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

Super strict restrictions were placed upon the country's gambling licences for over a year, with a halt on new applications aimed to give the Rwandan government time to completely reconfigure and redesign its entire regulatory framework.

Inspiration and guidance has been taken 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 drawn from the UK, Singapore, and Macau. The Rwandan government utilised the expertise and guidance from these nations to form its 2024 Gambling Policy.

In November 2024, the RDB introduced the policy with a focus on accomplishing two key aims:

Economic stability and growth

Generating revenue from gambling to impact the nation's economy as a whole, with the funds being utilised to help drive the country’s wider economic aims.

Consumer rights and protection

Establishing outlets and protections to ensure responsible gambling, as well as assistance in protecting the most vulnerable. A proportion of the nation's gambling revenue is also expected to be distributed to health and social programs.

On August 1 2025, the RDB announced the resumption of licensing of land-based casinos, with interested operators able to submit a formal application to the RDB. Kick-starting the country’s rejuvenated gambling infrastructure is set to prompt operators to get the ball rolling on the process of setting up their new Rwandan casino ventures.

Prior to the introduction of Prime Ministerial Order No. 028/03 in June 2024, it was the responsibility of the Ministry Of Trade to oversee the regulation of all gambling activities in the nation. However, since the new order came into effect, the Rwanda Development Board has taken total control of governance when it comes to the country’s gambling operations.

This shift to the RDB now ensures tighter, more transparent, and stricter legislation from what is viewed as a more centralised authority.

The role of the RDB will encompass complete regulation and licensing of all operators, the approval of permits for both online operations and gambling premises, conducting inspections to ensure compliance, compiling a national database on all gambling devices, and overseeing the National Lottery as its official custodian.

Although the introduction of the 2024 Gambling Policy has brought about radical change and laid the foundations for gambling activity to progress into a brighter, more structured future, the national laws surrounding gambling are yet to catch up.

It is expected that Rwanda’s legal framework will undergo a substantial overhaul in order to facilitate and better police their new gambling initiative.  Until that time however, the industry still adheres to a combination of separate laws.

When it comes to gaming activities, Law No 58/2011 of 31/12/2011 takes precedence. Licensing procedures and fees are established through Ministerial Order No 01/013 of 20/06/2013, and administrative sanctions applicable to gaming operators have been outlined in Ministerial Order No 001/MINICOM/2023 of 31/03/2023.

These three key documents are a must-read for any operator looking to launch in Rwanda. Potential applicants are encouraged to carefully review each document in great detail as they outline the complete application procedure, consequences for non-compliance, and the cost and structure in which fees will be charged.

Operators who make themselves familiar with these documents will be well prepared for the journey ahead. 

Applying for a licence is a thorough and in-depth process but here we have broken it down into manageable and easy-to-understand steps.

Here is the current step-by-step process for securing a Rwandan gambling licence:

Expression of interest (EOI)

The initial start to an operator's licensing journey is to submit an EOI. This first step applies to all operators regardless of which type of licence they are seeking. The EOI can be submitted via email directly to the RDB at [email protected]. It should be noted that the first window for applications closed on September 30.

Formal application

The RDB will decide upon an operator’s initial EOI and, if accepted, the operator will be invited to register a formal application.

The form to submit a formal application will be sent to the applying operator by the RDB upon acceptance of the EOI.

In addition to the formal application form, operators are also required to provide a detailed operational business plan, proof of financial capability, and evidence of the operator’s Rwandan business certificate of incorporation.

Submit documentation of full compliance

Once the operator has submitted a formal application, they will also be required to provide documents that outline that they have the necessary framework and procedures in place to ensure full compliance. This includes procedures that address anti-money laundering, responsible gambling, and player protection.

Software certification

Although an operator's legitimacy will be under intense scrutiny, so will the gaming software they wish to utilise. The RDB has outlined strict policies that any technology used in gambling operations must adhere to international standards.

In order to meet these standards, operators must obtain the relevant certification to accompany both the software and equipment they use. World-renowned testing agencies such as GLI, eCOGRA and iTech Labs have been recognised by the RDB as trusted agencies.

Once these initial steps are completed, operators will be well on their way to securing their Rwandan licence. Other things to be aware of include the ongoing supervision that will take place from the RDB, such as the required submission of various reports, audits, and inspections.

Starting up a business of any kind often incurs a significant initial outlay, and launching a casino or any gambling operation in Rwanda is no different.

Focusing solely on casinos, we break down the biggest expenditure for both land-based and online operations.

Some of these costs are obvious, but it is always better to be prepared than be hit with a surprise bill.

Land-based casinos

• Physical infrastructure:
  This includes your premises, equipment, machinery, tables, security, and everyday amenities.
• Personnel:
  There is a need for specially-trained staff such as security, croupiers, and compliance officers who all need to be qualified to comply with specific standards.
• Licensing costs:
  With a land-based casino, the licensing fee will vary depending upon the size and scale of the casino and its operation.

Online casinos

• Digital infrastructure:
  Whether an operator adopts a custom-built or white-label solution, the initial platform cost is a significant expense. Not only initially, but also the possibility for ongoing maintenance and development.
• Licensing costs:
  A non-refundable application fee must be paid, while annual licence fees are payable upon approval and must be maintained for the licence to stay valid.
• Certification:
  With most online casinos offering a multitude of different online games, each game needs to be tested and certified to a global standard; however, each test and certification comes at a cost. Additionally, software and games require regular updates, which can also be an added expense.
• Compliance costs:
  Regular auditing and software updates must be implemented to remain compliant.

Further information regarding licence fees can be found on the Rwandan government website.

Casino licensees will be required to pay two taxes on a monthly basis:

Gaming tax:
13% of gambling proceeds. Payable if proceeds are negative.

Withholding on payment (WOP) on gaming:
15% of gambling proceeds exceeding RWF30,000. Operators withholds the tax if proceeds are positive.

See the Rwanda Revenue Authority website for more information.

A new era for the Rwandan gambling industry is under way, with the 2024 Gambling Policy showing the country's intent to make betting a significant factor in the national economic landscape going forward. 

Curating strict standards that support responsible gambling, developed through collaboration with global experts, Rwanda has produced a robust, transparent, and government-supported ecosystem. 

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