Rwanda’s Expanding Defence Diplomacy: A Global Footprint
Rwanda has significantly bolstered its international defence cooperation, establishing 43 agreements, with nearly half of these pacts inked in the last three years. This surge in defence diplomacy is closely aligned with the establishment of the Directorate General of International Military Cooperation (IMC) three years ago, a move designed to centralise and professionalise Rwanda’s external defence engagements. The IMC has since become a pivotal unit within the Ministry of Defence, reflecting a growing international demand for Rwandan military expertise across Africa and beyond.
Brig Gen Patrick Karuretwa, Director General of the IMC, explained that these Memoranda of Understanding (MoUs) create the essential legal and regulatory framework for bilateral engagement. However, he emphasised that the agreements are merely the foundation, with the actual cooperation extending far beyond their stipulated terms.
Spectrum of Defence Cooperation
The MoUs encompass a broad array of defence activities, including:
- Joint Training: Collaborative exercises and skill development.
- Professional Military Education: Sharing knowledge and best practices in military training and doctrine.
- Intelligence and Information Sharing: Exchanging vital information to counter threats.
- Counter-Terrorism: Joint efforts to combat terrorist organisations.
- Cyber Security: Cooperation in defending against digital threats.
- Logistics: Streamlining the supply chain and support for military operations.
- Defence Acquisition: Collaborating on procurement and development of military equipment.
- Peace Support Operations: Contributing to international peacekeeping efforts.
- Defence Industry Cooperation: Exploring opportunities for collaboration in the defence manufacturing sector.
Once an agreement is signed, it is operationalised through joint committees that meticulously define priorities, activities, and implementation timelines, ensuring effective execution of the agreed-upon cooperation.
Brig Gen Karuretwa highlighted the dynamic nature of these partnerships, stating, “This year alone, we signed nine MOUs across Africa, Europe, and Asia. We also have 21 more in the pipeline.” He further elaborated that much of Rwanda’s military engagement unfolds through continuous training exchanges, advisory missions, and operational coordination, often without extensive public fanfare.
Africa: The Core of Rwanda’s Defence Partnerships
Africa constitutes the largest share of Rwanda’s defence partnerships, a strategic focus that Karuretwa described as intentional. “Rwanda has established itself as a security provider on the continent. That shapes where we focus,” he stated. This positioning is further reinforced by Rwanda’s expanding operational footprint.
Beyond its consistent contributions to United Nations peacekeeping missions, Rwanda has actively participated in bilateral military operations to support African governments confronting severe security threats. Notable deployments include those in Mozambique and the Central African Republic (CAR), distinguished by their scale, swiftness, and visibility.
Mozambique: Combating Insurgency
In Mozambique, Rwandan forces were deployed in July 2021 at the formal request of the government to combat and defeat terrorist groups in Cabo Delgado, stabilise affected areas, and facilitate security sector reform. According to the Rwanda Defence Force (RDF), insurgent forces have since been significantly degraded and expelled from major population centres, with remaining elements confined to remote forested regions.
Government authority has been re-established across Mocímboa da Praia and other key districts. Displaced civilians have begun returning to their villages, schools have reopened, and vital transport routes connecting the region to national corridors are now operational. State services have resumed, and economic activity is gradually recovering. Rwandan forces have also been instrumental in confidence-building measures and security sector reform, including outreach activities, medical assistance in remote areas, and the facilitation of basic infrastructure such as schools and markets. The overarching objective, Karuretwa noted, has been to empower host nations to sustain security gains independently.
Central African Republic: Stabilisation and Protection
In the Central African Republic, Rwanda maintains infantry battalions, a battle group, a level-two hospital, and staff officers, operating under both bilateral arrangements and UN mandates. The focus in CAR has been on civilian protection, stabilisation efforts, and providing support to national forces. Karuretwa remarked, “These were situations where almost all other approaches had failed. Rwanda projected its forces thousands of kilometres away and achieved decisive impact within months.”
Global Peacekeeping Contributions
Beyond these high-profile bilateral deployments, Rwanda remains a significant contributor to UN peacekeeping operations. The country fields over 2,000 personnel with the UN Mission in South Sudan (UNMISS), aviation units, military observers in Abyei, and additional contingents in CAR. These deployments form the bedrock of Rwanda’s international military engagement, even as UN missions grapple with funding pressures and downsizing.
A History-Informed Approach to Security
Karuretwa traced Rwanda’s proactive defence posture to its own history, particularly the tragic events of 1994. “A lot of what we do in defence cooperation is motivated by what happened here in 1994,” he stated. “Rwanda was the recipient of the worst possible failure of international intervention.” This formative experience, he explained, shaped Rwanda’s decision to transition from being a recipient of peacekeeping to becoming a provider. “We reject indifference; ten years after the genocide, Rwanda joined peacekeeping to make sure we are never passive in the face of mass violence again.”
The strategic rationale behind Rwanda’s engagement has evolved in tandem with shifting threat landscapes. The proliferation of armed groups, terrorist networks, and transnational criminal organisations operating across borders necessitates international cooperation, as national responses alone are often insufficient. “Many threats start local, become national, then regional. That reality demands cooperation and early engagement.”
This context helps explain the consistent rise in requests for Rwanda’s involvement in security operations. Karuretwa pointed out that prior to its deployment in Mozambique, Rwanda had no existing defence cooperation agreement. An MoU was specifically negotiated to establish the legal framework for the intervention, demonstrating a targeted and urgent response. Requests are not confined to direct combat support; many partnerships prioritise advisory roles, training, intelligence cooperation, and capability development. Karuretwa acknowledged that “Certain countries have more to offer than others. Trust and alignment of interests matter.”
This trust has translated into significant diplomatic capital. Last month, Kigali hosted the annual Land Forces Commanders Symposium, attracting approximately 30 countries from Africa, the Middle East, and Europe – an unusually broad turnout for a nation of Rwanda’s size. Karuretwa viewed this as a clear indicator of “confidence in Rwanda as a respected and reliable partner.”
Navigating Scrutiny and Embracing “Smart Power”
The expansion of Rwanda’s military support has also brought increased scrutiny. While its security engagements have garnered praise, they have also attracted criticism, particularly as they extend beyond traditional peacekeeping mandates. “When you engage at this level, attention follows,” Karuretwa observed. “Some of it is positive. Some of it is not.”
He maintained that Rwanda’s approach is deliberate and consultative. Before deploying forces to Mozambique and the CAR, Rwanda engaged with neighbouring states and regional organisations to articulate its objectives and secure non-objection, aiming to minimise misinterpretation and political friction.
Karuretwa framed Rwanda’s growing international influence through the lens of “smart power,” a strategy that synergises military capability with diplomatic leverage. “Through operations, training, joint exercises, and sharing experience, we increase our reach and influence. That benefits us.” Looking ahead, Karuretwa anticipates that future agreements will become increasingly targeted, addressing specific capability gaps and emerging threats while remaining aligned with Rwanda’s broader national interests. “The more we engage, the more sophisticated we become at making these partnerships work. IMC was created only three years ago, but today it is one of the busiest departments because so many countries want to work with us.”
