How to launch a casino in Rwanda’s reopened gambling market

Strict restrictions were placed on the country’s gambling licenses for more than a year, with a halt on new applications designed to give the Rwandan government time to completely reconfigure and redesign its regulatory framework.

Inspiration and guidance have been drawn from other African nations — including Kenya, Tanzania, and South Africa — which have well-established national casino regulations in place, as well as international best practices from the UK, Singapore, and Macau. The Rwandan government used the expertise and guidance of these jurisdictions to shape its 2024 Gambling Policy.

In November 2024, the RDB introduced the policy with a focus on achieving two key objectives:

Economic stability and growth

Generating revenue from gambling to support the nation’s broader economy, with funds used to advance Rwanda’s wider economic development goals.

Consumer rights and protection

Establishing safeguards and systems to promote responsible gambling and provide protection for vulnerable individuals. A portion of national gambling revenue is also expected to be allocated to health and social programs.

On August 1, 2025, the RDB announced the resumption of licensing for land-based casinos, allowing interested operators to submit formal applications. Restarting the country’s revitalized gambling infrastructure is expected to encourage operators to begin the process of launching new casino ventures in Rwanda.

Before the introduction of Prime Ministerial Order No. 028/03 in June 2024, the Ministry of Trade was responsible for overseeing the regulation of gambling activities in the country. However, since the order came into effect, the Rwanda Development Board has assumed full regulatory authority over the nation’s gambling operations.

This shift to the RDB ensures tighter, more transparent, and stricter oversight through a more centralized authority.

The responsibilities of the RDB include the complete regulation and licensing of operators, approval of permits for both online gambling operations and physical gambling premises, inspections to ensure compliance, maintaining a national database of gambling devices, and overseeing the National Lottery as its official custodian.

Although the introduction of the 2024 Gambling Policy has brought significant change and laid the foundations for a more structured future for gambling activities, the country’s legal framework is still evolving.

It is expected that Rwanda’s legal system will undergo substantial reform to better support and regulate the new gambling initiative. Until that happens, the industry continues to operate under a combination of existing laws.

For gaming activities, Law No. 58/2011 of 31/12/2011 takes precedence. Licensing procedures and fees are defined in Ministerial Order No. 01/013 of 20/06/2013, while administrative sanctions applicable to gaming operators are outlined in Ministerial Order No. 001/MINICOM/2023 of 31/03/2023.

These three key documents are essential reading for any operator planning to launch in Rwanda. Prospective applicants are strongly encouraged to review them carefully, as they outline the full application process, consequences for non-compliance, and the structure and costs of applicable fees.

Operators who familiarize themselves with these documents will be better prepared for the process ahead.

Applying for a license is a thorough process, but it can be broken down into manageable and easy-to-understand steps.

Below is the current step-by-step process for securing a gambling license in Rwanda:

Expression of interest (EOI)

The first step in an operator’s licensing journey is submitting an Expression of Interest (EOI). This step applies to all operators regardless of which license type they are pursuing.

The EOI can be submitted via email directly to the RDB at [email protected]. It should be noted that the first application window closed on September 30.

Formal application

The RDB will review an operator’s initial EOI. If accepted, the operator will be invited to submit a formal application.

The formal application form will be provided to the operator by the RDB once the EOI has been approved.

Along with the application form, operators must also provide: a detailed operational business plan, proof of financial capability, evidence of the operator’s Rwandan business certificate of incorporation.

Submission of compliance documentation

After submitting the formal application, operators must also provide documentation demonstrating that they have the appropriate frameworks and procedures in place to ensure full compliance.

This includes procedures related to anti-money laundering (AML), responsible gambling, player protection.

Software certification

In addition to verifying the legitimacy of the operator, the RDB also closely examines the gaming software used in operations.

The RDB has established strict requirements stating that all gambling technologies must comply with international standards.

To meet these standards, operators must obtain certification for both their gaming software and equipment. Recognized testing laboratories include GLI, eCOGRA, and iTech Labs, which are approved by the RDB.

Once these steps are completed, operators will be well positioned to secure a Rwandan gambling license. Operators should also be aware of ongoing regulatory supervision from the RDB, including regular reporting requirements, audits, and inspections.

Launching any business often involves significant upfront investment, and opening a casino or gambling operation in Rwanda is no exception.

Focusing specifically on casinos, here is a breakdown of the main cost categories for both land-based and online operations.

Some of these costs are obvious, but preparation helps avoid unexpected expenses.

Land-based casinos

• Physical infrastructure:
  This includes premises, equipment, gaming machines, tables, security systems, and other operational amenities.
• Personnel:
  Specialized staff such as security personnel, croupiers, and compliance officers must be employed and trained according to regulatory standards.
• Licensing costs:
  Licensing fees for land-based casinos vary depending on the size and scale of the casino operation.

Online casinos

• Digital infrastructure:
  Whether using a custom-built platform or a white-label solution, the platform itself represents a significant initial investment. Ongoing development and maintenance costs should also be considered.
• Licensing costs:
  A non-refundable application fee must be paid. Annual licensing fees are payable after approval and must be maintained to keep the license valid.
• Certification:
  Most online casinos offer multiple games, and each game must be tested and certified to meet international standards. Each certification process incurs additional costs. Furthermore, software updates and game maintenance may create additional expenses.
• Compliance costs:
  Regular audits and ongoing software updates are required to remain compliant with regulations.

Further information about licensing fees can be found on the Rwandan government website.

Casino license holders are required to pay two types of taxes on a monthly basis:

Gaming tax:

13% of gambling proceeds. Payable even if proceeds are negative.

Withholding on payment (WOP) on gaming:

15% of gambling proceeds exceeding RWF 30,000. Operators must withhold the tax when proceeds are positive.

For more information, consult the Rwanda Revenue Authority website.

A new era for Rwanda’s gambling industry is underway. The 2024 Gambling Policy demonstrates the country’s intention to position betting as a significant contributor to the national economy.

By establishing strict standards that support responsible gambling — developed in collaboration with international experts — Rwanda has created a transparent, robust, and government-supported regulatory ecosystem.

If you are looking for a casino solution provider who can help you launch your business quickly with compliance and scalability in mind: