publicly criticized Rwanda in 2012 and 2013
participation in international peacekeeping operations. The
for providing support to a DRC-based armed group known
Administration requested $171 million in bilateral aid for
as the M23. Rwandan officials denied the allegations, and
Rwanda in FY2015, a slight decrease compared to FY2014,
instead blamed instability on DRC’s institutional
of which 72% would be for health assistance. The
dysfunctions and a lack of political will to confront security
Administration has requested $161 million for FY2016.
challenges. In late 2013, the DRC military, backed by U.N.
U.S. support for Rwandan peacekeepers is provided
peacekeeping troops, defeated the M23. Earlier that year,
separately from these bilateral aid allocations, and includes
Rwanda signed onto a U.N.-backed regional peace
training, equipment, and other assistance.
“framework accord” that prohibited neighboring states from
In 2012 and 2013, legislation enacted by Congress resulted
involvement in conflicts in DRC. Widespread insecurity
in restrictions on some types of U.S. military aid for
persists in eastern DRC, but there have been fewer reports
Rwanda. The FY2012 Consolidated Appropriations Act
of direct Rwandan involvement.
(P.L. 112-74) prohibited Foreign Military Financing (FMF)
if Rwanda was found to be providing support to DRC-based
The Economy
armed groups. The Administration also applied a security
Donor aid, political stability, and pro-investor policies have
assistance prohibition contained in the Child Soldiers
contributed to economic growth averaging nearly 8% per
Prevention Act (P.L. 110-457, as amended) in connection
year over the past decade. Key foreign exchange earners
with Rwanda’s support for the M23, which reportedly used
include a small but growing mining sector, tourism, and
child soldiers. Both provisions exempted most aid related to
exports of coffee and tea. Still, about 90% of Rwandans
peacekeeping support. The Administration lifted both
remain engaged in agriculture, many for subsistence, and
restrictions in 2014, citing the end of the M23 rebellion.
about 45% reportedly live below the poverty line. Rwanda
The FY2015 Consolidated and Further Appropriations Act
has the highest population density in continental Africa,
(P.L. 113-235) prohibits FMF for Rwanda, except for
which threatens the sustainability of subsistence farming.
certain purposes (including peacekeeping), unless the
The government is undertaking ambitious efforts to
Secretary of State certifies that Rwanda is “implementing a
transform the economy into one that is services-oriented, to
policy to cease political, military and/or financial support”
lower birth rates, and to develop domestic sources of
for armed groups in DRC.
energy, with the goal of making Rwanda a middle-income
country by 2020. Regional economic integration backed by
Alexis Arieff, aarieff@crs.loc.gov, 7-2459
the East African Community (EAC) could boost foreign

IF10179
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