Central Bank of Rwanda (BNR) - Official Website: The BNR is the primary financial regulator.
Rwanda's anti-money-laundering statute is Law nº 001/2025 of 22/01/2025 on the prevention and punishment of money laundering, terrorist financing and the financing of proliferation of weapons of mass destruction, Official Gazette nº…
The National Bank of Rwanda is Rwanda's central bank and prudential supervisor of financial institutions, but it is not the virtual-asset regulator: Law nº 023/2026 makes the Capital Market Authority the Regulatory Authority for virtual…
The Ministry of Finance and Economic Planning holds fiscal and economic policy and the Financial Intelligence Centre operates under its supervision, but Rwanda's virtual-asset policy is now set by Law nº 023/2026 of 25/05/2026, which…
Can specific business models operate in Rwanda? Each card answers the operational question for one kind of operator. Curated cells reflect counsel-grade review; AI-generated cells should be confirmed before relying on them.
Conditional · high burden.
AI · UnreviewedConditional · high burden.
AI · UnreviewedConditional · no licensing.
AI · UnreviewedConditional · high burden.
AI · UnreviewedConditional · high burden.
AI · UnreviewedConditional · high burden.
AI · UnreviewedConditional · medium burden.
AI · UnreviewedConditional · medium burden.
AI · UnreviewedConditional · high burden.
AI · Unreviewed| Law / Regulation | Year | Scope |
|---|---|---|
| Law No. 027/2022 of 04/11/2022 | 2022 | The Law on income tax (Law No. 027/2022 of 04/11/2022) defines taxable income for residents and non-residents but contains no specific provisions addressing digital assets or cryptocurrency. |
Rwanda's anti-money-laundering statute is Law nº 001/2025 of 22/01/2025 on the prevention and punishment of money laundering, terrorist financing and the financing of proliferation of weapons of mass destruction, Official Gazette nº Special Bis of 22/01/2025, which superseded Law nº 028/2023 of 19/05/2023, itself the successor to Law nº 75/2019. No Rwandan anti-money-laundering statute carries the number 060/2021. Reporting persons on the Financial Intelligence Centre's published list are 435 financial institutions and 3,128 designated non-financial businesses and professions, a class that excludes virtual asset service providers, whose anti-money-laundering duty arises instead as a licensing condition under Article 10(2)(g) of Law nº 023/2026 of 25/05/2026, supervised by the Capital Market Authority of Rwanda under Article 6.
Rwanda's general anti-money-laundering compliance requirements for reporting persons are set by Regulations nº 002/FIC/2026 of 22/06/2026, Official Gazette nº 25 Bis of 22/06/2026, issued by the Director General of the Financial Intelligence Centre, whose Article 45 repeals Regulations nº 002/FIC/2023 of 26/06/2023, and the matching sanctions instrument is Regulations nº 001/FIC/2026 of 22/06/2026 of the same date and gazette. Both are Financial Intelligence Centre regulations rather than ministerial orders, and neither mentions virtual assets or virtual asset service providers.
The National Bank of Rwanda has published no virtual-asset circular or guideline; ESAAMLG's July 2024 mutual evaluation of Rwanda records that the central bank issued a public notice in 2023 warning against crypto-asset activity until a regulatory framework was in place, and since Law nº 023/2026 of 25/05/2026 regulating virtual asset business the licensing of virtual asset service providers belongs to the Capital Market Authority of Rwanda, with the National Bank of Rwanda confined by Article 8 to cooperation with that Authority and to directives on matters falling under its own purview.
For Individuals: Obtaining and verifying name, address, date of birth, nationality, national identification number (e.g., Rwandan ID card, passport number), and any other unique identifiers. This typically involves documentary verification (e.g., valid ID document) and, where appropriate, non-documentary methods.
For Legal Entities (Companies, Corporations, Trusts): Obtaining and verifying the entity's name, legal form, address, registration number, articles of incorporation, bylaws, and proof of existence. Identifying and verifying the identity of beneficial owners (individuals who ultimately own or control the entity, typically 25% ownership threshold or control through other means), as well as persons acting on behalf of the entity (e.g., directors, authorized signatories).
Understanding the Purpose and Intended Nature of the Business Relationship: VASPs must understand why the customer wants to use their services and the anticipated level and type of activity.
Ongoing Monitoring: Continuously monitoring the business relationship and transactions undertaken by customers to ensure they are consistent with the VASP's knowledge of the customer, their business, and risk profile. This includes keeping customer information up-to-date.
Risk-Based Approach: Applying CDD measures based on a risk assessment. This means applying enhanced due diligence (EDD) for higher-risk customers (e.g., Politically Exposed Persons (PEPs), customers from high-risk jurisdictions, complex or unusually large transactions) and simplified due diligence (SDD) for lower-risk customers (if permitted and justified). Due to the inherent risks of virtual assets, most VASP activities would generally require standard or enhanced CDD.
Reporting Threshold: There is no minimum monetary threshold for reporting suspicious transactions. Any transaction, regardless of amount, where there are reasonable grounds to suspect that it may be related to money laundering or terrorist financing, must be reported.
Content of Report: STRs must contain comprehensive details about the customer, the transaction(s), and the reasons for the suspicion.
Timing: Reports must be made promptly, typically within a specified number of business days (e.g., 2-5 working days) of forming the suspicion.
No Tipping-Off: VASPs and their employees are prohibited from disclosing to the customer or any third party that an STR has been filed or that an investigation is underway.
Customer Identification Records: All documents and information obtained during the CDD process (e.g., copies of identification documents, beneficial ownership information).
Transaction Records: Records of all transactions undertaken, sufficient to permit reconstruction of individual transactions (e.g., sender and receiver details, amounts, type of virtual asset, transaction hash/ID, date and time).
Business Relationship Records: Records pertaining to the business relationship, correspondence, and decisions made regarding the customer's risk profile.
Suspicious Transaction Reports (STRs): Copies of all STRs filed and any internal documentation supporting the decision to file (or not to file).
Duration: Records must generally be kept for a period of at least five (5) years after the end of the business relationship or the date of the transaction.
Financial Intelligence Centre (FIC) of Rwanda
The Financial Intelligence Centre of Rwanda is Rwanda's financial intelligence unit, established by Law nº 74/2019 of 29/01/2020 and governed by Law nº 045/2021 of 18/08/2021 as amended by Law nº 002/2025 of 22/01/2025, and it receives and analyses cash and suspicious transaction reports, disseminates financial intelligence, and issues guidance to reporting persons and supervisory bodies, whose published list covers banks, insurers, forex bureaus, microfinance, payment service providers, capital-market licensees and designated non-financial businesses and contains no virtual asset service provider category.
The National Bank of Rwanda does not license virtual asset service providers; under Law nº 023/2026 of 25/05/2026 regulating virtual asset business the Regulatory Authority is the Capital Market Authority of Rwanda, which grants licences under Article 10, suspends or revokes them under Article 11 and hears no appeal itself under Article 12, while Article 8 gives the National Bank of Rwanda a cooperation role and power to issue directives on matters falling under its own purview, and Article 15 reserves to the Central Bank the authorisation of virtual assets as a direct means of payment.
Financial Sector Law (General): Financial activities are generally governed by laws such as
Custody and administration of virtual assets on behalf of a customer is a licensable virtual asset service under Article 14 of Law nº 023/2026 of 25/05/2026 regulating virtual asset business, licensed by the Capital Market Authority of Rwanda under Article 10, so Rwandan financial-sector statutes are no longer silent on digital-asset custody even though the implementing regulations that would set capital, fees and technical standards had not been made by 21 August 2026.
Rwanda established dedicated licensing for digital-asset custody on 28 May 2026: Article 14 of Law nº 023/2026 of 25/05/2026 regulating virtual asset business lists custody and administration of virtual assets on behalf of a customer among the licensable virtual asset services, Article 10 sets the licensing conditions, and Article 15 bars natural persons from virtual asset business altogether, but the regime is not yet operable because the implementing regulations required by Article 10(2)(f) and Article 10(3) had not been made by 21 August 2026.
No virtual-asset custody licence has been issued in Rwanda by any authority, and the licensor is the Capital Market Authority of Rwanda under Article 10 of Law nº 023/2026 of 25/05/2026 regulating virtual asset business rather than the National Bank of Rwanda, the CMA's published licensee register listing eleven capital-market categories from stock exchange to credit rating agency with no virtual asset service provider category and its fee schedule listing twelve categories with no virtual-asset fee.
Rwandan law defines no 'qualified custodian' for digital assets; instead Article 14 of Law nº 023/2026 of 25/05/2026 regulating virtual asset business makes custody and administration of virtual assets on behalf of a customer a licensable virtual asset service under the Capital Market Authority of Rwanda, which separately licenses a conventional capital-market 'Custodian' category holding three licensees.
Rwanda enacted and gazetted virtual-asset legislation before this claim's horizon: Law nº 023/2026 of 25/05/2026 regulating virtual asset business was published in Official Gazette n° Special of 28/05/2026, covers custody and administration of virtual assets at Article 14, and moved Rwanda from an unregulated jurisdiction to one with an in-force statute whose licensing regime awaits implementing regulations by the Capital Market Authority of Rwanda.
The National Bank of Rwanda published a CBDC research paper in 2022 and a Proof of Concept report in February 2026 that confirms technical feasibility and announces a pilot as the next phase, with no decision to issue, and its sandbox instrument is Regulation N° 41/2022 of 13/04/2022 governing the Regulatory Sandbox, which contains no reference to virtual assets, cryptocurrency or blockchain, the virtual-asset sandbox being a separate creature of Article 13 of Law nº 023/2026 of 25/05/2026 regulating virtual asset business and administered by the Capital Market Authority of Rwanda.
It is highly probable that discussions are ongoing within the BNR and other government bodies regarding a comprehensive framework for digital assets, which would invariably include provisions for custody services, AML/CFT compliance, and consumer protection. However, the timeline and specific content are not yet public.
Rwanda's operative anti-money-laundering statute is Law nº 001/2025 of 22/01/2025 on the prevention and punishment of money laundering, terrorist financing and the financing of proliferation of weapons of mass destruction, which replaced Law nº 028/2023 of 19/05/2023, itself the repeal of Law nº 75/2019 of 29/01/2020; no Rwandan anti-money-laundering law is numbered 008/2020, and the Financial Intelligence Centre is governed by Law nº 045/2021 of 18/08/2021 as amended by Law nº 002/2025 of 22/01/2025.
Rwanda's anti-money-laundering obligations rest on Law nº 001/2025 of 22/01/2025, not on any law numbered 008/2020; Law nº 028/2023, which it replaced, contains no reference to virtual assets or virtual asset service providers, and preventive duties for virtual asset businesses were created only by Law nº 023/2026 of 25/05/2026 regulating virtual asset business.
Law nº 008/2021 of 16/02/2021 governs partnerships, not payment systems; Rwanda's payment-system statute is Law nº 061/2021 of 14/10/2021, which makes no reference to virtual assets, and virtual asset business is licensed by the Capital Market Authority of Rwanda under Law nº 023/2026 of 25/05/2026, the National Bank of Rwanda being confined to monetary and financial-stability oversight and cooperation rather than licensing.
Law n° 008/2021 of 16/02/2021 governs partnerships and was published in Official Gazette nº Special of 17/02/2021; Rwanda's payment system statute is Law n° 061/2021 of 14/10/2021, and neither law regulates virtual assets or carries anti-money-laundering obligations.
Rwanda's AML/CFT/CPF implementing regulations are made by the Director General of the Financial Intelligence Centre, and since 28 May 2026 the Capital Market Authority of Rwanda licenses and supervises virtual asset service providers under articles 5, 6 and 10 of Law nº 023/2026, the National Bank of Rwanda being confined to the cooperation functions in article 8.
BNR Website: National Bank of Rwanda
Rwanda's Financial Intelligence Centre, established by Law n° 74/2019 of 29/01/2020 and governed by Law n° 045/2021 of 18/08/2021 as amended by Law Nº 002/2025 of 22/01/2025, monitors and gives guidance to reporting persons and supervisory bodies on AML/CFT/CPF obligations, and issued both the AML/CFT/CPF Regulations of 16/02/2022 and the Targeted Financial Sanctions Regulations of 26/08/2021.
FIC Website: Rwanda Financial Intelligence Centre
Requirements for VASPs: Once formally regulated, VASPs in Rwanda (or those dealing with Rwandan entities) must
Immediately freeze funds and other assets of designated individuals and entities.
Articles 6 and 7 of Rwanda's Regulations on Targeted Financial Sanctions of 26/08/2021 require a reporting person to report to the Financial Intelligence Centre without delay whether funds or other assets of a designated person were identified and to notify attempted dealings with frozen assets, but virtual asset service providers are not among Rwanda's reporting persons, their obligations arising instead under Law nº 023/2026.
Refrain from making funds or economic resources available, directly or indirectly, to sanctioned parties.
Legal Reference: UN Security Council Sanctions Committees (Lists and Resolutions): https://www.un.org/securitycouncil/sanctions/information
Dealing with U.S. persons (citizens, residents, entities, branches globally).
Utilizing U.S.-based blockchain analytics tools or other U.S. services.
Operating in whole or in part within the U.S.
Requirements for VASPs: Due to the risk of secondary sanctions and disruption of international financial services, prudent VASPs operating in Rwanda should
Screen all customers, beneficial owners, and counterparties against the UN Security Council Consolidated List and other specific UN sanctions lists (e.g., for specific countries or individuals/entities designated for terrorism financing, proliferation, etc.).
Block transactions and freeze assets of designated individuals and entities.
Refrain from engaging in any activity that could be considered a violation or circumvention of OFAC sanctions.
Legal Reference: U.S. Department of the Treasury, Office of Foreign Assets Control (OFAC): https://home.treasury.gov/policy-issues/office-of-foreign-assets-control-sanctions-programs-and-information
Persons and entities incorporated or constituted under the law of an EU Member State.
Any person or entity in respect of business done in whole or in part within the European Union.
Requirements for VASPs: VASPs in Rwanda dealing with EU persons or entities, or otherwise having an EU nexus, should
Screen against the EU Consolidated Financial Sanctions List.
Freeze funds and economic resources of designated persons and entities.
Prevent funds or economic resources from being made available to them.
Legal Reference: EU Sanctions Map and Consolidated List: https://www.sanctionsmap.eu/
Customer Due Diligence (CDD) and Know Your Customer (KYC): Perform thorough CDD on all customers, including identifying beneficial owners. This is the foundation for effective sanctions screening.
Onboarding: Screen new customers and their beneficial owners against all relevant sanctions lists (UN, OFAC, EU).
Ongoing Monitoring: Regularly re-screen existing customer bases and monitor for changes in sanctions lists.
Transaction Monitoring: Screen transaction counterparties and involved entities in real-time or near real-time, especially for high-value or high-risk transactions.
Tools and Technology: Utilize reputable sanctions screening software that can handle various lists and languages, and integrate with blockchain analytics tools for tracing funds.
Positive Match Resolution: Establish clear procedures for investigating potential matches, escalating to compliance officers, and taking appropriate action (e.g., blocking funds, filing reports).
Record-Keeping: Maintain detailed records of all screening activities, hits, investigations, and reports filed.
UN Sanctions: Countries subject to comprehensive UN sanctions (e.g., North Korea, Iran in certain contexts).
OFAC Sanctions: Countries subject to comprehensive U.S. embargos (e.g., Cuba, Iran, North Korea, Syria, regions of Ukraine, Venezuela).
EU Sanctions: Countries or regions subject to EU restrictive measures (e.g., specific regions in Ukraine, Belarus, Myanmar, Syria, North Korea, Iran, Venezuela).
Administrative Penalties: The competent supervisory authority (likely the BNR or FIC) can impose administrative fines, revoke licenses, or restrict operations.
Criminal Penalties: Individuals or entities found guilty of money laundering, financing of terrorism, or proliferation can face severe criminal penalties, including
Imprisonment: For individuals, ranging from several years to life imprisonment, depending on the severity of the offense.
Financial Fines: Substantial fines for both individuals and legal entities.
Confiscation of Assets: Assets involved in or derived from illicit activities can be confiscated.
Rwanda's targeted financial sanctions obligations arise under Law nº 001/2025 of 22/01/2025 and the Financial Intelligence Centre's Regulations of 26/08/2021 on targeted financial sanctions, which bind 'reporting persons' and require screening against both the United Nations Security Council sanctions list and Rwanda's own domestic list of designated persons; there is no Rwandan 'Law No. 008/2020 on AML/CFT-P', and virtual asset service providers are not reporting persons.
Rwanda's domestic list of designated persons is a targeted-financial-sanctions list, not merely a law-enforcement list: under the Financial Intelligence Centre's Regulations of 26/08/2021 the domestic list is published on the website of the Ministry in charge of Justice and is disseminated by the Centre alongside the Security Council sanctions list, and reporting persons must apply freezing measures against both.
Rwanda has an in-force virtual-asset statute: Law nº 023/2026 of 25/05/2026 regulating virtual asset business, gazetted in Official Gazette nº Special of 28/05/2026, under which the Capital Market Authority licenses and supervises virtual asset service providers; the National Bank of Rwanda issued no crypto warning instrument, and its role under art. 8 is cooperation and directives on monetary and financial-stability matters.
Rwanda has moved past discussion of a virtual-asset framework: Parliament enacted Law nº 023/2026 of 25/05/2026 regulating virtual asset business, in force on gazetting on 28/05/2026, and the outstanding step is the making of implementing regulations rather than the drafting of a law.
The National Bank of Rwanda is Rwanda's central bank and prudential supervisor of financial institutions, but it is not the virtual-asset regulator: Law nº 023/2026 makes the Capital Market Authority the Regulatory Authority for virtual asset business, and art. 8 confines the National Bank to collaboration on monetary and financial-stability implications and to issuing directives on matters falling under its own purview.
The Financial Intelligence Centre was established by Law nº 74/2019 of 29/01/2020 and is governed by Law nº 045/2021 of 18/08/2021 as amended by Law nº 002/2025 of 22/01/2025, and it receives, analyses and disseminates financial intelligence; supervision of virtual asset service providers, however, is given to the Capital Market Authority by Law nº 023/2026, whose art. 6 requires the Authority to ensure VASP AML/CFT compliance and to assess virtual-asset risk.
The Financial Intelligence Centre operates its own public website at fic.gov.rw, which publishes its mandate, its establishment under Law nº 74/2019 of 29/01/2020 and its governing Law nº 045/2021 of 18/08/2021 as amended by Law nº 002/2025 of 22/01/2025.
The Ministry of Finance and Economic Planning holds fiscal and economic policy and the Financial Intelligence Centre operates under its supervision, but Rwanda's virtual-asset policy is now set by Law nº 023/2026 of 25/05/2026, which designates the Capital Market Authority as the Regulatory Authority for virtual asset business.
No National Bank of Rwanda notice, circular or public warning on cryptocurrencies exists; the only traceable episode is Governor John Rwangombwa's remarks at the Monetary Policy and Financial Stability Statement presentation of 6 March 2018 reported in the press, and the legal-tender position now rests on art. 15 of Law nº 023/2026, which provides that virtual assets are not legal tender.
No National Bank of Rwanda cautionary publication dates from December 2017 or January 2018; the earliest traceable central-bank comment on cryptocurrency is Governor John Rwangombwa's statement of 6 March 2018 at the Monetary Policy and Financial Stability Statement presentation, which was reported by the press and issued no document.
Reference: While a direct, stable URL to the specific 2017/2018 circular can be difficult to find due to website updates, the BNR's official position is consistently maintained in its public communications and can be inferred from news archives and BNR publications. General BNR publications can be found on their website
Rwanda's anti-money-laundering statute is Law nº 001/2025 of 22/01/2025 on the prevention and punishment of money laundering, terrorist financing and the financing of proliferation of weapons of mass destruction, which replaced Law nº 028/2023 of 19/05/2023, itself replacing Law nº 75/2019 of 29/01/2020; ESAAMLG's evaluations of Rwanda cite no Law nº 19/2013 of 25/03/2013 and no Law nº 35/2019 of 24/07/2019.
Rwanda's general AML/CFT framework is Law nº 001/2025 of 22/01/2025, and ESAAMLG records that its only virtual-asset provision is art. 26(b), which requires competent authorities and supervisors to give international cooperation to foreign counterparts on money laundering, predicate offences and terrorist financing related to virtual assets and virtual asset service providers; preventive duties for VASPs come instead from art. 10(2)(g) of Law nº 023/2026, which makes effective AML/CFT/CPF controls a licensing condition.
Date: Original law from 2013, significant amendment in 2019.
Reference: This law is available in the Official Gazette of the Republic of Rwanda. Searching for "Official Gazette Rwanda Law N° 35/2019" would typically lead to its publication. A general source for Rwandan laws is the Ministry of Justice or Rwanda Law Reform Commission portal.
Virtual asset business in Rwanda is regulated by Law nº 023/2026 of 25/05/2026: art. 10 requires a licence from the Capital Market Authority, art. 15 bars natural persons from carrying on virtual asset business and provides that virtual assets are not legal tender and may not be used as a direct means of payment unless authorised by the Central Bank, and mining facilities, crypto ATMs and mixing or tumbling services require approval.
The National Bank of Rwanda has published no consumer warning on virtual assets; investor-protection, market-conduct and asset-protection duties for virtual asset business now sit in arts. 25 to 27 of Law nº 023/2026 and are administered by the Capital Market Authority.
Law nº 023/2026 of 25/05/2026 establishes a licensing regime for virtual asset service providers administered by the Capital Market Authority, with licensing at art. 10, suspension and revocation at art. 11, a regulatory sandbox at art. 13 and the list of licensable services at art. 14; no provider has been licensed because the implementing regulations have not been made.
Virtual asset service providers are not reporting persons under Rwandan AML law: Law nº 001/2025 of 22/01/2025 imposes no preventive obligations on them, and their AML/CFT/CPF duty exists only as a licensing condition under art. 10(2)(g) of Law nº 023/2026, supervised by the Capital Market Authority, so virtual-asset exposure reaches the Financial Intelligence Centre today only through banks and other reporting persons.
No Rwandan Law nº 003/2020 of 20/02/2020 on money laundering exists; the AML statute in force on that date was Law nº 75/2019 of 29/01/2020, and the operative statute today is Law nº 001/2025 of 22/01/2025 on the prevention and punishment of money laundering, terrorist financing and the financing of proliferation of weapons of mass destruction.
Rwanda imposes no virtual-asset travel-rule obligation and no de minimis threshold for virtual asset transfers: ESAAMLG records art. 26(b) of Law nº 001/2025 as that law's only virtual-asset provision and it concerns international cooperation, Recommendation 15 remains partially compliant, and virtual asset service providers acquire AML/CFT duties only as a licensing condition under art. 10(2)(g) of Law nº 023/2026, which the unmade implementing regulations leave inoperable.
Rwanda's Financial Intelligence Centre imposes administrative sanctions on reporting persons under Regulations nº 001/FIC/2026 of 22/06/2026, Official Gazette nº 25 Bis of 22/06/2026, whose Article 30 provides written warning, prohibition of activities, suspension, asset restrictions, restrictions on compensation and publication of the violation, and whose Article 31 provides warning, suspension or dismissal of board members and senior managers. Administrative sanctions on virtual asset service providers instead fall to the Capital Market Authority of Rwanda under Article 32 of Law nº 023/2026 of 25/05/2026, and Article 8 of that Law gives the National Bank of Rwanda a cooperation role together with power to issue directives on matters falling under its own purview, not a virtual-asset licensing or sanctioning power.
Rwanda's published administrative fine schedule for anti-money-laundering breaches is Regulations nº 001/FIC/2026 of 22/06/2026, Official Gazette nº 25 Bis of 22/06/2026, and its amounts run from FRW 500,000 per day under Article 4 to a ceiling of FRW 20,000,000 under Article 19(3) for a reporting person with foreign branches that fails to report a designated-person match. Typical bands are FRW 8,000,000 to 10,000,000 for late registration under Article 3, FRW 2,000,000 to 4,000,000 per report for failure to submit reports under Article 6, and FRW 1,000,000 to 3,000,000 for failure to keep records under Article 26. No fine in that schedule reaches hundreds of millions of Rwandan francs.
Rwanda has not enacted any cryptocurrency or digital asset legislation, and no dedicated travel-rule framework implementing FATF Recommendation 16 exists as of the research date. Operating a VASP in Rwanda today means doing so without legal authorisation, defined compliance obligations, or regulatory certainty.
The National Bank of Rwanda (BNR) has not issued binding regulations, a licensing regime, or registration requirements for virtual asset service providers; zero entities have been licensed or registered for crypto activities under any AML/CFT framework. RBC: Passengers Arriving Or Departing From Rwanda
Rwanda is not a FATF member; it is a member of ESAAMLG (a FATF-style regional body) and has undergone mutual evaluations by that body (latest: 2018 Mutual Evaluation Report, 2023 Follow-Up Report). International pressure via ESAAMLG will likely force future VASP regulation, but no roadmap or timeline has been published.
Official Gazette — no publication between 2017 and 31 December 2024 references FATF Recommendation 16, the travel rule, or virtual assets in a regulatory context.
National Bank of Rwanda (BNR) — primary financial regulator. As of 31 December 2024, BNR has issued no regulation, directive, circular, or guideline addressing cryptocurrencies, digital assets, or VASPs. BNR’s public communications consist solely of consumer-risk warnings (e.g., BNR Press Release of 14/03/2018, reiterated 2021). RBC: Passengers Arriving Or Departing From Rwanda
Financial Intelligence Centre (FIC) — designated STR recipient under Law No. 059/2016, Art. 18. FIC has issued no practice note, guidance, or directive requiring crypto businesses to file STRs or implement travel-rule data collection.
Rwanda Revenue Authority (RRA) — no ruling, practice note, or guidance on crypto taxation published through December 2024.
ESAAMLG Member since 2007. Not a FATF member.
Mutual Evaluation Reports: ESAAMLG Mutual Evaluation Report (2018); ESAAMLG 3rd Enhanced Follow-Up Report (2023) — both note Rwanda’s high-level commitment to AML/CFT but do not contain VASP-specific recommendations or travel-rule implementation findings.
No national risk assessment (NRA) published since 2018 has resulted in VASP-specific guidance. RBC: Passengers Arriving Or Departing From Rwanda
Zero enforcement actions against any cryptocurrency business or individual for travel-rule non-compliance (BNR Supervision Reports 2018–2024; FIC Annual Reports 2018–2024; Rwanda Judiciary case-law database — no reported decisions referencing “virtual asset,” “cryptocurrency,” or “travel rule”).
Zero fines, penalties, or sanctions for crypto-related AML violations — no legal basis exists. RBC: Passengers Arriving Or Departing From Rwanda
No Rwandan entity investigated, arrested, or prosecuted for non-compliance with FATF Recommendation 16.
No tax guidance issued for virtual assets by RRA through December 2024.
Capital Gains Tax: Law No. 027/2022 (Income Tax) contains no specific provision for digital assets; general CGT regime (Art. 45) applies to “immovable property” and “business assets” — crypto classification unsettled. RBC: Passengers Arriving Or Departing From Rwanda
VAT: Law No. 042/2022 (VAT) — no exemption, zero-rating, or specific treatment for crypto transactions or services.
Income Tax Classification: No RRA ruling classifies crypto trading profits (business income vs. investment income vs. miscellaneous).
Mining/Staking: No guidance on tax treatment of mining rewards or staking income. RBC: Passengers Arriving Or Departing From Rwanda
Practical Impact: A business or individual engaged in crypto activities faces complete tax uncertainty — risk of retroactive assessments, penalties for non-declaration, or double taxation if foreign jurisdictions also claim taxing rights.
Law No. 059/2016 of 16/01/2017 on Prevention and Punishment of Money Laundering and Financing of Terrorism — Official Gazette No. Special of 16/01/2017.
Law No. 005/2021 of 05/02/2021 Governing the National Bank of Rwanda — Official Gazette No. 07 of 15/02/2021.
Law No. 027/2022 of 20/10/2022 Establishing Income Tax — Official Gazette No. 38 of 24/10/2022.
Law No. 042/2022 of 20/10/2022 Establishing Value Added Tax — Official Gazette No. 38 of 24/10/2022.
Law No. 007/2021 of 05/02/2021 Governing Companies — Official Gazette No. 07 of 15/02/2021. RBC: Passengers Arriving Or Departing From Rwanda
BNR Circular Index (2017–2024) — no circular referencing virtual assets, VASPs, or travel rule.
Financial Intelligence Centre (FIC) Annual Reports 2018–2023 — no VASP guidance or STR statistics for crypto. RBC: Passengers Arriving Or Departing From Rwanda
ESAAMLG Mutual Evaluation Report: Rwanda (2018) — FATF-style assessment; no VASP-specific recommendations.
ESAAMLG 3rd Enhanced Follow-Up Report: Rwanda (2023) — paragraph 47 urges “timely implementation of FATF standards on virtual assets.”
BNR Supervision Department Annual Reports 2018–2024 — licensed institution registers; no VASP entries.
Rwanda Revenue Authority (RRA) Practice Notes & Rulings Index (2017–2024) — no entries for cryptocurrency, digital assets, or virtual currencies. [ ](https://www.federalregister.gov/documents/2024/10/17/2024-23956/arrival-restrictions-applicable-to-flights-carrying
Rwanda's capital gains tax rate is ten per cent under Article 36 of Law n° 027/2022 of 20/10/2022 establishing taxes on income as amended by Law n° 014/2025 of 27/05/2025, and no Rwandan tax law carries a virtual asset or cryptocurrency provision.
Rwanda taxes company profit under Law n° 027/2022 of 20/10/2022 establishing taxes on income, which carries no virtual asset, cryptocurrency or digital asset provision, and neither Law n° 051/2023 of 05/09/2023 nor Law n° 014/2025 of 27/05/2025 added one.
Rwanda's corporate income tax rate is twenty-eight per cent under Article 48 of Law n° 027/2022 of 20/10/2022 as amended by Law n° 051/2023 of 05/09/2023, with reduced rates of twenty per cent and twenty-five per cent for newly listed companies.
Rwanda taxes individual business and professional income under Article 14 of Law nº 027/2022 of 20/10/2022 at 0% up to FRW 720,000, 10% from FRW 720,001 to 1,200,000, 20% from FRW 1,200,001 to 2,400,000 and 30% above FRW 2,400,001 of annual taxable income, with a 3% lump-sum turnover regime for small businesses; the income tax law carries no virtual-asset, cryptocurrency or digital-asset provision, so crypto trading is taxed only under these general rules.
Rwanda's corporate income tax rate is 28%, set by Article 48 of Law nº 027/2022 of 20/10/2022 as amended by Law nº 051/2023 of 05/09/2023, which also grants a five-year rate of 20% to a company selling at least 40% of its shares to the public on listing and 25% to a company selling at least 30%; the 30% rate no longer applies, and Rwandan law provides no crypto-specific corporate rate.
Rwanda's income tax statute is Law nº 027/2022 of 20/10/2022 establishing taxes on income, Official Gazette nº Special of 28/10/2022, amended by Law nº 051/2023 of 05/09/2023 and by Law nº 014/2025 of 27/05/2025; none of the three texts mentions virtual assets, cryptocurrency or digital assets, and the Rwanda Revenue Authority publishes no crypto tax provision.
Rwanda's value added tax statute is Law nº 049/2023 of 05/09/2023 establishing value added tax, amended by Law nº 009/2025 of 27/05/2025, charging VAT at 18% under Article 4 with a 0% rate for zero-rated supplies; Article 36 of Law nº 049/2023 repealed Law nº 37/2012, whose correct date is 09/11/2012 rather than 29/11/2012.
Custody regulation data collection in progress.
Article 19 of Law n° 023/2026 of 25/05/2026 regulating virtual asset business governs stablecoin issuance in Rwanda, and Article 4(3) excludes central-bank-regulated payment instruments, securities and capital-market instruments, central bank digital currencies and algorithm-based stablecoins from the definition of virtual asset.
Likely Fallback (if regulated for payments): If a stablecoin were to be used for payment purposes and allowed by the NBR, it would most likely be shoehorned into the existing framework for Electronic Money or Payment Services.
Rwanda's payment-system statute is Law n° 061/2021 of 14/10/2021 governing the payment system, published in Official Gazette n° 41 bis of 01/11/2021, which repealed Law n° 03/2010 except its Article 23 and requires a licence for the provision of payment services at Article 16.
Electronic money issuers in Rwanda are governed by Regulation n° 54/2022 of the National Bank of Rwanda, a 46-article instrument whose Article 45 repealed Regulation n° 08/2016 of 01/12/2016 governing the electronic money issuers.
Securities Classification (Less Likely for most stablecoins, but possible): If a stablecoin were structured to offer investment rights, interest, or represent a share in an underlying asset pool in a way that qualifies as an investment, it could potentially fall under securities law, regulated by the Capital Market Authority (CMA).
Rwanda's capital market statute is Law N°01/2011 of 10/02/2011 regulating capital market in Rwanda, Official Gazette n° 13bis of 28/03/2011, as modified by Law N°45/2018 of 13/08/2018.
Article 19 of Law n° 023/2026 of 25/05/2026 governs stablecoin issuance in Rwanda, and the Capital Market Authority of Rwanda has made no implementing regulation under that law, so no stablecoin reserve requirement is yet in operation.
E-money Analogy (if regulated): If stablecoins were to be regulated as e-money, the NBR's instructions for Electronic Money Issuers would likely be applied. These typically require
Article 35 of National Bank of Rwanda Regulation n° 54/2022 requires electronic money issuers to issue e-money at par value on receipt of funds, and Article 23 requires them to keep at least one hundred per cent of the e-money float in liquid assets, reconciled daily by 4.00 p.m.
Article 24 of National Bank of Rwanda Regulation n° 54/2022 requires all monies received to be held in a trust or special account, bars commingling with the funds of any person other than e-money holders, and requires trust funds to be placed in a financial institution authorised by the Central Bank.
Safeguarding: Measures to safeguard customer funds are paramount in e-money regulations.
Law n° 023/2026 of 25/05/2026 subjects stablecoin issuance to Article 19 and licensing to Article 10, and the Capital Market Authority of Rwanda has made no implementing regulation and lists no virtual asset or stablecoin category among its eleven licensee categories.
Robust governance, risk management, and internal control frameworks.
Fit and proper criteria for management and shareholders.
Securities License (if classified as security): If a stablecoin were to be classified as a security, the issuer would need to comply with the licensing and disclosure requirements of the Capital Market Authority.
Article 19 of Law n° 023/2026 of 25/05/2026 governs stablecoin issuance in Rwanda, and the redemption right at par under Article 35 of National Bank of Rwanda Regulation n° 54/2022 binds electronic money issuers only.
Article 35 of National Bank of Rwanda Regulation n° 54/2022 requires an electronic money issuer, on request by the holder, to redeem at any moment and at par value the monetary value of e-money held, with a redemption fee permitted only where it is clearly stated in the contract between issuer and holder.
Article 4(3)(i) of Law n° 023/2026 of 25/05/2026 excludes algorithm-based stablecoins from the definition of virtual asset, placing them outside the virtual asset business regime supervised by the Capital Market Authority of Rwanda.
High Risk: Algorithmic stablecoins, by their nature, carry higher risks of volatility and de-pegging compared to fully fiat-backed stablecoins. It is highly probable that such models would be deemed too risky and would not be permitted under any future regulatory framework without significant adaptations and stringent oversight.
The National Bank of Rwanda completed a central bank digital currency proof of concept in February 2026 and identifies a twelve-month pilot as the next phase, and it has taken no decision to issue a central bank digital currency.
Potential Impact: The NBR's exploration of a CBDC often reflects a desire for a state-controlled, secure, and efficient digital currency, which could potentially reduce the perceived need or appetite for privately issued stablecoins. A CBDC could offer a regulated alternative for digital payments, possibly leading to a more restrictive stance on private stablecoins to avoid competition or systemic risks. There is no direct regulatory "interaction" yet as the CBDC is still in the research phase.
Capital Market Authority (CMA): Oversees capital market activities, licensing, supervision, investor protection, and market conduct. Website: https://www.cma.rw
Rwanda Stock Exchange (RSE): Provides a formal platform for securities trading and publishes regulatory guidelines. Website: https://www.rse.rw
New Capital Market Business Bill (2025): Replaces the 2011 Capital Market Business Act, introducing a regulatory sandbox, digital transaction recognition, Islamic securities provisions, and Community Benefit Companies (CBCs).
CMA Regulations and Directives: Include guidelines on market integrity, insider trading, and market manipulation.
The CMA aligns with FATF (Financial Action Task Force) standards for AML/CFT (Anti-Money Laundering/Combating the Financing of Terrorism). Rwanda is a member of the East African Community, facilitating regional regulatory cooperation.
Verification of FATF Compliance: The CMA confirms alignment with FATF standards in its latest regulatory bulletin dated October 2024.
FATF Member List: FATF Official Member List
Issuance and trading of digital asset securities (e.g., tokenized bonds, equity tokens).
Operation of platforms facilitating securities-based transactions involving cryptocurrencies.
Submit an application to the CMA detailing the proposed digital asset service, business model, risk management framework, and technology infrastructure.
Obtain approval from the regulatory sandbox for innovative products before full market entry.
Source: CMA Licensing Registry (No entries for crypto exchanges as of October 2024)
FATF Official Statement: FATF Statement on Rwanda
CMA Enforcement Bulletin (March 2024)
Regulatory Uncertainty: Lack of specific licensing for cryptocurrency exchanges creates ambiguity for market participants.
AML/KYC Compliance Challenges: Ensuring robust AML/KYC frameworks for decentralized finance (DeFi) platforms remains a significant hurdle.
Technological Adaptation Gap: Existing regulatory guidelines may lag behind rapid technological advancements in blockchain and smart contract innovations.
Sanctions data collection in progress.
Rwanda's virtual-asset investor-protection rules are statutory and belong to the Capital Market Authority of Rwanda, at Articles 25 to 27 of Law nº 023/2026 of 25/05/2026 on investor protection, market conduct and data and asset protection, with technology and information security at Article 28 and inspections at Article 29. No National Bank of Rwanda cryptocurrency warning exists as a published central-bank instrument, and the Capital Market Authority's licensee register carries ten categories, from exchanges to investment advisers, with no virtual-asset category and no licensed virtual asset service provider.
Rwanda has a statutory virtual-asset licensing regime at Article 10 of Law nº 023/2026 of 25/05/2026, and enforcement runs through that statute rather than through general financial law: Article 6(b) directs the Capital Market Authority of Rwanda to identify a virtual asset service provider that contravenes the Law, Article 29 provides for inspections, Article 30 for freezing of virtual assets, Article 32 for administrative sanctions and Articles 33 to 38 for offences. Because the implementing regulations are unmade, no licence has been issued and no enforcement action has been published.
Limited Market Size: The cryptocurrency market in Rwanda may not yet be large enough to attract the scale of illicit activity or the number of unregulated operators that would trigger frequent, large-scale, and publicly reported enforcement actions seen in more mature or permissive crypto jurisdictions.
Rwanda's virtual-asset regulator is the Capital Market Authority of Rwanda: Articles 5 to 7 of Law nº 023/2026 of 25/05/2026 establish it as the Regulatory Authority, Article 6 charges it with supervising virtual asset service providers and with ensuring their anti-money-laundering compliance, and Article 14 makes it the licensing authority for virtual asset services. Article 8 gives the National Bank of Rwanda a cooperation role together with power to issue directives on matters falling under its own purview, which is a directive power rather than a licensing power.
Rwanda's official position on virtual assets is set by statute rather than by warning. Article 15 of Law nº 023/2026 of 25/05/2026 bars natural persons from carrying on virtual asset business, provides that virtual assets are not legal tender and cannot be used as a direct means of payment unless the National Bank of Rwanda authorises it, requires approval for mining facilities, virtual-asset automated teller machines and mixer or tumbler services, and restricts marketing to licensed providers. Article 4(3) excludes algorithmic stablecoins, non-fungible tokens and central bank digital currency from the Law's scope.
Entity Targeted: The general public and potential investors. Penalty Amount: Not applicable, as these are warnings, not fines against specific entities.
Date: Ongoing, with several statements issued over the years.
Outcome: Increased public awareness about crypto risks and BNR's position. Discouragement of participation in unregulated crypto schemes.
Virtual assets are not legal tender in Rwanda, and the rule is statutory rather than declaratory: Article 15 of Law nº 023/2026 of 25/05/2026 provides that virtual assets are not legal tender and cannot be used as a direct means of payment unless the National Bank of Rwanda authorises it. The National Bank of Rwanda has published no instrument of its own stating that position.
Source URL (Example of BNR's official statements regarding financial stability and emerging risks, which includes virtual assets): It's common for central banks to embed these warnings in their Financial Stability Reports or official press releases. While a single "enforcement action" URL isn't available, the BNR's general position is clear through its publications.
Finding a direct BNR URL for a specific "warning" is challenging as they are often integrated into broader reports or general statements. A good starting point would be the BNR's official website: https://www.bnr.rw/
Searching BNR's site for "virtual currency," "cryptocurrency," or "digital assets" within their "Publications" or "News" section would reveal their long-standing cautionary statements. For instance, their financial stability reports often include sections on emerging risks, including crypto.
News Articles Reporting BNR's Stance: Various news outlets have reported on the BNR's cautionary position on cryptocurrencies.
Entity Targeted: General public / Potential users of crypto. Violation Type: General warning against unregulated financial activities and associated risks. Penalty Amount: N/A (warning).
Date: Reported in early 2022 (e.g., February/March 2022)
Likely enforcement action expected around 2026-11-02
Based on 100 historical regulatory events for Rwanda, averaging every 24 days, with increasing regulatory activity.
Law N° 060/2021 of 14/10/2021 on Preventing and Combating Money Laundering and Financing of Terrorism: This is the overarching AML/CFT law in Rwanda. It establishes the legal framework for identifying, reporting, and preventing money laundering and terrorist financing. It defines "reporting persons" broadly to include any person or entity that, by virtue of their activities, may be exposed to ML/TF risks, which can encompass VASPs even if not explicitly named.
National Bank of Rwanda (BNR) Circulars and Guidelines: The BNR, as the central bank and financial regulator, has issued warnings regarding the risks associated with cryptocurrencies, underscoring the need for AML/CFT compliance should they operate within Rwanda's financial ecosystem. While not specific VASP licensing, these reinforce the general AML/CFT obligations.
National Bank of Rwanda (BNR)
Central Bank of Rwanda (BNR) - Official Website: The BNR is the primary financial regulator. Their official statements and publications are the most authoritative source.
The BNR has not issued a "crypto custody license."
The BNR has shown an interest in exploring new financial technologies, including potentially a Central Bank Digital Currency (CBDC), and has a fintech sandbox initiative. This indicates an openness to understanding and potentially regulating the digital asset space in the future.
Regulations and Directives from the National Bank of Rwanda (BNR): The BNR, as the central bank, issues directives and regulations that implement the AML/CFT-P law and govern financial institutions. As the regulatory framework for VASPs develops, specific BNR guidance will detail their obligations.
Financial Intelligence Centre (FIC) Directives: The FIC provides guidance to reporting institutions on AML/CFT compliance, including sanctions screening.
Legal Reference: UN Security Council Sanctions Committees (Lists and Resolutions): https://www.un.org/securitycouncil/sanctions/information
Requirements for VASPs: Due to the risk of secondary sanctions and disruption of international financial services, prudent VASPs operating in Rwanda should:
Legal Reference: U.S. Department of the Treasury, Office of Foreign Assets Control (OFAC): https://home.treasury.gov/policy-issues/office-of-foreign-assets-control-sanctions-programs-and-information
Legal Reference: EU Sanctions Map and Consolidated List: https://www.sanctionsmap.eu/
Customer Due Diligence (CDD) and Know Your Customer (KYC): Perform thorough CDD on all customers, including identifying beneficial owners. This is the foundation for effective sanctions screening.
Tools and Technology: Utilize reputable sanctions screening software that can handle various lists and languages, and integrate with blockchain analytics tools for tracing funds.
OFAC Sanctions: Countries subject to comprehensive U.S. embargos (e.g., Cuba, Iran, North Korea, Syria, regions of Ukraine, Venezuela).
Primary Sanctions List: Rwandan financial institutions and, by extension, future licensed VASPs, are primarily required to implement the UN Security Council Consolidated List and other specific UN sanctions regimes as mandated by the Law No. 008/2020 on AML/CFT-P.
National Terrorist Lists: While Rwanda may maintain internal security-related lists of individuals or groups involved in terrorism, these are generally for domestic law enforcement purposes and are distinct from comprehensive international financial sanctions lists like OFAC's SDN or the EU's Consolidated List. Reporting institutions are expected to refer to the UN lists.
No Specific Stablecoin Issuer License: As there's no dedicated stablecoin regulatory framework, there's no specific license for stablecoin issuers.
E-money Issuer/Payment Service Provider License (if regulated for payments): Any entity wishing to issue electronic money or provide payment services in Rwanda must obtain a license from the National Bank of Rwanda under the National Payment Systems Act and related instructions. This would be the most relevant licensing regime if stablecoins were to be integrated into the payment system. The requirements are rigorous, including:
High Risk: Algorithmic stablecoins, by their nature, carry higher risks of volatility and de-pegging compared to fully fiat-backed stablecoins. It is highly probable that such models would be deemed too risky and would not be permitted under any future regulatory framework without significant adaptations and stringent oversight.
NBR Researching CBDC: The National Bank of Rwanda has publicly stated that it is actively exploring the potential issuance of a Central Bank Digital Currency (CBDC). This research is ongoing.
Potential Impact: The NBR's exploration of a CBDC often reflects a desire for a state-controlled, secure, and efficient digital currency, which could potentially reduce the perceived need or appetite for privately issued stablecoins. A CBDC could offer a regulated alternative for digital payments, possibly leading to a more restrictive stance on private stablecoins to avoid competition or systemic risks. There is no direct regulatory "interaction" yet as the CBDC is still in the research phase.
Partial/Cautionary: Rwanda does not have a comprehensive regulatory framework for cryptocurrencies, nor does it impose an outright ban. Instead, it maintains a cautionary stance, primarily through warnings from the central bank, highlighting the risks associated with virtual assets. The focus is currently on consumer protection, financial stability, and leveraging existing AML/CFT legislation.
Developing: There is an ongoing recognition of fintech innovation, and discussions are underway regarding future regulatory frameworks that might encompass virtual assets.
High Risk Warnings: The National Bank of Rwanda has consistently advised the public that engaging in virtual asset activities carries significant risks, including price volatility, lack of consumer protection, potential for fraud, and the absence of any regulatory recourse in case of loss.
No Specific Licensing: There is currently no specific licensing regime for Virtual Asset Service Providers (VASPs), including exchanges, custodians, or issuers of virtual assets. Entities engaging in such activities do so outside of the formal financial regulatory framework.
De Minimis Threshold (for certain scenarios): While the law requires information for all transfers, FATF guidance allows for a de minimis threshold (typically USD/EUR 1,000) below which the receiving VASP may not need to obtain the originator information unless there is suspicion of ML/TF or the transfer is associated with a higher-risk scenario. However, the originating VASP still has obligations to collect and transmit this information. Rwanda's Article 23 generally mandates information for all transfers, placing the burden on both originating and receiving entities. Further specific implementing regulations or guidance from the National Bank of Rwanda (BNR) or the Financial Intelligence Centre (FIC) would clarify any exact de minimis for specific types of lower-risk transactions, but the default expectation is full compliance.
Administrative Sanctions: Imposed by regulatory bodies like the National Bank of Rwanda (BNR) or the Financial Intelligence Centre (FIC), which can include warnings, fines, suspension of licenses, or withdrawal of licenses.
Fines: Significant monetary penalties for legal persons, potentially ranging from millions to hundreds of millions of Rwandan Francs (RWF), depending on the severity and nature of the breach.
International Standing: Rwanda is a member of the Financial Action Task Force (FATF) and aligns its AML/CFT standards with FATF recommendations, but no dedicated crypto‑specific guidance has been issued by the FATF for Rwanda as of 2025.
World Bank Document – “Insurance that Works” (2023) – while focused on insurance, confirms Rwanda’s broader financial regulatory reforms but lacks crypto specifics.
Rwanda's financial regulatory framework includes provisions for the oversight of digital asset activities under the supervision of the National Bank of Rwanda (NBR).
World Bank Document on Insurance Sector Development in Rwanda
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