Not Free
PR Political Rights 8 40
CL Civil Liberties 14 60
Last Year's Score & Status
23 100 Not Free
Global freedom statuses are calculated on a weighted scale. See the methodology.

header1 Overview

The Rwandan Patriotic Front (RPF), led by President Paul Kagame, has ruled the country since 1994, when it ousted forces responsible for that year’s genocide and ended a civil war. While the regime has maintained stability and economic growth, it has also suppressed political dissent though pervasive surveillance, intimidation, and suspected assassinations.

header2 Key Developments in 2019

  • Despite signs of eased pressure on opposition parties in 2018, the government continued its campaign of repression during 2019. At least two opposition figures were killed in apparent assassinations, and one went missing.
  • In April and October, the president pardoned more than 400 women who had been imprisoned for involvement in illegal abortions.
  • In September, 20 new senators were chosen through indirect elections and presidential appointments. The remaining incumbents were due to be replaced in 2020.

PR Political Rights

A Electoral Process

A1 1.00-4.00 pts0-4 pts
Was the current head of government or other chief national authority elected through free and fair elections? 0.000 4.004

Rwanda’s 2003 constitution grants broad powers to the president, who has the authority to appoint the prime minister and dissolve the bicameral Parliament. Amendments passed in 2015 retained a two-term limit for the presidency and shortened the terms from seven to five years. The changes also explicitly stated, however, that the current president—Paul Kagame—was eligible for one additional seven-year term, after which he could run for two of the new five-year terms. This would extend Kagame’s rule until 2034.

Kagame easily won the 2017 presidential election, taking 98.8 percent of the vote, according to official results. Frank Habineza of the Democratic Green Party of Rwanda (DGPR) and the independent Philippe Mpayimana split the remainder. The electoral process was marred by numerous irregularities, including political intimidation, unfair registration practices, and alleged fraud during the balloting itself.

The National Electoral Commission (NEC) blocked the candidacies of other would-be challengers, including independent and Kagame critic Diane Rwigara, who was barred from running on the grounds that some of the required signatures she had collected were invalid. She claimed that her followers were harassed and jailed as they attempted to gather signatures. The government also orchestrated a campaign of media smears and intimidation against Rwigara, and she was subsequently arrested along with her mother and sister.

Local authorities impeded the electoral campaigns of opposition presidential candidates, and some citizens were coerced into attending RPF rallies and voting for Kagame. Rwandans were also made to attend “solidarity” camps and listen to RPF propaganda, while local authorities tasked traditional leaders with persuading their communities to vote for Kagame. Access to the media and the content of electoral coverage were both skewed in favor of the RPF.

On election day, observers reported ballot stuffing, poll workers showing favoritism toward the ruling party, and denial of access to the vote-counting process, among other violations. Ballot secrecy was not always respected.

A2 1.00-4.00 pts0-4 pts
Were the current national legislative representatives elected through free and fair elections? 1.001 4.004

The 26-seat Senate, the upper house of Parliament, consists of 12 members elected by regional councils, 8 appointed by the president, 4 chosen by a forum of political parties, and 2 elected by faculty at universities. Senators’ terms were shorted from eight to five years as part of the 2015 constitutional reform. The 80-seat Chamber of Deputies, the lower house, includes 53 directly elected members, 24 women chosen by local councils, 2 members from the National Youth Council, and 1 member from the Federation of Associations of the Disabled, all serving five-year terms.

In September 2019, the various electoral colleges chose 16 new senators, and the president appointed four. Six incumbent senators were still serving their previous eight-year terms and would be replaced in 2020.

The RPF dominated the Chamber of Deputies elections held in 2018, capturing 40 of the 53 elected seats. The DGPR gained two seats, marking the first time a genuine opposition party has won representation in Parliament. Three other parties allied with the RPF—the Social Democratic Party, the Liberal Party, and the Social Party—won five, four, and two seats respectively. As with other elections in recent years, the government’s repression of legitimate opposition parties and strict control of the media helped to ensure an overwhelming victory for the RPF.

A3 1.00-4.00 pts0-4 pts
Are the electoral laws and framework fair, and are they implemented impartially by the relevant election management bodies? 1.001 4.004

The electoral laws are not impartially implemented by the NEC, whose members are proposed by the government and appointed by the RPF-dominated Senate. Elections in Rwanda routinely feature unfair barriers to registration, campaigning, poll monitoring, and media access for opposition parties and candidates, among other problems.

The 2015 constitutional amendments were adopted through a flawed petition and referendum process. Rights groups and news organizations cited reports that some signatures on the petition were not given voluntarily. The details of the amendments were not widely distributed or discussed ahead of the referendum, in which 98 percent of voters signaled their approval, according to the NEC. The government limited the political activities of groups opposed to the amendments, and the referendum was not monitored by any independent international observer groups.

B Political Pluralism and Participation

B1 1.00-4.00 pts0-4 pts
Do the people have the right to organize in different political parties or other competitive political groupings of their choice, and is the system free of undue obstacles to the rise and fall of these competing parties or groupings? 1.001 4.004

The government-controlled Rwanda Governance Board (RGB) is responsible for registering political parties. In practice it can deny registration at its discretion without proper justification. The government has a long history of repressing its political opponents. For example, independent opposition politician Diane Rwigara was arrested and imprisoned in 2017, along with her mother and sister, on charges that included forgery of signatures to support her candidacy, tax evasion, and inciting insurrection.

Repression of opposition figures eased slightly in 2018, as President Kagame ordered the release of 2,140 prisoners, including 2010 presidential candidate Victoire Ingabire, and Rwigara and her mother were released on bail and then acquitted in court.

However, in 2019 opposition members were the victims of at least two murders and one disappearance. The body of Ingabire’s assistant, Anselme Mutuyimana, was found in a forest in March, having apparently been strangled. Eugène Ndereyimana, a member of Ingabire’s unregistered United Democratic Forces–Inkingi (FDU-Inkingi) party, went missing in July. In September, Syldio Dusabumuremyi, the national coordinator of FDU-Inkingi, was stabbed to death by unidentified men.

B2 1.00-4.00 pts0-4 pts
Is there a realistic opportunity for the opposition to increase its support or gain power through elections? 0.000 4.004

The RPF has ruled Rwanda without interruption since 1994, banning and repressing any opposition group that could mount a serious challenge to its leadership. All registered parties currently belong to the National Consultative Forum for Political Organizations, which is meant to promote political consensus. Despite the two seats in Parliament won by the DGPR in 2018, the RPF maintains a firm hold on power. The DGPR remains vastly outnumbered, holds no other positions of authority, and is unlikely to increase its support to the point where it can viably compete with the RPF in the near future.

B3 1.00-4.00 pts0-4 pts
Are the people’s political choices free from domination by forces that are external to the political sphere, or by political forces that employ extrapolitical means? 0.000 4.004

Both voters and candidates face significant intimidation aimed at controlling their political choices. Even Rwandans living outside the country have been threatened, attacked, forcibly disappeared, or killed, apparently in response to their public or suspected opposition to the regime.

B4 1.00-4.00 pts0-4 pts
Do various segments of the population (including ethnic, religious, gender, LGBT, and other relevant groups) have full political rights and electoral opportunities? 1.001 4.004

Although the constitution calls on the president to ensure “representation of historically marginalized communities” in the Senate through his appointees, asserting one’s ethnic identity in politics is banned, meaning the level of representation is unclear. The prohibition on discussion of ethnicity makes it nearly impossible for disadvantaged groups, including the indigenous Twa, to organize independently and advocate for their interests.

The constitution requires women to occupy at least 30 percent of the seats in each chamber of Parliament. They currently hold 10 of the 26 Senate seats and 49 of the 80 seats in the Chamber of Deputies, but women have little practical ability to engage in politics outside the RPF structure.

C Functioning of Government

C1 1.00-4.00 pts0-4 pts
Do the freely elected head of government and national legislative representatives determine the policies of the government? 1.001 4.004

Government policy is largely set and implemented by the executive, with the security and intelligence services playing a powerful role. Parliament generally lacks independence, merely endorsing presidential initiatives.

C2 1.00-4.00 pts0-4 pts
Are safeguards against official corruption strong and effective? 2.002 4.004

The government takes some measures to limit corruption, including regular firings and prosecutions of low-level officials suspected of malfeasance. In 2018, President Kagame sacked dozens of civil servants in an ostensible effort to eradicate corruption, and Parliament passed revisions to the penal code that expanded the list of corruption-related crimes and increased penalties for those convicted. In 2019, several mayors and other local officials resigned or were dismissed for corruption and other misconduct, though the lack of transparency surrounding the cases made it difficult to assess whether any of the firings were politically motivated.

Despite these actions, graft remains a problem, and few independent organizations or media outlets are able to investigate or report on corruption issues due to the risk of government reprisals.

C3 1.00-4.00 pts0-4 pts
Does the government operate with openness and transparency? 1.001 4.004

While a 2013 law provides for public access to government information, implementation has been weak. Data published on Sobanukirwa, a website created by the government to ease the process of requesting access to documents, suggest that only a small fraction of requests result in positive and timely responses. Given the government’s active repression of any dissent in recent years, citizens do not have the ability in practice to obtain information about state operations, nor do they have a meaningful opportunity to comment on policy without the threat of punishment.

Score Change: The score declined from 2 to 1 because the government’s persecution of perceived opponents in recent years has undermined citizens’ practical ability to safely seek official information or scrutinize state policies.

CL Civil Liberties

D Freedom of Expression and Belief

D1 1.00-4.00 pts0-4 pts
Are there free and independent media? 0.000 4.004

The government imposes legal restrictions and informal controls on freedom of the press, and most media outlets practice self-censorship. The few journalists in the country who engage in independent reporting are subject to criminal charges and intimidation. The penal code revisions passed in 2018 criminalized cartoons and writing that “humiliate” Rwandan leaders, but also decriminalized defamation, which the Rwanda Journalists Association considered an improvement to the highly restrictive legal framework.

Many Rwandan journalists have fled the country and work in exile. Due in part to this phenomenon, the government has increasingly blocked access to news services and websites based abroad. The British Broadcasting Corporation’s Kinyarwanda-language service has been suspended in the country since 2014.

TV1 journalist Constantin Tuyishimire was reported missing by his colleagues in July 2019, and his whereabouts remained unknown late in the year.

D2 1.00-4.00 pts0-4 pts
Are individuals free to practice and express their religious faith or nonbelief in public and private? 2.002 4.004

Religious freedom has historically been respected, but the government has recently taken steps to assert greater control over religious institutions. In 2018, authorities shut down thousands of mostly Pentecostal churches and dozens of mosques, and banned mosques in Kigali from broadcasting the call to prayer over loudspeakers. Closures continued in 2019 as the government implemented a 2018 law obliging religious leaders to obtain a theology degree before establishing churches, mandating that religious organizations report grants to the RGB, and requiring that donations to faith-based groups be deposited in Rwandan banks.

In October 2019, the government arrested and then deported a prominent American-born evangelical pastor after shuttering his popular radio station. The pastor and the station were accused of spreading hate speech against women, but they were also known for criticism of the government.

Jehovah’s Witnesses face arrest for refusing to participate in security duties or oath-taking involving the national flag.

D3 1.00-4.00 pts0-4 pts
Is there academic freedom, and is the educational system free from extensive political indoctrination? 1.001 4.004

The government restricts academic freedom by enforcing official views on the genocide and other sensitive topics. Scholars and students are subject to suspension for “divisionism” and engage in self-censorship to avoid such penalties.

D4 1.00-4.00 pts0-4 pts
Are individuals free to express their personal views on political or other sensitive topics without fear of surveillance or retribution? 0.000 4.004

The space for free private discussion is limited in part by indications that the government monitors personal communications. Social media are widely believed to be monitored, and the law allows for government hacking of telecommunications networks. The authorities reportedly use informants to infiltrate civil society, further discouraging citizens from expressing dissent.

E Associational and Organizational Rights

E1 1.00-4.00 pts0-4 pts
Is there freedom of assembly? 0.000 4.004

Although the constitution guarantees freedom of assembly, this right is limited in practice. Fear of arrest serves as a deterrent to protests, and gatherings are sometimes disrupted even when organizers obtain official authorization. In February 2018, police fired live ammunition into two crowds of Congolese refugees in the town of Karongi and Kiziba refugee camp who were protesting cuts in assistance, killing at least 11 people. Sixty-five protesters were charged with holding an illegal demonstration and violence against the police, among other allegations.

E2 1.00-4.00 pts0-4 pts
Is there freedom for nongovernmental organizations, particularly those that are engaged in human rights– and governance-related work? 1.001 4.004

Registration and reporting requirements for both domestic and foreign nongovernmental organizations (NGOs) are onerous, and activities that the government defines as divisive are prohibited. Many organizations receive funds from the RGB, which challenges their independence. Several NGOs have been banned in recent years, leading others to self-censor. The government has been accused of employing infiltration tactics against human rights organizations.

E3 1.00-4.00 pts0-4 pts
Is there freedom for trade unions and similar professional or labor organizations? 1.001 4.004

The constitution provides for the rights to form trade unions, engage in collective bargaining, and strike, but free collective bargaining and strikes are limited by binding arbitration rules and rare in practice. Public-sector workers and employees in broadly defined “essential services” are generally not allowed to strike. Enforcement of rules against antiunion discrimination is weak. The country’s largest union confederation has close ties to the RPF, and the government allegedly interferes in union elections.

F Rule of Law

F1 1.00-4.00 pts0-4 pts
Is there an independent judiciary? 0.000 4.004

The Rwandan judiciary lacks independence from the executive. Top judicial officials are appointed by the president and confirmed by the RPF-dominated Senate. Judges rarely rule against the government in politically sensitive cases.

F2 1.00-4.00 pts0-4 pts
Does due process prevail in civil and criminal matters? 1.001 4.004

The police and military regularly engage in arbitrary arrests and detentions, targeting opposition figures and dissidents as well as homeless people, street vendors, and suspected petty criminals.

A 2017 Human Rights Watch report detailed a system of secret unlawful detention at military facilities for suspected members of armed rebel groups or exiled opposition factions. Such detainees are allegedly denied basic due process rights, and many who are later brought to trial are convicted based on coerced confessions.

F3 1.00-4.00 pts0-4 pts
Is there protection from the illegitimate use of physical force and freedom from war and insurgencies? 0.000 4.004

Both ordinary criminal suspects and political detainees are routinely subjected to torture and other ill-treatment in custody. Extrajudicial executions of suspected criminals by security personnel still occur with some frequency. Disappearances, physical assaults, and assassinations targeting journalists, opposition members, and other regime critics have been reported in recent years, including in 2019.

F4 1.00-4.00 pts0-4 pts
Do laws, policies, and practices guarantee equal treatment of various segments of the population? 1.001 4.004

Equal treatment for all citizens under the law is guaranteed, and there are legal protections against discrimination. However, the Tutsi minority group is often accused of receiving preferential treatment for high-ranking jobs and university scholarships under the pretext of an affirmative action program for “genocide survivors.” Members of the Hutu majority often face unofficial discrimination when seeking public employment or scholarships. The indigenous Twa minority continues to suffer from de facto disadvantages in education, employment, and health care.

While women enjoy broad legal equality and have a significant presence in the economy as workers and business owners, gender-based discrimination persists in practice. Same-sex sexual activity is not criminalized in Rwanda, though social stigma still exists for LGBT+ people. No laws specifically provide protection against discrimination based on sexual orientation or gender identity.

G Personal Autonomy and Individual Rights

G1 1.00-4.00 pts0-4 pts
Do individuals enjoy freedom of movement, including the ability to change their place of residence, employment, or education? 2.002 4.004

An easily obtainable national identity card is required to move within the country. However, all government officials must receive approval from the president or prime minister’s office before traveling for personal or professional reasons; some current and former security officials have been arrested for unauthorized travel. Members of opposition groups have also reported restrictions on foreign travel or reentry to Rwanda.

G2 1.00-4.00 pts0-4 pts
Are individuals able to exercise the right to own property and establish private businesses without undue interference from state or nonstate actors? 2.002 4.004

While the government is generally supportive of economic growth through private business activity, it has been criticized for seizing land for infrastructure and development projects without proper compensation, and for imposing agricultural and land-consolidation policies without adequate input from farmers.

The law grants the same property and inheritance rights to men and women, though women are not always able to assert their rights in practice.

G3 1.00-4.00 pts0-4 pts
Do individuals enjoy personal social freedoms, including choice of marriage partner and size of family, protection from domestic violence, and control over appearance? 2.002 4.004

The law generally grants equal rights to men and women regarding marriage and divorce, but informal marriages under customary law, including polygamous unions, lack such protections. The penalties for spousal rape are much lighter than for other forms of rape. Domestic violence remains widespread and seldom reported despite government programs to combat it.

Abortion is a criminal offense unless it is the result of rape, incest, or forced marriage, or the life of the mother or child is endangered. Abortion convictions can lead to significant prison terms. The 2018 penal code revisions removed language requiring all abortions to be approved by a judge, leaving the final decision in the hands of the patient and her doctor. In April 2019, President Kagame pardoned some 365 women who had been jailed for receiving or otherwise being involved in illegal abortions. The president freed another 52 women serving prison terms for such offenses in October.

G4 1.00-4.00 pts0-4 pts
Do individuals enjoy equality of opportunity and freedom from economic exploitation? 1.001 4.004

Regulations governing wage levels and conditions of work in the formal sector are poorly enforced. While Rwanda has increased prosecutions for transnational trafficking in recent years, Rwandan children are trafficked internally for domestic service under abusive conditions, or for commercial sex work, and little effort is made to hold internal traffickers to account. Many children work informally in the agricultural sector. Young Congolese and Burundian refugees are vulnerable to sexual exploitation and coerced recruitment into armed groups linked to Rwandan security forces.

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  • Global Freedom Score

    23 100 not free
  • Internet Freedom Score

    37 100 not free