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RW

Is Gambling Legal in Rwanda?

Regulated
Gambling is fully regulated under a new framework with stricter controls, licensing, and enhanced player protections for all forms including online and land-based operations.
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    Key Information Highlights Legislation Timeline Requirements Sources

    Key Information

    Last Update 2025
    Regulatory Authority Rwanda Development Board (RDB)
    License Cost Varies

    Regulation by Activity Type

    Casinos Regulated
    Online Casinos Regulated
    Betting Regulated
    Online Betting Regulated
    Lotteries Regulated
    Poker Regulated

    Highlights

    • The Rwanda Development Board (RDB) became the main gambling regulator in June 2024, overseeing all licensing and compliance.
    • A new gambling policy in late 2024 introduced stricter regulations for all gambling forms, including online platforms and physical venues.
    • From the 2024/2025 fiscal year, the tax on Gross Gambling Revenue (GGR) increased sharply from 13% to 40%.
    • Withholding tax on player winnings was raised from 15% to 25% as part of the 2024/2025 reforms.
    • The regulatory framework now emphasizes enhanced player protection and measures to address gambling addiction risks.
    • Licensing standards and compliance monitoring have been strengthened to combat illegal gambling and tax evasion.
    • The sector is recognized as economically significant, but new rules aim to balance growth with social responsibility.
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      Legislation

      Primary Legislation

      The legal framework governing gambling in Rwanda is defined by a comprehensive set of laws and policies that regulate all forms of gambling activities, including lotteries, casinos, and sports betting. The core structure is established through a national gambling policy introduced in 2024, which provides the basis for stricter regulatory oversight and enhanced player protection. This policy applies to both land-based and online gambling operations, ensuring that all activities are subject to uniform standards and controls. The legal framework is designed to address economic, social, and public health concerns associated with gambling, and it mandates compliance with standards set by the government for licensing, monitoring, and enforcement.

      Regulatory Authority

      The Rwanda Development Board (RDB) is the primary regulatory authority responsible for overseeing the gambling sector in Rwanda. Since June 2024, the RDB has held the mandate to regulate all gambling activities, including setting regulatory standards, monitoring compliance, and implementing player protection measures. The RDB’s responsibilities include:
      • Establishing and enforcing regulations for all forms of gambling, including lotteries, casinos, sports betting, and online gambling
      • Monitoring and ensuring operator compliance with national gambling laws and policies
      • Implementing measures to protect vulnerable populations and promote responsible gambling
      • Setting standards for licensing and ongoing oversight of gambling operators
      • Addressing illegal gambling activities and ensuring integrity within the sector

      License Types

      Types of Gambling Licenses in Rwanda

      • Casino License: Required for operating land-based casinos offering table games and slot machines.
      • Sports Betting License: Covers both retail (physical premises) and online sports betting operations.
      • Lottery License: Needed for running national or regional lottery games, including instant and draw-based lotteries.
      • Online Gambling License: Mandated for all forms of internet-based gambling, including casino games, sports betting, and lotteries.
      • Other Gaming Licenses: May include licenses for bingo halls, betting shops, and other specialized gambling activities as specified by the Rwanda Development Board (RDB).

      Application Process

      • All gambling licenses are issued and regulated by the Rwanda Development Board (RDB).
      • Applicants must submit a formal application to the RDB, specifying the type of gambling activity and license sought.
      • Applications require detailed business plans, operational procedures, and responsible gambling measures.
      • Applicants must provide evidence of financial capacity and proof of a clean criminal record for key personnel.
      • The RDB conducts thorough background checks and may require interviews or additional documentation.
      • Physical site inspections are conducted for land-based operations before final approval.
      • The RDB reviews applications and issues a decision within a defined period (typically several months, depending on the complexity and completeness of the application).

      License Duration and Renewal

      • Licenses are generally valid for a fixed term, most commonly one to five years, depending on the license type and RDB regulations.
      • Renewal applications must be submitted before the expiration of the current license, along with updated compliance documentation and renewal fees.
      • Renewal is contingent upon continued compliance with all regulatory requirements and satisfactory operational performance.

      Eligibility and Key Requirements

      • Applicants must be legally registered business entities in Rwanda or have a local presence.
      • Directors, shareholders, and key management must pass fit-and-proper checks, including background and financial integrity assessments.
      • Operators must demonstrate sufficient financial resources to support ongoing operations and player protection measures.
      • Robust internal controls, anti-money laundering (AML) procedures, and responsible gambling policies are mandatory.
      • Technical systems, especially for online gambling, must meet security and fairness standards set by the RDB.
      • Operators must maintain records and submit regular reports to the RDB for monitoring and compliance purposes.

      Licensing Costs and Financial Requirements

      • Each license type has a specific application and annual license fee, set by the RDB. The fee structure varies based on the scale and nature of the gambling activity.
      • Applicants must pay a non-refundable application fee upon submission of their application.
      • Annual license fees are payable upon approval and must be maintained for the license to remain valid.
      • Operators may be required to post a financial guarantee or performance bond as part of the licensing conditions, ensuring player funds and regulatory obligations are protected.
      • Failure to pay fees or maintain financial guarantees can result in suspension or revocation of the license.

      Maintaining a Gambling License

      • Licensees must comply with all ongoing regulatory obligations, including player protection, AML compliance, and responsible gambling initiatives.
      • Regular audits and inspections by the RDB are standard to ensure operational integrity and compliance.
      • Material changes in ownership, management, or business structure must be reported to the RDB and may require prior approval.
      • Breaches of license conditions can result in sanctions, fines, suspension, or revocation of the license.

      Summary Table: Key Licensing Aspects

      License Type Application Fee Annual Fee Duration Renewal Key Requirements
      Casino Set by RDB Set by RDB 1-5 years Yes, with compliance review Financial capacity, fit-and-proper, controls
      Sports Betting Set by RDB Set by RDB 1-5 years Yes, with compliance review Local presence, AML, responsible gambling
      Lottery Set by RDB Set by RDB 1-5 years Yes, with compliance review Transparency, player protection
      Online Gambling Set by RDB Set by RDB 1-5 years Yes, with compliance review Technical standards, security

      Gambling Tax

      Gambling Tax Rates in Rwanda

      Effective from the 2024/2025 fiscal year, Rwanda has implemented significant changes to its gambling taxation system. The new tax rates for gambling operators are as follows:
      Type Tax Rate Basis for Taxation
      Gambling Operators 40% Gross Gambling Revenue (GGR)
      Withholding Tax on Player Winnings 25% Prize Value (amount won by player)

      Basis for Taxation

      • The primary basis for operator taxation is Gross Gambling Revenue (GGR), which is the difference between the total amount wagered and the total amount paid out in winnings.
      • For player winnings, a withholding tax of 25% is applied directly to the prize value at the point of payout.

      Tax Reporting and Payment Requirements

      • Operators are required to calculate and remit 40% of their GGR to the tax authorities for each reporting period.
      • Withholding tax on player winnings (25%) must be deducted at source and remitted to the tax authorities as part of regular tax filings.
      • Operators must maintain accurate records of wagers, winnings, and payouts to ensure compliance and facilitate audits.
      • Tax payments and reporting are overseen by the Rwanda Revenue Authority, with deadlines and procedures set according to national tax regulations.

      Tax Incentives, Exemptions, and Special Provisions

      • The revised tax regime eliminates the previous tax on profits for gambling service providers, which is intended to offset the higher GGR tax rate.
      • No specific tax exemptions or incentives for gambling operators have been announced under the new regime.
      • The government’s stated aim is to simplify tax implementation and broaden the tax base, rather than introduce sector-specific incentives.

      Prohibited Individuals

      Age Restrictions and Identification Requirements

      • The minimum legal age for participating in any form of gambling in Rwanda is 18 years.
      • Gambling operators are required to verify the age and identity of all players before allowing participation. This typically involves checking official identification documents such as a national ID or passport to prevent underage gambling.

      Prohibited Activities and Game Restrictions

      • Unlicensed gambling activities are strictly prohibited. Only operators with a valid license from the regulatory authority may offer gambling services.
      • There are restrictions on the types of games that can be offered. Certain high-risk gambling products or games deemed to have excessive negative social impact may be restricted or banned by the regulator. Specific details on banned games are subject to regulatory updates and may include unapproved betting types or unauthorized online gambling formats.
      • Gambling activities targeting minors or vulnerable groups are strictly forbidden.

      Advertising and Marketing Limitations

      • Gambling advertising must not target individuals under the age of 18 or appear in media primarily consumed by minors.
      • All marketing materials must include clear warnings about the risks of gambling and information on responsible gambling resources.
      • Advertisements must not make misleading claims about winnings, minimize the risks of gambling, or suggest that gambling is a solution to financial or personal problems.

      Responsible Gambling and Player Protection Measures

      • Operators are required to provide clear and accessible information about responsible gambling, including guidance on recognizing problem gambling and access to support services.
      • Self-exclusion programs must be available, allowing players to voluntarily ban themselves from gambling venues or online platforms for a specified period.
      • Operators must implement mechanisms to monitor player behavior and intervene when signs of problem gambling are detected, such as setting deposit, loss, or time limits.
      • Staff working in gambling establishments must be trained to identify and assist individuals exhibiting signs of gambling addiction.
      • Information on how to seek help for gambling-related problems must be prominently displayed in all gambling venues and on all gambling websites.

      Geographic and Location Restrictions

      • Gambling venues are subject to zoning regulations and cannot be located near schools, places of worship, or other areas frequented by minors.
      • Mobile and online gambling platforms must implement geo-restriction technologies to prevent access from jurisdictions where gambling is not permitted.
      • Physical access to gambling establishments is restricted to adults who have passed age verification checks at the entrance.
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        Timeline

        Year/Date Event
        2008 Initial legal framework for gambling established, allowing regulated gaming activities in Rwanda.
        2011 First formal licensing of gaming operators begins under the supervision of the Ministry of Trade and Industry.
        2013 Significant amendments to gambling regulations introduced to address emerging industry challenges and to strengthen oversight.
        2024-07-15 Rwanda Development Board (RDB) officially set to take over regulatory and licensing powers for the gaming sector from the Ministry of Trade and Industry, marking a major shift in regulatory authority and oversight.
        2024-11-26 Government outlines plans for a comprehensive new gambling policy aimed at reregulating the sector, focusing on enhanced player protection and industry standards.
        2025-03-19 Draft law approved by lawmakers to significantly increase gambling taxes and introduce new fiscal measures targeting the sector, reflecting a policy shift towards stricter economic and social controls.

        Requirements

        Software Certification and Technical Standards

        • All gambling operators must ensure that their gaming software is certified by recognized testing laboratories to guarantee fairness, randomness, and integrity of games.
        • Technical systems, including Random Number Generators (RNGs), must comply with international standards and undergo regular independent audits to maintain certification status.
        • Operators are required to implement robust technical controls to prevent unauthorized access, manipulation, or tampering with gaming systems and data.
        • Online platforms must demonstrate high levels of system reliability, including uptime guarantees and disaster recovery capabilities.

        Data Protection, Privacy Measures, and Server Location

        • Operators must implement comprehensive data protection frameworks in line with Rwandan data privacy laws and international best practices, ensuring the confidentiality and security of player information.
        • Personal and financial data must be encrypted both in transit and at rest using industry-standard encryption protocols.
        • Operators are required to maintain secure servers, with a strong preference for hosting data within Rwanda or in jurisdictions approved by the Rwanda Development Board (RDB).
        • Strict access controls must be in place, with regular audits of data access logs and prompt reporting of any data breaches to the relevant authorities.

        Anti-Money Laundering (AML) and Know Your Customer (KYC) Procedures

        • Operators must establish and maintain comprehensive AML programs, including risk-based customer due diligence and ongoing monitoring of transactions.
        • KYC procedures are mandatory for all players, requiring verification of identity, age, and source of funds before permitting participation in gambling activities.
        • Suspicious transactions must be promptly reported to the Financial Intelligence Unit (FIU) or designated authority in Rwanda.
        • Operators are required to provide regular AML training to staff and maintain records of all AML and KYC checks for a minimum period as specified by law.

        Financial Reporting, Auditing Standards, and Record-Keeping

        • Operators must submit regular financial reports to the Rwanda Development Board, including detailed records of all bets, payouts, and player account balances.
        • Annual independent audits of financial and technical systems are required to ensure compliance with regulatory standards and to verify the accuracy of reported figures.
        • Comprehensive record-keeping is mandatory, with all transaction logs, player activity records, and system event logs retained for a minimum period as specified by regulation.
        • Operators must ensure that all financial records are accessible for regulatory inspection and are protected against unauthorized alteration or deletion.

        Technical Implementation Requirements for Responsible Gambling Tools

        • Operators are required to integrate responsible gambling features into their platforms, including self-exclusion mechanisms, deposit and loss limits, and reality checks to inform players of their activity.
        • Systems must enable players to set personal limits and self-exclude without undue barriers, with immediate effect upon request.
        • Responsible gambling tools must be prominently displayed and easily accessible on all platforms, both online and land-based.
        • Operators must monitor player behavior for signs of problem gambling using automated systems and intervene when necessary, as stipulated by regulatory guidelines.

        Sources

        Primary Regulatory Authorities

        Legislation Resources

        • Parliament of Rwanda – Official legislative portal for acts and laws, including gambling legislation

        Contact Information

        • Rwanda Development Board (RDB): Email: info@rdb.rw Address: RDB Building 1 KG 9 Ave, Kigali
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          Important Information Notice

          Gambling regulations are subject to change. The information provided on this page was accurate at the time of publication, but may not reflect the current regulatory landscape. Always consult official sources for the most up-to-date information before making any gambling-related decisions.

          Last updated: 21 April 2025