4 December 2025 –
Transparency International Rwanda (TI-Rwanda) assesses the country’s progress in implementing its anti-corruption commitments under Chapters II (Preventive Measures) and V (Asset Recovery) of the UN Convention against Corruption. Rwanda has established a robust legal and institutional framework, but challenges persist in statistical reporting, verification of asset declarations, and protection for whistleblowers. The report was produced with technical and financial support from the UNCAC Coalition.
On asset recovery, the Civil Litigation Services Directorate within the Ministry of Justice is responsible for recovering proceeds of corruption. From 2014 to March 2025, Rwanda recovered approximately Rwf 14.98 billion (USD 10.4 million) and assets valued at Rwf 101 million (USD 70,000). A coordination team involving the Ministry of Justice, the National Public Prosecution Authority, the Rwanda Investigation Bureau, and the Financial Intelligence Centre has been established to improve asset recovery processes. However, challenges remain in cross-border cooperation and statistics on money laundering and confiscated assets are limited, weakening monitoring and evaluation. The UNCAC review of Rwanda by Morocco and Yemen is ongoing. The government submitted its self-assessment in 2021 and a country visit took place from 23 to 25 April 2025 in a hybrid format. Civil society, more specifically TI-Rwanda and the Rwanda Civil Society Platform, was consulted throughout the review process. A full country report and executive summary are currently being drafted. Read the full civil society parallel report in English here.
Main Findings
Preventive anti-corruption policies and practices
Rwanda has adopted comprehensive laws to prevent corruption, including the Law on fighting against corruption of 2018, the Law on the protection of whistleblowers of 2017, and the Law on declaration of assets of 2021. An anti-corruption policy was adopted in 2012, but is still under review to date. Anti-corruption committees exist in public institutions, civil society, and private entities.
- Key recommendation: Strengthen the effectiveness of preventive anti-corruption measures by enhancing professional development, inclusive public education, and accessible confidential reporting channels, while addressing low levels of corruption reporting and high corruption perceptions in local government.
Preventive anti-corruption body
The Office of the Ombudsman, established in 2003 and governed by Law n° 54/2021, is Rwanda’s primary preventive anti-corruption institution. It oversees the prevention and investigation of corruption, verifies asset declarations, advises the government on anti-corruption policies, conducts risk assessments, raises public awareness, and coordinates with international institutions. Despite its independence and broad legal powers, the Office faces significant challenges, including insufficient budget, limited staff, and operational constraints, which compromise its ability to fully execute its mandate.
- Key recommendation: Increase the budget and staffing of the Office of the Ombudsman and strengthen its legal framework to ensure it has the authority and resources to prevent, oversee effectively, and combat corruption.
Public sector employment
Rwanda has established policy, legal, and institutional frameworks governing recruitment, retention, and promotion of public servants, supported by tools such as the Integrated Payroll and Personnel Information System and Results-Based Performance Management. While these mechanisms have improved transparency, many public sector institutions continue to ignore recruitment laws and guidance, resulting in frequent non-compliance and costly court cases.
- Key recommendation: Strengthen oversight mechanisms in public sector employment to ensure transparent, efficient, and accountable management of public servants across all levels, and provide ongoing training to improve professionalism and accountability.
Political financing
Public funding of political organisations is regulated by law, and political organisations are required to submit annual financial reports. However, sanctions for violations are not clearly defined, and there are gaps in clarifying the fate of illegally obtained funds.
- Key recommendation: Amend the Organic Law on Political Organisations to specify sanctions for violations and determine the fate of illegally obtained funds.
Codes of conduct, conflicts of interest and asset declarations
A law on asset declarations was adopted in 2021. Public officials are required to declare their assets, but verification remains limited due to human resources constraints at the Office of the Ombudsman. Only a small number of declarations are verified compared to those received, creating gaps in enforcement.
- Key recommendation: Increase the verification of asset declarations, including through additional staffing of the Ombudsman Office, and strengthen enforcement.
Reporting mechanisms and whistleblower protection
Rwanda adopted a whistleblower protection law in 2017, but it does not allow anonymous reporting. The Presidential Order to implement protection and rewards for whistleblowers has yet to be promulgated. Awareness of whistleblower rights in rural areas is limited and actual rates of whistleblower reports are very low.
- Key recommendation: Amend the whistleblower protection law to allow anonymous reporting, raise awareness in rural areas, and expedite the adoption of the Presidential Order on whistleblower protection.
Public procurement and financial management
Rwanda has reformed its procurement framework through the 2022 law and the upgraded e-procurement system UMUCYO, including mandatory beneficial ownership disclosure. However, high staff turnover and delays in contract execution remain challenges. In public financial management, audits have revealed significant financial losses and unlawful expenditures, while citizen participation in budgeting remains limited.
- Key recommendation: Improve procurement by stabilising staff retention and adopting standard documents for procurement processes, and strengthen public financial management by increasing capacity in auditing and expanding public participation in budgeting.
Access to information and participation of society
Rwanda’s Law on Access to Information guarantees the public and civil society the right to obtain information from public institutions and certain private bodies, supporting transparency and press freedom. Information is made available through e-government platforms, e-procurement systems, public and beneficial ownership registries, and disclosures of public officials’ assets. However, the law has significant gaps, including the absence of penalties for non-compliance, no clear mechanism for complaints or appeals when requests are denied, making practical enforcement and accountability challenging. There are also growing concerns about shrinking civic space following the enforcement of Law n° 058/2024 in June 2024, which limits the independence of civil society organizations (CSOs) by subjecting their operations to the oversight and interference of the Board.
- Key recommendations:
- Strengthen the Access to Information framework by introducing clear enforcement mechanisms and penalties for non-compliance, establishing formal complaint and appeal procedures, and ensuring transparency that enables meaningful civil society participation in policy development and oversight.
- Safeguard civic space by amending Law n° 058/2024 to guarantee the operational independence of CSOs and protect their role in promoting transparency, accountability, and citizen engagement.
Judiciary and prosecution services
The judiciary and prosecution services have adopted reforms, including codes of conduct and integrity monitoring mechanisms. Training is provided to judges and prosecutors, though capacity gaps remain in adjudicating and investigating money laundering and predicate offenses.
- Key recommendation: Provide additional training to judges, prosecutors, and investigators to strengthen the handling of money laundering and corruption-related cases.
Private sector transparency
Since 2023, Rwanda has introduced mandatory beneficial ownership disclosure at the time of company registration through an electronic central register. However, access is limited to certain stakeholders, and company owners often submit required information late, often only after repeated reminders. These delays reduce transparency and make it harder for regulators to monitor compliance effectively.
- Key recommendation: Ensure effective enforcement of beneficial ownership disclosure requirements and expand transparency measures for private sector entities.
Anti-money laundering
Rwanda has made some progress in anti-money laundering in recent years: In 2021, the Financial Intelligence Centre was established, and in 2025, a new anti-money laundering law was enacted. Nevertheless, the Financial Intelligence Centre continues to lack sufficient capacity to effectively fulfill its role.
- Key recommendation: Provide further capacity building and resources to the Financial Intelligence Centre to ensure the effective implementation of anti-money laundering measures.
Asset recovery and international cooperation
Asset recovery is regulated by the 2015 Law on asset recovery, amended in 2021. Between 2014 and March 2025, about Rwf 14.98 billion and assets valued (10,359,613 USD) at Rwf 101 million (69,848 USD) were recovered. A coordination team including the Ministry of Justice, the National Public Prosecution Authority, the Rwanda Investigation Bureau, and the Financial Intelligence Centre has been established. Despite these advances, cooperation with foreign jurisdictions remains limited.
- Key recommendation: Enhance cooperation with foreign jurisdictions to strengthen Rwanda’s ability to recover assets located abroad.