REPUBLIC OF RWANDA

MINISTRY OF INFRASTRUCTURE

RWANDA ENERGY POLICY

17th March, 2015

1
CONTENTS
LIST OF ACRONYMS AND ABBREVIATIONS .................................................................................... 3
FOREWORD ................................................................................................................................. 5
EXECUTIVE SUMMARY ................................................................................................................. 6
CHAPTER ONE: POLICY CONTEXT .................................................................................................. 8
1.1. COUNTRY OVERVIEW .............................................................................................................. 8
1.2. NEED FOR AN ENERGY POLICY FRAMEWORK AND SECTOR CHALLENGES............................... 8
1.3. SECTOR OVERVIEW ...............................................................................................................11
CHAPTER TWO: ENERGY POLICY VISION, MISSION, GOALS, KEY PRINCIPLES AND OBJECTIVES ...... 14
2.1 VISION ...................................................................................................................................14
2.2 MISSION ................................................................................................................................14
2.3 OVERARCHING POLICY GOALS ..............................................................................................14
2.4 KEY POLICY PRINCIPLES AND PRIORITIES...............................................................................15
2.5 ELECTRICITY...........................................................................................................................18
2.6 ELECTRICITY ACCESS ..............................................................................................................20
2.7 ENERGY EFFICIENCY AND DEMAND-SIDE MANAGEMENT ....................................................21
2.8 BIOMASS ENERGY .................................................................................................................23
2.9 PETROLEUM ..........................................................................................................................25
CHAPTER THREE: POLICY PRINCIPLES ON CROSS CUTTING ISSUES ................................................ 27
3.1 CAPACITY BUILDING ..............................................................................................................27
3.2 REGIONAL INTEGRATION ......................................................................................................27
3.3 ENERGY DATA COLLECTION AND STATISTICS ........................................................................27
3.4 ENERGY STANDARDS .............................................................................................................28
3.5 RESEARCH, DEVELOPMENT & TECHNOLOGICAL INNOVATION .............................................28
3.6 ENERGY SECURITY AND DISASTER MITIGATION ....................................................................29
3.7 INTEGRATED PLANNING AND SECTOR GOVERNANCE ..........................................................30
3.8 GENDER-BASED EQUITY, ENVIRONMENTAL SUSTAINABILITY AND CLIMATE CONCERNS .....30
CHAPTER FOUR: LEGAL, REGULATORY, AND INSTITUTIONAL FRAMEWORK ................................. 33
4.1 LEGAL AND REGULATORY FRAMEWORK AND IMPLICATIONS OF REVISED POLICY ...............33
4.2 INSTITUTIONAL FRAMEWORK ...............................................................................................33
CHAPTER FIVE: POLICY MONITORING AND IMPLEMENTATION PLAN ........................................... 37
LIST OF ANNEXES ....................................................................................................................... 39

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LIST OF ACRONYMS AND ABBREVIATIONS

BEST Biomass Energy Strategy

BTC Belgian Technical Cooperation
CDM Clean Development Mechanism
CFL Compact Fluorescent Lamp
DRC Democratic Republic of Congo
DSM Demand-Side Management
EAC East African Community
EDCL Electricity Development Company Limited
EDPRS Economic Development and Poverty Reduction Strategy
REP Rwanda Energy Policy
ESSP Energy Sector Strategic Plan
EUCL Electricity Utility Company Limited
EWSA Energy Water and Sanitation Authority Ltd.
FONERWA Rwanda National Climate Fund
GDP Gross Domestic Product
GHG Green House Gases
GoR Government of Rwanda
GiZ German Technical Cooperation Agency
HFO Heavy Fuel Oil
IPP Independent Power Producer
JADF Joint Action Development Forums
KWh Kilowatt-hour (Unit of energy)
LPG Liquefied Petroleum Gas
MIGA Multilateral Investment Guarantee Association
MIGEPROF Ministry of Gender and Family Promotion
MINAGRI Ministry of Agriculture and Animal Resources
MINALOC Ministry of Local Government
MINECOFIN Ministry of Finance and Economic Planning
MINEDUC Ministry of Education
MINICOM Ministry of Trade and Industry
MININFRA Ministry of Infrastructure
MINIRENA Ministry of Natural Resources
MoU Memorandum of Understanding
MT Metric tones
MTEF Medium Term Expenditure Framework
NAMA Nationally Appropriate Mitigation Action
NCST National Commission of Science and Technology
NDBP National Domestic Biogas Programme
National Standards Inspectorate, Competition and Consumer Protection
NICA Authority
NIRDA National Industrial Research and Development Agency

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PMO Prime Minister’s Office
PPA Power Purchase Agreement
PPP Public-Private Partnership
PSF Private Sector Federation
PV Photovoltaic
RSB Rwanda Standards Board
RDB Rwanda Development Board
RECO Rwanda Electricity Corporation
REG Ltd Rwanda Energy Group Limited
REFIT Renewable Feed-in Tariff
REMA Rwanda Environment Management Authority
RET Renewable Energy Technology
RURA Rwanda Utilities Regulatory Authority
RWASCO Rwanda Water and Sanitation Corporation
RT&D Research Technology & Development
SACCos Savings and Credit Cooperatives
SEZs Special Economic Zones
SPDs Small-Scale Power Distributors
SWAp /eSWAp Sector Wide Approach / Energy Sector Wide Approach
SWG Sector Working Group
TVETs Technical and Vocational Education Training Centers
UNECA United Nations Economic Commission for Africa
UNEP United Nations Environment Program
UNFCCC United Nations Framework Convention on Climate Change
VAT Value Added Tax

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FOREWORD

Energy is pivotal to most of the challenges and opportunities the world faces
today. Whether one speaks of maintaining national stability, economic growth, protecting
ecosystems or promoting social equity, they all hinge at least to some degree on access to
secure and sustainable energy. In Rwanda, energy is a critical productive sector that can
catalyze broader economic growth and contribute significantly to facilitating the
achievement of the country’s socio-economic transformation agenda.

This Energy Policy has been elaborated to guide and influence decisions on the extraction,
development and use of Rwanda’s energy resources in a transparent and sustainable
manner. The policy framework outlined herein comprises a set of governing laws and
regulations, strategic directions and guiding principles that Rwandan institutions and
partners shall adopt and adhere to, in subsequent implementation of actions. The vision of
the energy sector is to become one of Rwanda’s most dynamic sectors and investment
destinations. In addressing both demand and supply side issues across all key sub-sectors,
this policy will contribute to realizing that vision. The energy policy is founded upon three
essential government principles:

i. A resolve for transparent and effective sector governance

ii. Easing doing business and reducing barriers to private investment

iii. Enhancing institutional, organizational, and human capacities as well as the legal and
regulatory framework.

The Energy Policy and the Energy Sector Strategic Plan (ESSP) are mutually reinforcing.
Whereas the policy outlines a long-term vision, provides high-level goals, and recommends
clear and coordinated approaches for achieving that vision, the ESSP outlines targets and an
implementation framework against which to measure progress towards the realization of
the policy. In this way, the policy can guide the actualization of aligned implementation
strategies, while the ESSP outlines the priority strategies and actions that give practical
thrust to the policy.

The Ministry of Infrastructure is grateful to all stakeholders who provided very useful inputs
into enriching this Policy document and the Technical Team both at the Ministry of
Infrastructure and other sister Ministries, who worked really hard to complete the
development of this document.

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EXECUTIVE SUMMARY

Energy is the life-blood of development. The energy sector plays a pivotal role in supporting
socio-economic transformation and has an inherently systemic link to the growth of other
sectors of the economy. Since energy is a critical input to other key economic sectors, such
as manufacturing, construction, mining and quarrying, agro-processing, transport, and
tourism, a sound and comprehensive Rwanda energy policy is critical for economic
growth.1Investments in the energy sector generate fiscal revenues through taxes, levies, and
other duties imposed on various sector activities such as petroleum products imports (fuel
oils and LPG) as well as tariffs on electrical consumption (18% VAT), supporting the country’s
resource envelope. In order to achieve sustainable economic growth, an enabling
environment and policy framework is needed to facilitate new energy investments that
meet the needs of Rwandan consumers.

Ensuring access to modern, sustainable, and affordable energy services is integral to

Rwanda’s economic development, poverty eradication and socioeconomic transformation
agenda.2 Lack of modern energy services stifles income-generating activities and hampers
the provision of basic services such as health care and education. In addition, smoke from
polluting and inefficient cooking, lighting, and heating devices is a leading contributor to
respiratory diseases and death in Rwanda.3 Where provision of cost effective, appropriate
solutions to the poor is enabled, particularly in rural areas where energy services are scarce
or expensive, poverty reduction can occur. Additionally, shifting consumption from biomass-
based energies to clean energies like electricity and LPG reduces pressure on forest
resources, protecting land arability and mitigating climate change through sustainable
environmental conservation.

Increased, broadly shared prosperity also hinges upon developing the energy sector as key
pillar or engine of economic growth. In the household sector, energy services for cooking,
lighting, heating, brewing, firing, boiling, ironing, and operating electric appliances are
important to maintaining human security, good health and quality of life. A modern, more
service-industry based, industrialized economy requires predictable, sufficiently available,
competitively priced energy commodities (e.g., electricity and petroleum products). This
drives agricultural mechanization, increasing returns per hectare and people’s disposable

1
According to the Ministry of Trade and Industry, Rwanda’s 2013 industrial production expanded by 11% compared to
4.6% for the economy as a whole. This growth was primarily driven by the construction sector and mining activities.
2
According to the UN Foundation almost 3 billion people rely on traditional biomass for cooking and heating, and about 1.5
billion have no access to electricity, with 1 billion more having access only to unreliable electricity networks.
3
Smoke from polluting and inefficient cooking, lighting, and heating devices kills over four million people globally a year.
Global Burden of Disease Issue, The Lancet, December 2012.
6
income. Petroleum products drive the transport sector and petroleum price movements
impact on macroeconomic balances. Distributed energy solutions support business creation,
productivity, and entrepreneurship in rural areas, widening the tax base and supporting the
socioeconomic transformation agenda. The manner in which energy investments and access
programs are designed can also strongly support government policies on boosting youth
productivity and employment.4

In order for the energy sector to leverage a most positive impact on the other sectors in a
way that supports Rwanda’s development and socioeconomic transformation agenda, the
Rwanda Energy Policy has been elaborated. This policy is well aligned to the country’s
overall long-term economic policies and calls upon various institutions to undertake
measures that support private sector growth and socio-economic transformation as
reflected in the Medium Term Economic Development and Poverty Reduction Strategy for
2013-2018 (EDPRS-II). This policy offers high level guidance on the development of
Rwanda’s energy sector in a manner that fulfills the sector commitments. The energy sector
and industry is complex, encompassing multiple subsectors, including electricity, biomass
and petroleum. The wide-ranging objectives and planning frameworks contained herein cut
across all sub-sectors of the energy, and likewise address issues related to upstream
exploration, production, transportation, pricing, distribution and consumption.

While the ESSP and Rwanda Energy Policy are mutually reinforcing, the latter provides high-
level direction on the longer-term goals, priorities, and approaches needed in the sector. In
this way, the energy policy directives support the development of harmonized
implementation strategies and action plans that are clear, well-coordinated, and aligned to
EDPRS-II. Closely linked to the policy, the laws and regulations of the sector act as a solid
foundation upon which to base actions; these are principally concerned with the conduct,
rights and operational constraints affecting the market-place and policy delivery.

The ESSP is a more focused action plan that measures short-term progress toward long-term
goals and objectives. It also takes into account anticipated resource constraints and
risk/uncertainties in the implementation strategies. The ESSP shall be updated at minimum
on an annual basis. Falling underneath the ESSP, and in parallel to the ongoing least cost
power development plan, sub-sector implementation Action Plans owned by the relevant
ministries (and generally not subject to Cabinet approval) shall be elaborated. These shall be
developed for seven priority areas in the electricity sub-sector, including: hydropower,
methane gas, geothermal, bioenergy, solar power, peat and efficiency and demand-side
management. The action plans shall be aligned to the overall policy objectives.

4
These are key thematic areas of EDPRS II which targets the creation of 200,000 off-farm jobs per annum.

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CHAPTER ONE: POLICY CONTEXT

1.1. COUNTRY OVERVIEW

Rwanda is a small land-locked country of 26,338 km2 in area with a population of 11,689,696
people (national census, 2012). It is a densely populated country in comparison to other
African countries. In 2014, GDP was 643 USD/capita. Rwanda’s economy has been growing
at an annual average rate of 8.3% and government is targeting to achieve an annual average
growth rate of 11.5% over the EDPRS II period (2013-2018). Ensuring access to affordable
and modern sources of energy is essential to achieve the EDPRS II objectives.

1.2. NEED FOR AN ENERGY POLICY FRAMEWORK AND SECTOR CHALLENGES

There are several reasons why a Rwanda National Energy policy is required. Firstly, the lack
of a modern, long-term approved energy policy is widely recognized by stakeholders as
contributing to coordination failures and institutional underperformance. The current
document reflects a revision to a national policy that was drafted in 2011. Although used as
a guiding framework, this policy was never formally approved by Cabinet. Prior energy
policies include a 2004 Energy Policy that largely responded to emergency energy security
considerations, rather than addressing a broad range of issues, as well as a proposed policy
elaborated in 2008, following EDPRS I, that was rejected by the Cabinet.

Secondly, a general policy shift is required due to underlying changes in the country. The
economy has experienced stable growth for some time, and power supply crises have
stabilized. Rwanda’s population is growing quickly and is projected to reach 14 million by
2020 and 16.4 million people by 2030.5 In the household sector, essential energy services
for cooking, lighting, heating, brewing, firing, boiling, ironing, and operating electric
appliances is thus expected to grow significantly. At the same time, Rwanda currently has
low levels of access to modern energy carriers such as electricity and LPG. This marked
energy poverty constrains efforts to achieve medium-term thematic and macroeconomic
objectives of the EDPRS II, including attaining middle income status by 2020.

The current electricity tariff is relatively high compared to other countries in the region and
heavily subsidized.6 High relative energy costs and unreliable power supply dis-incentivize
stronger industrial growth and business expansion. This particular challenge is perceived as
most critical in the manufacturing, mining, and agro-processing sectors. Power cuts,

5
These represent base-case population growth scenarios according to the Rwandan National Institute of Statistics.
6
Review of Current Electricity End User Tariffs: Final Report to RURA by Energy & Economics Consulting, 30 April 2014.
8
unstable power supply conditions, and uneven power quality are additional constraints to
industrial sector growth.

Thirdly, EDPRS-II calls for an unprecedented degree of investment in Rwanda’s emerging

energy systems and markets to come from the private sector. This major shift requires new
policies and strategies to leverage private capital and facilitate private sector engagement
and partnership. A transparent and stable policy framework will be critical.

The policy needs to address the following critical sector challenges:

i. Energy security and a sound demand-supply balance;

ii. Dramatic increase in access to modern energy services;
iii. Improvement and streamlining of stakeholder coordination to ensure effective
partnership and delivery on set targets;
iv. Need for a robust legal and regulatory framework required;
v. Necessity for an institutional, organizational, and human capacity development;
vi. Inadequate infrastructure requiring huge investment;
vii. High cost of fuel for electricity generation;
viii. Vulnerability to climate change.

In addition, the development of relevant policies for the energy sector mandates that, the
key issues that affect the supply and demand of energy in Rwanda be delineated. Broad
issues of the energy sector in Rwanda include the following:
i. Inadequate co-ordination and information sharing between/or among the various
projects, government bodies, the private sector and civil society organizations;
ii. Lack of investment;
iii. Inadequate energy planning information system (energy supply and demand
analysis);
iv. Lower rate of access to modern energy;
v. Inadequate financial resources to plan for and monitor the energy sector and
carry out appropriate research and development (R&D);
vi. Lack for appropriate curricula in energy studies at many institutions of higher
learning;
vii. Inadequate human resource and institutional capacity.

For each of the energy-sub sectors there are specific issues to consider, which are given
below. The various energy sub-sectors include the following:
 Electricity;
 Petroleum;
 Biomass;
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  Energy Efficiency and Demand Side Management.

1.3.1 Electricity

The electric power sub-sector issues in Rwanda include the following:

i. Insufficient investment to develop electricity generation, transmission and
distribution projects including the interconnection projects that can facilitate and
enhance the energy trade;
ii. Large technical and non-technical electricity losses;
iii. Inadequate maintenance;
iv. High costs of supply due to the past insufficient investment in power generation,
transmission and distribution and sometimes coupled with a very low
operational efficiency and lack of financial planning;
v. Lack of cost reflective tariffs;
vi. Lower electricity access;
vii. Low quality of electricity supply and customer service;
viii. Inefficient commercial operations in terms of lack of an accurate customer
database, inadequate systems and controls for meter reading and high accounts
receivable.

1.3.2 Petroleum

The petroleum sub-sector issues include the following:

i. The evolution of prices, in particular, oil prices on the international market
impacts negatively on the balance of payments of oil-importing and renders the
cost of energy supply unbearable;
ii. High transport costs due to insufficient transport facilities and being landlocked;
iii. Inadequate quality control of the fossil fuels products, posing an increasing
hazard to public health and the environment.

1.3.3 Biomass and other Renewable Energy Sources

Issues of Biomass and other renewable energy sources include the following:

i. Inefficient production and use of wood-fuels resulting in the depletion of forest

resources, which, in turn, has an adverse environmental impact in terms of
accelerating climate change, threatening biodiversity and increasing erosion. It also
has an adverse impact on the health of wood-fuels users, especially in rural
households;
ii. Low public awareness about the efficacy and potency of renewable energy
technologies (RETs);

10
 iii. Little production of equipment and components and underdeveloped markets in
RETs equipment and services because of high initial investment cost and lack of
financial capacity to cover the initial investment;
iv. Lack of mechanisms to monitor standards and ensure quality control of RETs: the
poor quality of some technologies available on the market reduces their lifetime and
damages the image of RETs;
v. Inadequate financing mechanisms;
vi. Inadequate data available on the potential of indigenous renewable energy sources
(geothermal, solar, wind, peat, methane gas, mini and micro hydro);
vii. Shortage of local actors capable of carrying projects financially, technically, and in
terms of management; and
viii. Institutional, policy, fiscal and regulatory barriers.

1.3.4 Energy Efficiency and Demand Side Management

Energy efficiency and demand side management issues include those generic issues for the
major sectors which include transport, industry, households and agriculture.
Accordingly, energy efficiency and demand side management issues include the following:

(i) Low level of awareness among energy end users about energy conservation
practices, options and benefits and insufficient information about improved energy
technologies;
(ii) Insufficient incentives, including financing mechanisms to invest in modern efficient
technologies and practices and to introduce fuel / technology substitution, e.g., LPG,
kerosene, solar, more efficient fuel technology, for wood-fuels;
(iii) Dominance of energy-inefficient technologies, including traditional stoves; lights and
other appliances.

These critical sector challenges and sub-sector issues can only be addressed through a clear
energy policy framework.

1.3. SECTOR OVERVIEW

The energy sector in Rwanda consists of four components: Electricity, Biomass, Gas and
Petroleum, with each playing a key role in Rwanda’s transition to a middle income country
by the end of the decade.

Although Rwanda has had considerable success over recent years in addressing issues
related to environment to the extent that it’s one of only a few countries in Africa where
there is not a major link between biomass and the negative environmental effects of
deforestation, social and health problems emanating from the use of biomass need to be
11
solved. The government is promoting the use of alternative fuels such as biogas from animal
and plant waste. This will not only save lives but also free up the time spent by women and
children in collecting firewood, giving them more time to study and undertake more
productive commercial activities.

The use of electricity is required for both low consumption devices and large consumers.
Our priority is to extend the network to allow productive and heavy users of electricity
across the country to connect to the grid. For lighter users of electricity, grid connections
are unlikely to make economic sense in the short term and as such, off-grid will be
preferred. The government intends to provide 70% of the population with access to
electricity both on-grid and off-grid by the end of EDPRS II which is now at 23%.

To keep pace with the increased demand for electricity, the government will ensure
increased electricity generation capacity above the current capacity of 160 MW (March
2015). Diversifying away from diesel generation will enable the government to maintain a
regionally competitive tariff whilst eradicating subsidies to the electricity tariff. There is
considerable private sector interest in electricity generation from Rwanda’s indigenous
resources.

Petroleum subsector’s objective is to ensure safe, sufficient, reliable, sustainable and

affordable supply of petroleum and LPG. Currently, Rwanda depends entirely on imported
fuel products, because its petroleum resources are yet to be commercially proven and
developed. Rwanda plans to expand domestic exploration and production, boosting
investment in supply and storage infrastructure, and promoting sound management of
downstream resources.

1.3.1. Electricity

Total installed electricity generation capacity is currently 160 MW, of which roughly more
than 60% comes from hydrological resources and less than 40% from diesel-powered
generators and other sources.7 Rwanda has a very pronounced peak demand load and
hence supply is occasionally unable to match demand in these peak hours. The current on-
grid access to electricity is estimated at 23% of households.

National Electricity Consumption: The cost of electricity is currently not cost reflective and
heavily subsidized. The diesel fuel and heavy fuel oil required to run petroleum-based power
plants represents a large share of the total national import burden, and is one factor driving
the high cost of electricity and currency depreciation. The loss estimate of 2014 in the
power system (both technical and non-technical) was 23%.

7
EWSA, Grid Audit Report, 2013.
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1.3.2. Petroleum

Currently, Rwanda depends entirely on imported fuel products, because its petroleum
resources are yet to be commercially proven and developed. Petroleum consumption
increased in absolute terms by over 16% between 2000 and 2012, yet the oil import bill
grew by more than 700% in the same period. As a share of GDP, oil imports increased from
about 2.5% in 2000 to above 5.5% by 2012. Still, this level of growth has been relatively
more modest compared to Rwanda’s neighbours. The demand for petroleum products will
continue to rise on account of increased transport vehicles and expansion of the fleet for
the National airline. The reduction of imported diesel for electricity production will be more
than off-set by the increased need for petroleum products in transportation, particularly
aviation and heavy industry.

1.3.3. Biomass

In Rwanda, biomass energy subsector covers mainly wood, charcoal, biogas and biofuels.
Biomass resources are exploited in form of firewood, charcoal or agricultural residues
mainly for cooking purposes by households and also in some industries 8. Country-wide,
biomass meets up to 85% of energy needs; with the balance being met by other options
such as kerosene, diesel, dry cells, grid and non-grid electricity, biogas, solar, wind and other
renewable energies. Biomass is already in short supply with the country facing a biomass
deficit of over 4 million m3 per year9. Although fuel wood consumption is expected to
increase in the short-term, the long-term strategy of the EDPRS II is to reduce fuel wood
consumption from 85% to 50% by 2018.

Rwandan households will not eliminate the use of wood fuels in the short run. Instead, as
the economy develops wood fuels will be phased out where it makes sense. This will be
supported with the introduction of enabling frameworks for use of LPG and other
alternatives including solar and thermal applications, particularly in urban and semi-urban
areas.

8
MININFRA, 2008
9
BEST Strategy, 2009
13
CHAPTER TWO: ENERGY POLICY VISION, MISSION, GOALS, KEY PRINCIPLES AND
OBJECTIVES

2.1 VISION

The vision of the energy sector is to contribute effectively to the growth of the national
economy and thereby improve the standard of living for the entire nation in a sustainable
and environmentally sound manner.

2.2 MISSION

The mission of the Rwanda energy sector is to create conditions for the provision of
sufficient, safe, reliable, efficient, cost-effective and environmentally appropriate energy
services to households and to all economic sectors on a sustainable basis.

2.3 OVERARCHING POLICY GOALS

The overall goal of the policy is to ensure that all residents and industries can access energy
products and services that are sufficient, reliable, affordable, and sustainable. 10 Specific core
global objectives of the energy policy include:
 Ensuring the availability of sufficient, reliable and affordable energy supplies for all
Rwandans;
 Creating an enabling environment for increased private sector participation in
energy supply and service provision;
 Encouraging and incentivizing more rational, efficient use of energy in public
institutions, and amongst industrial and household end-users;
 Ensuring the sustainability of energy exploration, extraction, supply, and
consumption so as to prevent damage to the environment and habitats;
 Promoting safe, efficient, and competitive production, procurement, transportation,
and distribution of energy;
 Developing the requisite institutional, organizational, and human capacity to
increase accountability, transparency, national ownership and decentralized
implementation capacity for sustainable energy service delivery.

Collaborating with the private sector, the Government will also work towards meeting
national, regional, and global targets to enhance access to modern energy services. Rwanda
is a signatory to the United Nations Sustainable Energy for All Initiative (SE4ALL), and is in

10
Sustainable energy use is the practice of providing energy solutions in a manner that meets the needs of the present
without compromising the ability of future generations to meet their needs (Renewable Energy and Efficiency Partnership,
August 2004). Not all energy resources are renewable in human lifetimes. For this reason, wasteful or inefficient use of
resources could well lead to reduced security and affordability for future generations of Rwandans.
14
the process of preparing a detailed road map, Action Agenda, and investment prospectus.
Rwanda is also a signatory to the Regional Strategy on Scaling up Access to Modern Energy
Services adopted by the EAC Council of Ministers. In order to increase access, electricity and
clean fuels must be available and affordable. For this reason, policies herein aim to create a
sound enabling environment for;
 off-grid energy service provision including the development of distributed, small-
scale renewable energy solutions and business models; and
 Lean fuels energy service provision, including the development of infrastructure
and distribution for LPG and biogas.

2.4 KEY POLICY PRINCIPLES AND PRIORITIES

The following principles summarize Government’s guiding approach to energy development.

They reflect a need to balance and protect the interest of citizens and energy consumers,
private investors, and other stakeholders. They give high-level policy prescriptions on how
Rwanda’s energy resources should best be exploited, distributed, and utilized. These
foundational principles promote an enabling environment for successful achievement of
commitments reflected in the ESSP and future sub-sector action plans in the development
of specific policy directives and guidelines.

1) Building decentralized energy policy implementation capacity

A strong principle underlying the development and implementation of the energy policy is
the need to ensure strong national ownership over decision-making and to undertake
measures to empower local companies and Rwandan experts in fulfilling the vision of the
sector. This entails having a much stronger focus on building domestic human,
organizational, and institutional capacity. Local authorities are encouraged to include and
monitor obligations for providing improved energy services and access to clean energy
technologies. Moreover, energy issues should be regularly addressed in relevant integrated
development Steering Committees and Joint Action Development Forums (JADF).

2) Promote value-for-money and increased market competition in energy

development

Government shall establish transparent processes and guidelines for all energy project
procurement. Given the increased role of the private sector in the delivery of energy
projects and services, it is important to ensure that more competitive and transparent
practices are put into place.
Under the policy, competitive bidding of all energy-related projects, including independent
power production (IPP) generation activities, shall henceforth be the default procurement
option. This is vital to realize more market transparency and to ensure value-for-money in

15
the use of public funds.11 Provided a project still conforms to value-for-money principles,
exceptions may be warranted in cases of:

i. Urgent need. Ensuring continuity of supply or providing services rapidly due to

emergency situations;
ii. Public security. Where the project may directly pose a risk to public security or
involves matters pertaining to state security;
iii. Technological uniqueness. For example, when provision of the service
necessitates technology for which unique intellectual property, trade secrets, or
other exclusive rights are owned or possessed by a single firm or entity;
iv. Other compelling reasons in the national or public interest.

Projects in these categories may be procured through unsolicited proposals through the
signing of a MoU between a private party and the contracting authority.

3) “Smart” subsidies aligned to social protection principles.

In line with existing principles under EDPRS-II for improving the effectiveness of social
protection interventions, a gradual shift away from indiscriminate subsidies toward “smart
subsidies” shall be pursued for all energy related interventions. The latter term refers to
direct mechanisms that targets specific groups including the poorest, most vulnerable end-
users. Targeted “smart” energy subsidies and welfare support measures to ensure
affordability of energy services should be primarily targeted to vulnerable groups within the
limits of the state’s capacity.

4) Private operation of government owned power plants

In order to increase efficiency and create market opportunities for local business, where it is
deemed appropriate, government owned power plants shall be considered for lease to the
private sector for operation and management. Private operation of such projects tends to
always deliver advantages in terms of value for money and more reliable power supply.

5) Promoting private sector participation

Meeting the goals under EDPRS II entails both significant absolute levels of investment in
the sector and a much greater relative share projects being privately financed than ever
before. Government shall encourage and facilitate private sector participation in the
development of Rwanda’s energy resources and in all phases of energy project delivery,
including development, construction, financing, installation, maintenance and operations.
Increased participation by the local and foreign private sector is particularly encouraged in
the electricity supply and clean cooking fuels industry. Government shall pursue a variety of

11
It should be noted in this context that the application of a REFIT tariff for power procurement through IPPs would comply
with this principle, as there would be little room for negotiation of the set and transparent terms and conditions.
16
actions to enable marked growth in private sector as outlined in detail below.
i. Streamline investment promotion processes for IPPs.

IPP processes shall be streamlined by clarifying the exact steps, prerequisites, and
outcome milestones for each major stage of the investment process, (i.e., obtaining
an energy project concession). Resources shall be mobilized for establishing
integrated IT systems for tracking project development progress across key energy
sector players.

ii. De-risk investments through upstream resource assessments and pre-feasibility

studies

Commercial investment in Rwandan energy projects is constrained by high up-front

risk before energy resources are confirmed. Government will thus increase
investments in better energy resource assessments and resource mapping to de-risk
transactions and investments in the sector. Unless already taken into account under
mechanisms, such as the feed-in tariff for specific renewable energy resources,
Government may also invest in pre-feasibility or “proof of concept” studies as well as
feasibility studies and demonstration projects for technologies not yet commercially
“proven” or bankable.

iii. Accelerate and facilitate energy sector Public-Private Partnerships (PPPs)

PPP structures are particularly relevant for the energy sector, especially for complex
activities where risks are high and innovation can be harnessed from private sector
actors. Areas particularly suitable for PPP structures include: rural energy service
provision such as off-grid and mini-grid systems.

iv. Empower local enterprises to engage in energy sector

Government shall strive to create more favorable conditions for local enterprises to
do energy business in Rwanda including ensuring transparency and equity. For
example, the legal and regulatory framework for developing off-grid solutions will be
streamlined to attract more local private investors and operators. While provisions
to ensure that local content is a feature of new energy investments is already
incorporated into concession agreements, new policy measures include
standardizing “local content” guidelines suitable for different categories of projects,
incorporating clear language on requirements into PPAs, and systematically
monitoring compliance for local content participation.

Rwanda’s energy sector can be viewed as encompassing: electricity, energy efficiency and
demand-side management, electricity access, biomass, and petroleum. For each of these,
17
the following policy objectives define how it shall be sustainably developed in a manner that
can achieve the overall energy sector goals and objectives. The policy objectives have also
been elaborated to be consistent with the overall key principles of the energy policy.

2.5 ELECTRICITY

The main policy objective for the electricity sub-sector is to ensure sufficient, reliable,
sustainable and more affordable power supply. This will be achieved through the following
measures:
i. Revise and upgrade the existing policy, legal, regulatory, institutional, and
financial frameworks to support the rapid development of the electricity
industry;
ii. Diversify power generation resources over time and increase the share of clean
power in the total mix over time;
iii. Ensure supply is closely aligned to projected demand12, and better align
investment planning and funding mobilization more closely to a power
generation road map and master plan, a least-cost power development plan, and
an electricity sub-sector action plan;
iv. Enhance regional cooperation and trade in electricity, including investment in
transmission network development, to further improve security of supply;
v. Streamline IPP processes and fast track project delivery by securing long-term
funding for planned projects through a medium-term budget expenditure
framework, revising and expanding the existing Renewable Energy Feed-In Tariff
regime, developing new information management systems to streamline
procedures, and building greater capacity in planning, procurement, and
negotiating power transactions.

Additional, related policy objectives are outlined below.

Ensure cost-reflective electricity tariff

The policy aims to achieve a sustainable transition to a cost-reflective, yet affordable

electricity tariff. Addressing this challenge shall be met through a four-pronged approach:
i. Disaggregating tariffs by end-user categories in order to ensure that they fairly
reflect the relative contributions to the cost base;
ii. Increasing operational efficiencies and savings on the required revenues of the
utility;
iii. Reducing the long-run marginal cost of power generation through increased imports
and exploitation of alternative technologies; and

12
Peak demand is expected to exceed 400 MW by 2018 according to the latest estimations.
18
 iv. Implementing loss reduction and demand-side management programs to shave peak
demand load and grid reserve margin requirements.

Strengthen national electric power system

In order to improve the quality and security of electricity supply and to drive down long-
term costs, the GoR shall:

i. Increase investments in generation capacity, transmission and distribution

systems and rehabilitation;
ii. Reduce technical and commercial losses in the power system;
iii. Increase reserve margin between demand and supply to a necessary level;
iv. Develop transmission lines connecting Rwanda to neighboring countries.

Optimize the power mix

The policy aims to:

i. Increase the share of renewable energy in the power mix by exploiting indigenous
resources (i.e. hydropower, geothermal, solar, and methane gas);
ii. Refocus petroleum-based power generation to serve peak load and back-up power
demands;
iii. Manage the share between domestic production and imports in the total mix;
iv. Revise and update periodically power generation road map and investment plan
guided by a Least Cost Power Development Plan (LCPDP).

Enhance attractiveness of exploiting domestic energy resources for power generation.

Government will increase the attractiveness of domestic power generation to the private
sector by:
i. Initiating public-funded exploration and risk mitigation mechanisms;
ii. Funding energy resource mapping, pre-feasibility studies, upstream exploration, and
piloting of projects to gain a clearer picture of the extent to which domestic
hydropower, peat, solar and wind resources can generate power on commercially
viable, competitive terms;

Facilitate autonomous power generation

While autonomous generation investments are explicitly allowed for under the law, uptake
has nevertheless been slow. The establishment of private or self-generation power plants
for industrial or household purposes is explicitly allowed for under the Electricity law, with
generation under 50 kW installed capacity currently exempted from all licensing
requirements. Policy guidelines and regulations to more explicitly facilitate autonomous
generation shall be adopted, particularly those geared toward mining and agro-industries.
19
For example, the current Mining Sector Strategy intends to pilot “green” energy solutions
based on solar PV, micro-hydro, and bio-energy resources that could be developed by
mining companies as self-generation investments. In order to further streamline and
encourage such activities, measures to simplify licensing regulations for mini-grids or small-
scale power distributors (SPDs) shall also be extended to appropriate autonomous
generation activities. Guidelines and new regulations concerning autonomous generation
shall, however, continue to ensure the respect for existing laws on right of way and
expropriation in the event that any distribution infrastructure falls on public lands.

2.6 ELECTRICITY ACCESS

The main policy objective for the sub-sector is to enhance access to sustainable, modern
energy services for all Rwandans. This policy priority is reflected in political commitments
and targets that Rwanda has made at the global, regional, and national level. To a large
degree, making electricity services more affordable and extending consumer credit for grid
connection fees is pivotal to reaching this objective. Policies and a supportive regulatory
framework shall also be enacted to expand investment and private sector engagement in
off-grid electricity service provision, including through partnerships and innovative business
models.
Attaining energy access commitments will not only entail increased political will, but also
the development of a robust monitoring and evaluation framework that takes into account
a variety of criteria. The policy objectives in the sub-sector focus on:

i. Greater clarity on, and harmonization of, preferential approaches between grid
and off-grid energy access efforts for different target population groups;
ii. Piloting new approaches and scaling up innovative partnerships to increase
energy access through distributed renewable technologies;
iii. Introducing more flexibility and competition through measures to simplify
licensing and increase the attractiveness for private operators to service the off-
grid electricity market;
iv. Ensure 100% access to electricity in all schools, health centers and administrative
offices by 2018;
v. Scale-up innovative partnerships to increase rural access to appropriate off-grid
solutions;
vi. Introduce greater competition and flexibility in off-grid service provision.
vii. Develop financial support mechanisms for off-grid service provision and
consumption.

20
 2.7 ENERGY EFFICIENCY AND DEMAND-SIDE MANAGEMENT

The policy objective of the energy efficiency and demand-side management is to constrain
uncontrolled future energy consumption growth and to support realizing Rwanda’s Green
Economy vision. Given growing demand for electricity at household and industrial levels,
and the fact that Rwanda’s natural resources are more limited compared to other countries
in the region, actions to manage demand for electricity is an important and more prominent
thrust of the current policy. An increased focus on energy efficiency13, energy conservation,
and demand-side management activities is sensible. Fundamentally, it is also cheaper to use
energy more intelligently and efficiently than to meet demand by expanding energy
production unnecessarily.

Rwanda has a pronounced peak demand load, which is both a key factor for power
disruptions, because the existing power reserve margin is low, and a key driver for new
generation capacity investment. Measures that encourage efficient end-use technologies,
sound and optimally timed energy consumption practices, and other demand-side
management activities will play a critical role in shaving peak demand and maintaining the
affordability and reliability of energy services.

Energy efficiency will be promoted through a combination of approaches, including:

i. Incentivizing demand side management through changes in the electricity tariff
methodology;
ii. Mandatory regulations, such as new codes and standards;
iii. The introduction of economic incentives, such as subsidies for installation of
solar water heaters and for industrial end-users to undertake energy efficiency
audits;
iv. Barrier removal programs, for example, examining systemic disincentives or
reducing split incentives for energy-efficient technologies in buildings;
v. Pursuit of bulk procurement strategies, for example, importation of LED and CFL
lamps; and
vi. Other measures to promote alternative sources of energy for cooking, water
heating and purification, heating, cooling, and lighting.

Priority measures to be pursued in this area include:

Adopt new laws, regulations and codes that mandate energy efficiency measures

New laws and regulations will be developed to ensure that public institutions, households,
and commercial businesses support the energy efficiency objectives. Among these shall

13
Improving energy efficiency means using less energy to produce the same desired output.
21
include an Energy Efficiency Law as an umbrella framework to upgrade existing technical
guidelines. Responsible institutions shall introduce new building codes, reflecting provisions
for introducing of energy-smart and energy-efficient technologies and practices, including
passive solar design and rain water tank storage.

Restructure electricity tariff methodology to incentivize efficiency

A free-standing “demand charge” tariff component for all customers served through
medium-voltage lines will be initiated. This methodological change provides a stable,
continuous incentive for industries to conserve power and to shift consumption away from
peak periods.

Establish a demand-side management program within the Utility

A demand-side management (DSM) program or dedicated corporate unit shall be formed to

undertake planning and monitoring of all activities designed to modify consumer demand
patterns. The program will also implement load management programs that reduce demand
spikes and encourage end-users to shift consumption away from peak times. This program
shall also implement priority policies for reducing demand load under the direct control of
the Utility itself. Other measures to intensify the provision of consumer information,
education and technical advice towards the use and conservation of energy shall be
implemented and overseen by the DSM program.

Encourage and incentivize energy audits among commercial and industrial end-users

Major users of energy, particularly industries, shall be encouraged and incentivized to carry
out regular energy audits. The Rwanda Resource Efficient and Cleaner Production Centre
has already supported local industry with the successful implementation of a number of
audits that delivered bankable returns linked to savings on energy and other resource
inputs. The scope of such audits will include the feasibility of fuel switching from thermal
power to off-grid solar PV for agro-industries as well as measures to reduce leaks and
inefficiencies associated with petroleum consumption for mechanical and pumping activities
in industrial processes. MININFRA shall investigate the feasibility of developing an energy
efficiency facility that would provide matching grants to large energy end-users for the
purpose of undertaking energy efficiency audits and to provide incentives for investing in
the implementation of the audit recommendations. The savings from such investments
would be used to recapitalize the facility. In addition, advanced, high-efficiency power
generation technologies which could include shifting to cogeneration facilities shall be
investigated as part of the audits or whenever new feasibility studies are commissioned by
the utility.

22
Develop a regional standards and labeling scheme for common appliances

Appliance rating or labeling schemes are a very cost-effective policy measure for achieving
energy consumption savings. Providing information about the energy performance of an
appliance, particularly in comparison against a minimum and maximum benchmark,
incentivizes consumers to purchase more energy efficient products. It is critical that
consumers are better informed of the energy performance of appliances that they are
considering to purchase. RSB in collaboration with RURA and MININFRA shall establish an
ongoing working group to harmonize energy efficient labeling practices and standards for
appliances sold and imported in Rwanda and the EAC.

Promote and remove barriers to the implementation of priority efficient lighting

initiatives

Lighting is by far the most important use of electrical energy. Energy efficient lighting
programs’ impact will be enhanced through better program design, marketing plans, and
leveraging market-based incentives and private sector participation to maximum advantage.
An expansion of efficient lighting for public services, including street lighting in public
institutions and administrative buildings, shall be supported through the new strategy and
implementation programs.

Devise and implement “green” public procurement guidelines and strategies.

As a large energy consumer, government agencies and other public sector institutions play
an important role in implementing national energy efficiency targets. RPPA, REMA, and
MININFRA shall collaborate to develop clear energy efficiency criteria and guidelines that
can be incorporated into sustainable procurement policies and processes. These shall focus
on equipment with a high-energy footprint.

2.8 BIOMASS ENERGY

The main policy objective for the biomass sub-sector is to facilitate fuel-switching from
traditional biomass energy carriers toward modern biomass energy technologies and
cleaner fuel alternatives in order to achieve a more sustainable wood fuel balance and
reduce consumption of non-renewable biomass, and to deliver related social, health, and
environmental benefits. In addition to measures to promote switching to more sustainable
biomass energy technologies at household level, such as biogas, LPG, and peat briquettes,
among others, small-scale, commercially viable biogas projects including gasification of crop
residues will be promoted through inclusion under an expanded REFIT regime. Existing
biomass resources should be exploited in a manner that promotes greater sustainability of
supply, while reducing the negative impacts of harvesting to the environment and Rwandan
habitats.

23
MININFRA will develop strategies and action plans including capacity building and enhancing
market transformation.

The implementation of sustainable biomass energy programs focused on cleaner cooking

technologies shall be decentralized in order to accelerate delivery and improve impact.
MININFRA will continue to provide technical assistance through REG Ltd to the districts.

With support and guidance of MINALOC, district authorities will be required to incorporate
delivery of sustainable biomass energy technologies into their annual performance
contracts. This will promote more ownership. Districts will play a pivotal role in education
and awareness-raising, and the extension of government subsidy mechanisms and micro-
finance schemes. MINALOC shall monitor district development plans more closely for
meeting clean cooking targets and strategies. RSB shall elaborate updated national ICS
standards with the support of REMA, MININFRA, and the private sector and other
stakeholders.

Increase access to cleaner cooking technologies

In the medium-term, the policy vision foresees extensive fuel switching among households
to modern energy technologies and carriers including biogas, LPG, “green charcoal”, and
biomass pyrolysis stoves.

Measures to be adopted in biomass energy strategies include the following:

Social marketing/behavioural change models and partnerships with financial institutions

Since the economic rationale for some households to switch to cleaner cooking technologies
is limited by the fact that are able to collect wood fuel and biomass residues at no cost, a
much stronger emphasis will be placed on social and behavioural change campaigns in
implementation approaches.

Updated technology standards

In cooperation with other stakeholders, technology standard for biogas digesters and
installations shall be formulated and adopted building upon existing technical guidance.
Through new technology standards and regulations, alternative options to increase
consumer choice and affordability shall be promoted.

Subsidy reform

In cooperation with MININFRA, MINECOFIN shall reform the design, targeting and
administration of subsidies for biogas and other clean cooking technologies in order to
improve the impact and scale-up potential of existing programs.
24
Develop new policy and regionally-integrated market for sustainable liquid bio-fuels

A new bio-fuels policy shall be developed that harmonizes agricultural and land-use
approaches and that takes into account a much stronger regional integration dimension to
market development. A preliminary bio-fuel policy drafted by the former Institute of
Scientific and Technological Research (IRST) in 2008 to promote bio-diesel exploration,
production and use shall be updated and integrated into this policy in line with regional
policy approaches. Increasing the share of bio-fuels in Rwanda’s energy mix will increase
energy security by reducing dependency on imported petroleum products. Markets
particularly suitable for bio-fuels include public and agricultural transport vehicles and agro-
processing machinery by replacing petroleum fuels entirely with fuel produced from bio-
crops.

2.9 PETROLEUM

Rwanda’s petroleum sub-sector covers both upstream (petroleum exploration,

development and commercial production) and downstream (transportation- for crude and
refined products, refining, storage, distribution and marketing) activities. The sub-sector is
characterized by three main challenges: unreliable supplies and uneven product quality,
insufficient storage and distribution capacity, and high exposure or vulnerability to global
price volatility. In a global perspective, petroleum exploration and development activities
have become progressively more capital intensive, technologically complex, and
environmentally sensitive. Thus, it is essential that national policies are aligned to
international realities and best practice and sophisticated enough to ensure that
international companies and investment partners with the right mix of expertise and
technological know-how are enticed to operate in Rwanda in a manner that ensures
environmental sustainability and mutually beneficial cooperation from the extraction of
non-renewable, mineral rents.

The main policy objective for the sub-sector is to ensure safe, sufficient, reliable, sustainable
and affordable supply of petroleum and LPG. This entails expanding domestic exploration
and production, boosting investments in supply and storage infrastructure, and promoting
sound management of downstream resources and markets. Existing policies on upstream
development and downstream use have been developed by MINIRENA and MINICOM,
respectively. Investments shall be facilitated by: proving Rwanda’s national resources using
public funds; developing streamlining procedures for resource exploration and joint
ventures; increasing the transparency of the legal, regulatory and licensing framework;
developing technical standards and environmental management protocols; and opening up
the market to greater competition. A Downstream Petroleum Policy was adopted by Cabinet
in late 2012. It gives guidance on the transportation (of both crude and refined products),
refining, storage, distribution and marketing of petroleum products in Rwanda. In order to
25
address current sub-sector challenges, the Rwanda Energy Policy complements these and
reinforces the implementation of existing sub-sector policies through the following
objectives:
i. Accelerate regional cooperation and strategic infrastructure development;
ii. Ensure adequate storage infrastructure to maintain appropriate strategic reserve
levels;
iii. Enhance the effectiveness of price stabilization mechanisms;
iv. Improve data collection and enforcement of fuel quality standards;
v. Improving Liquefied Petroleum Gas (LPG) market and distribution infrastructure.

26
CHAPTER THREE: POLICY PRINCIPLES ON CROSS CUTTING ISSUES

3.1 CAPACITY BUILDING

Vision 2020 calls for the creation of a Knowledge Based Economy built upon continuous
upgrading of skills. Lack of capacity in both an institutional and technical sense is a genuine
bottleneck to economic growth and achieving the sector vision under the EP. Building
sustainable national capacity throughout the entire energy sector in both the private sector
and across the government agencies is thus a critical cross-cutting theme.
Clear strategies and operational guidelines on skills development, transfer, utilization, and
retention shall be adopted to better align curricula development in higher learning
institutions and TVETs to the sector strategy and workforce gaps.

Based on previous assessments and the results of the stakeholder consultations, priority
capacity building needs include strengthening and retaining staff resources and capacity in
energy sector to formulate and oversee policies, programs, and projects.

3.2 REGIONAL INTEGRATION

Rwanda energy policy and strategies need to better understand how regional energy
integration brings new energy security, challenges as well as opportunities. These issues
shall be formulated in subsequent policies and guidelines concerning energy security. For
example, regional power trading is expected to materially reduce the average cost of power
and the carbon intensity of the grid. On the other hand, supply guarantees and third country
guarantees on allocated power shares may, however, need to be put into place in order to
achieve energy security in a scenario with dramatically increased power trading. In addition,
while grid interconnections can mitigate the risk associated with excess supply in the event
of inaccurate demand forecasts, exporting power will only make economic sense if
Rwanda’s tariff becomes more regionally competitive.

3.3 ENERGY DATA COLLECTION AND STATISTICS

Good data is required for energy policy formulation and integrated energy planning.
Although proper data systems are costly, the lack of information and cross-cutting
challenges that arise from a lack of data are widely seen as a major capacity constraint in
the energy sector. MININFRA shall establish an energy sector information system or
depository that can serve as a central mechanism for integrated energy data collection,
management and dissemination. This system can be used as a key input to energy sector
planning and models that take into account all available energy resources and primary
consumption patterns to match investments with future demand.
27
Through this portal, government shall inform research and investment decisions by giving
easy online access to data and information to the public. The portal shall include all
available resource assessments and upstream feasibility studies that have been undertaken
to date.

3.4 ENERGY STANDARDS

Stronger public awareness-raising to inform target audiences of existing technology

standards and ensuring adequate enforcement of existing laws and regulations in a cost-
effective manner is absolutely fundamental to creating an enabling environment for cleaner
energy technologies and development pathways.

3.5 RESEARCH, DEVELOPMENT & TECHNOLOGICAL INNOVATION

In Rwanda, investments in energy-related research and development have been at very low
levels, both by the private and public sector. As most energy technology is imported (e.g.,
up to 80% of all power related equipment, such as turbines for hydro projects) average total
investment costs remain high. Investments in developing scientific and technological
infrastructure, manpower build long-term capacity and ownership, and contribute to socio-
economic transformation by reducing the cost of energy. Rwandan research institutions
need support to develop appropriate energy technologies, efficiency measures, and locally
appropriate guidelines for sustainable resource extraction and development.

The following policies will be adopted to advance research, development, technological

transfer and innovation in the energy sector:

i. MININFRA shall work with MINEDUC through NCST to drive this process. The
institutions shall also collaborate with Rwandan Universities to organize Energy
Research Symposium with private sector participation to enhance dialogue and
cooperation on practical energy research and technological innovation matters;

ii. To encourage private sector and academic institutions to undertake research in

developing and adopting new energy technologies to inform future investment
decisions, especially related to cleaner energy resources;

iii. Industrial training and practical skills related to energy shall be promoted
through technical and vocational colleges as well as through practical pupilage
programs;
iv. To develop specific mechanisms to encourage more academics and researchers,
particularly in the higher education sector, to focus their research on topics
aligned with national energy priorities.

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 3.6 ENERGY SECURITY AND DISASTER MITIGATION

Fuel supply shocks can result not only in economic, but also in political and social instability.
In the Rwandan context, “energy security” encompasses the following policy imperatives:
 Promoting self-reliance through the development of domestic energy resources to
the greatest extent feasible from an economic and technical perspective;
 Diversifying the energy mix (including power generation portfolio) to decrease
reliance on any one single resource;
 Limiting the degree of power imports to within a reasonable threshold to mitigate
supply risk linked to political insecurity or technical system failures beyond Rwanda’s
control;
 Having a sufficient level of energy commodity reserve stocks or capacity;
 Improving the preparedness for, and resiliency to, exogenous market shocks,
including price spikes;
 Ensuring a consistent availability of public funds committed to co-finance major
energy infrastructure projects with the private sector, as part of financing plans and
strategies;
 Gradually reducing reliance on external development partner contributions to be
more self-reliant;
 Preventing catastrophic failure and mitigating the impact of a severe natural disaster
that could cripple the economy.

In order to enhance energy security, the following actions shall be taken:

i. A clear disaster prevention and management plan including specific anticipatory risk
mitigation measures shall be developed for each sub-sector by the respective
competent Ministry or Agency. While ensuring security over energy supplies falls
under the mandate of MININFRA, all Ministries and agencies engaged in the delivery
of energy services have a responsibility to undertake measures that uphold this
principle. MININFRA shall ensure mainstreaming of disaster prevention guidelines
into operational policies as well as guidelines to be followed by its implementation
agencies;
ii. A hydropower climate-related risk assessment shall be conducted to highlight major
vulnerabilities to climate change, natural disasters, and other extreme weather
events;
iii. Promoting a mix of energy supply and power generation options by increasing
investment in domestic resources, even if not at the lowest financial cost of
production, and by expanding regional trade in all energy commodities to ensure
sufficient supplies and reliable reserves.

29
 3.7 INTEGRATED PLANNING AND SECTOR GOVERNANCE

As a complex sector encompassing diverse forms and carriers, it is important that clear
linkages and investment strategies are made through integrated planning processes, both
within the energy sector and other sectors. The benefits of more integrated planning
processes include creating positive synergies and economies of scale between new
infrastructure investments and minimizing unnecessary cost. The agricultural sector
strategic plan, for example, implies a dramatic increase in the land under irrigation; this
needs to be effectively coordinated with power system expansion, otherwise it could lead to
grid instability. Thus, it is important that arrangements between energy and other sectors
such as agriculture and mining be put into place in the long-term in order to ensure
sustainable exploitation of scarce resources.

New investments in the electric power sector shall be in line with demand, based on: a
sound forecast, taking into account complex factors such as demographic trends and
industrial growth strategies; reserve margin requirements set in the Grid Code; the flexibility
to meet sudden changes in demand and exogenous shocks; and the robust findings of a
least cost power project development plan. Electrification plans shall be in greater
alignment with industrialization, agro-processing, and urbanization strategies.

3.8 GENDER-BASED EQUITY, ENVIRONMENTAL SUSTAINABILITY AND CLIMATE

CONCERNS

Exploitation of energy resources can lead to severe impacts on the environment and may
result in greenhouse gas (GHG) emissions known to contribute to climate change. Likewise,
climate change can have a severe impact on energy projects. The dominant modern energy
source in the country, hydropower, is likely to be the most directly affected by climate
change, because it is sensitive to the amount, timing, and geographical patterns of
precipitation and temperature.14

Achieving the policy objectives related to environmentally sustainability will entail

elaborating clear planning criteria that influence the prioritization of new energy
investments toward environmentally friendly and climate resilient energy infrastructure,
promoting technological innovation and transfer, developing stronger national technology
standards for energy products and services, and outlining clear environmental guidelines to
be used for major energy investments and programs. Guidance toward harmonizing
approaches to climate technology transfer and adoption shall be further taken from the EAC
Climate Change Policy.

14
During 2004 and 2005, Rwanda suffered from a prolonged drought, drying up the seasonal rivers that were its primary
source of electric power. The immediate impact of the situation was a doubling of electricity prices in the country.
30
Among the priority actions to achieve this objective include:
i. Introducing controls and systems in energy infrastructure planning and design
processes to robustly address climate change and disaster risk management;
ii. Progressively reducing the carbon intensity of the electricity grid 15 through
increased investment in and use of renewable energy resources such as micro-
hydro, solar, and possibly geothermal power;
iii. Promoting cleaner fuels and technologies for heating and cooking such as LPG,
biogas, and modern biomass technology solutions in both households and
institutions as well as more sustainable biomass energy consumption through
promoting more efficient charcoal production practices, market transformation
activities, fiscal reforms, and smart subsidies;
iv. Aligning energy strategies to the green growth strategies and integrated
infrastructure solutions, especially in secondary cities;
v. Pursuing bilateral research and technology development cooperation with other
governments and research centers.

More proactive efforts to increase the flow of climate finance into low-carbon energy
projects ranging from renewable power generation projects to dissemination of improved
cook stoves. This includes registration of projects and activities the UN Clean Development
Mechanism (CDM) and Nationally Appropriate Mitigation Actions (NAMAs) falling under the
United Nations Framework on Climate Change (UNFCCC) as well as voluntary carbon market
channels.

The Rwandan Constitution assures equal rights between women and men, especially as it
relates to national development policies. Gender concerns shall be mainstreamed across
energy planning processes.

Guidelines for gender mainstreaming formulated by MIGEPROF shall be adopted in energy

planning strategies. In practice, this means fundamentally recognizing that men and women
can have different roles, responsibilities, and decision-making powers over energy usage. A
more market-oriented approach to energy sector development and policy interventions
shall also take gender differences into account in relation to end-user needs, preferences,
and behaviors.

Measures to mainstream gender in national energy planning and policies include following:
i. Considering gender issues at every stage of the energy project cycle and in all major
sub-sector strategies and action plans developed;

15
The current carbon intensity of the grid is roughly 0.52 tons of CO2 equivalent emissions per Megawatt Hour.
31
 ii. Addressing energy concerns in a gender-sensitive manner shall be undertaken in
the process of identifying and evaluating appropriate technologies for any given
service;
iii. Proactively targeting female-headed households in awareness-raising and
behavioral change programs focused on sustainable energy and clean cooking
technologies;
iv. Undertaking education, outreach, and awareness-raising activities focused on
identifying and altering cultural norms, behaviors, structures and practices that can
lead, whether intentional or not, to inequitable energy access;
v. Addressing knowledge gaps in gender and energy, through research and advocacy
programs and providing information support to improve women’s access to energy
services in Rwanda;
vi. Developing credit enhancement and micro-finance programs specifically targeting
women for driving investments in clean energy technologies, such as solar powered
lamps, and promoting women as energy entrepreneurs;
vii. Incorporating meaningful roles to women in the planning, design and execution of
energy programs, including those relating to energy efficiency and conservation;
viii. Encouraging girls to study sciences and mathematics and courses related to
building knowledge of energy technologies and basic engineering.

32
CHAPTER FOUR: LEGAL, REGULATORY, AND INSTITUTIONAL FRAMEWORK

4.1 LEGAL AND REGULATORY FRAMEWORK AND IMPLICATIONS OF REVISED POLICY

The main laws and regulations connected to the exploitation and use of Rwanda’s energy
resources comprise the Investment Code (2008, pending revision, 2014), Electricity Act
(2011), the Law Establishing EWSA (2010) and the Law Repealing EWSA (2013), the Law
Establishing and Determining the Mandate of the Rwanda Utilities Regulatory Authority
(2001) and as revised (2013), the Law on Mining and Quarry Exploitation (2008),16 and the
Petroleum Law (2013). A set of other proposed laws, including the Gas Law and Law on
Public-Private Partnerships are still in final draft, pending approval by Cabinet. The mandate
to regulate business operations across all energy subsectors falls under the Rwanda Utilities
Regulatory Authority (RURA). As an independent regulatory agency, RURA is obliged to
regulate in an accountable, transparent and fair manner for the benefit of all stakeholders.

Ultimately, the existence of a clear legal and regulatory framework for the sector plays a
fundamental role in boosting investors’ confidence in Rwanda and attracting more private
sector operators. The action agenda for strengthening the legal and regulatory framework
to align with the policy includes revising current legislation and putting in place new laws,
regulations, and technical guidelines and standards. This includes potential new laws
specific to promoting renewable energy and energy efficiency. A legal study is currently
being implemented to examine the consistency of the legal framework and its adequacy to
attract more investment in cleaner energy investments. In the longer-term, consolidation
and integration of various laws and regulations into a unified national energy law shall be
pursued. New legislation shall be benchmarked with other East African countries, and
attempts made to harmonize regional frameworks wherever possible.

4.2 INSTITUTIONAL FRAMEWORK

Given the complexity of the sector and its diverse resource base, the mandate of developing
the sector is shared across multiple institutions. There is continuous need and efforts to
streamline the sector institutional framework to enable integrated resource planning and
support improved inter and intra institutional decision-making, avoiding duplication of
efforts. The following section outlines some of the key actors in the energy sector and their
respective roles, while making recommendations on institutional reform.

16
Under the national Mining Law, and Ministerial Order N°003/Minifom/2010 on Requirements for Granting the License
for Purchasing and Selling Mineral Substances in Rwanda, peat is classified as a mineral substance. Furthermore, a quarry
extraction license is required for commercial development and use in the context of an energy project.
33
  Ministry of Infrastructure (MININFRA)
The Ministry of Infrastructure (MININFRA) is the lead Ministry responsible for developing
energy policies and strategies, and for monitoring and evaluating projects and program
implementation. It is in charge of setting an enabling policy and legal framework for the
sector, including a suggested general approach to the optimal use of state subsidies in the
sector, budget preparation, resource mobilization (together with MINECOFIN), and political
oversight over government programs designed to expand energy access and service
provision. With regards to petroleum, it is in charge of developing and managing petroleum
related infrastructure.

 Ministry of Trade and Industry (MINICOM)

MINICOM is responsible for the development and oversight of the downstream17 petroleum
subsector, including implementation of the downstream petroleum policy, establishing and
developing petroleum-related legislation, setting the strategic reserve requirement, and
creating an enabling environment for petroleum products trade in line with the national
energy policy objectives.

 Ministry of Finance and Economic Planning (MINECOFIN)

The Ministry of Finance and Economic Planning leads on resource mobilization to support
energy investment and related financing requirements. MINECOFIN ensures the fiduciary
framework to manage grants, loans, and other concessional finance from development
partners into the sector.

 Ministry of Natural Resources (MINIRENA)

The Ministry of Natural resources is responsible for ensuring the sustainability of natural
resources exploitation, including water extraction, and for developing and managing
compliance to the national environment policy and law. MINIRENA is in charge of
developing and implementing policies on petroleum exploration and development until the
point of resource extraction.

 Ministry of Education (MINEDUC)

The Ministry of Education and its affiliated research agencies (NIRDA and NCST), plays a role
in the energy sector by building the competency and human resources base for sector
development and by helping to link sector policies and strategies to research, technology
development, and innovation. MINEDUC ensures that TVETs address skill shortages in the
sector, including jobs related to electrical engineering and renewable energy technology
installation and maintenance.

17
In Rwanda’s case, this refers to the marketing and distribution of petroleum products and natural gas.
34
  Ministry of Local Government (MINALOC)
Local governments have the authority and mandate to coordinate the implementation of
discrete enabling policies to drive local economic transformation. Districts are responsible
for maintaining the District’s infrastructure. Specifically, they have direct responsibility for
all decentralized service delivery, including those that may be related to energy at the
grassroots (such as ICS, Biogas and many more). This includes national programs to scale up
sustainable energy consumption currently being implemented by the electricity utility
targeting communities.

 Ministry of East African Community (MINEAC)

The Ministry for East African Community Affairs is a coordinating body for EAC and Rwandan
priorities within EAC Protocols, Treaties and Strategies. MINEAC follows commitments
signed by Rwanda on energy projects and ensures Rwanda and Partner States deliver on
them. The Ministry advocates on energy-related government positions and interests in
regional meetings and forums.

 Rwanda Energy Group Ltd (REG Ltd)

The legal mandate of Rwanda Energy Group Ltd is to translate energy sector policies and
programs into the implementation of tangible projects to achieve government’s vision in the
sector and to efficiently operate and maintain the country’s power transmission system.

 Rwanda Development Board (RDB)

Rwanda Development Board plays the lead role in investment mobilization and promotion
for the energy sector, acting as a gateway and facilitator. It actively promotes private
investor participation in the energy sector, including local financial institutions. It leads on
facilitation of foreign direct investment (FDI) into strategic energy generation projects, as
well as other programs and activities involving cleaner, more energy-efficient technologies.
RDB also issues Environmental Impact Assessments for all energy projects for which one is
required. It is expect to also host a centralized authority or advisory agency for PPPs across
government.

 Rwanda Utilities Regulatory Authority (RURA)

The scope of its mandate extends to public utilities involved in renewable and non-
renewable energy, electricity, industrial gases, pipelines and storage facilities, and
conventional gas extraction and distribution. As the regulator, RURA’s principal mandate is
to ensure consumer protection from uncompetitive practices while ensuring that such
utilities operate in an efficient, sustainable, and reliable manner. RURA also has the
important role of updating the electric grid code, ensuring quality of service standards for
power, assessing and reviewing energy tariff structures, licensing all power generation,

35
transmission, and distribution companies as well as retail petroleum filling stations and
related storage facilities.

 National Industrial Research Development Authority (NIRDA)

Its scope will evolve around continuous research on energy mix to feed the growing
industries and will also provide the necessary information after thorough research on which
industries employ clean efficient energy needs.

 Rwanda Environment Management Authority (REMA)

REMA has the mandate to coordinate, oversee and implement environmental
policy. Generally speaking, all infrastructure development is subject to environmental
impact assessment. REMA is mandated to enforce environmental compliance in the
development of energy resources.

 Rwanda Standards Board (RSB)

As an agency under the Ministry of Trade and Industry, RSB develops national technical
regulations including national technology and performance standards. RSB plays an
increasingly important role in establishing, publishing, and disseminating national standards
for energy technologies such as biogas digesters and solar appliances.

 National Commission of Science and Technology (NCST)

NCST with aid from higher institutions of learning, will continue to oversee the scientific
tools and provide modern necessary technology to be employed in the energy sector.

36
CHAPTER FIVE: POLICY MONITORING AND IMPLEMENTATION PLAN

The National Energy Policy will ensure high-level ownership and institutional co-ordination
to achieve the EDPRS II and ESSP targets. An overview of the institutional division of
responsibility is set out in the Policy Implementation Matrix. This demarcates clear lines of
institutional accountability and demonstrates the political will behind the process of energy
sector development and increasing private sector participation.

MININFRA and the eSWAP Secretariat shall regularly monitor and evaluate the
implementation of the policy so as to ensure its benefits reach all Rwandans. They will
oversee government-wide policy implementation and enforcement, while helping to
continually refine guidelines and processes to promote integrated energy planning. In this
regard, they will regularly monitor and engage with other Ministries and their agencies
according to Institutional Responsibility/Policy Implementation Matrix provided in the
Annex.
High level oversight of policy implementation will be the mandate of the Economic Cluster
under the Chairmanship of MINECOFIN, and if necessary, the PS Forums shall be used to
raise awareness of areas where policy implementation is lagging. In addition, additional
technical-level working groups and subsector coordination mechanisms to be established
under the Energy Sector Working Group will ensure continual dialogue and awareness of
the key policy objectives among key stakeholders such as MINECOFIN, REG Ltd, RDB, RURA,
MINIRENA, RSB, and representatives of private sector chambers or associations. The SWG
will support MININFRA in policy monitoring, evaluating progress against sector performance
and intended policy outcomes. This may include, but is not limiting to, initiating and/or
endorsing impact evaluations and interim policy reviews in conjunction with regular
performance assessments against sector delivery targets.

The financial implications of this policy are complex, since it involves an array of institutions
and a number of measures that are both already budgeted, as well as new measures. The
ESSP estimates that roughly US$ 4 billion is required to finance Rwanda’s energy goals over
five years. MININFRA has elaborated an extensive draft MTEF for negotiation with
MINECOFIN which full incorporates all of the different elements envisioned in the policy and
strategy, clearly articulated and disaggregated by energy sub-sector.
An appropriate mix of financing resources will be used to implement the policy and strategy.
In order to reach sector targets, significant levels of new private sector investment are
required. This will be leveraged through strategic public investments in upstream resource
and project development activities, as well as through risk reduction tools. Among intended
investment risk mitigation strategies include the provision of sovereign guarantees for those

37
projects as deemed absolutely necessary to support strategic infrastructure by MININFRA
and the RDB Strategic Investment Unit.
In addition, as outlined in the Investment Code, a number of new measures shall be
instituted to enhance the attractiveness of investors to fund energy projects, and energy is
treated as a strategic sector. It is assumed that many energy projects in Rwanda will require
a minimum amount of 30% equity, with the balance raised between commercial and
concessional debt as well as grant funding, whether up front or paid upon delivery of
predetermined output results. Wherever possible, climate finance mechanisms will be
drawn upon to co-finance appropriate financing structures for specific investment projects
and major government programs in the sector. Increased engagement between policy
makers and domestic banks, pension funds, and insurance companies will be pursued in
order to identify promising areas for domestic capital investment growth.

A more detailed financing strategy for the implementation of the policy is elaborated in the
energy sector strategic plan.

38
LIST OF ANNEXES

Annex Contents

Annex I Institutional Responsibility Matrix: Policy Monitoring Action Plan

Annex II Prevailing legal and regulatory framework

Annex III Policy Development Road Map & Stakeholder Consultations

Annex IV Summary of REP Objectives & Principles and Linkages to EDPRS-II & Energy
Sector Strategic Plan (ESSP)

39
 Annex I: Institutional Responsibility Matrix – Policy Monitoring Plan

MININFRA &

MIGEPROF/
MINECOFIN

MINISANTE
Agencies

MINIRENA
MINICOM

MINEDUC

MIDIMAR
MINALOC

MINIJUST
MINEAC
REG Ltd

REMA

RNRA
RURA

RPPA
NCBS
GMO

NCST
NICA
RDB

RSB
General/Cross Cutting

Develop Energy Sector

Action Plans               
Develop a medium-term
human and institutional         
capacity development plan
for energy sector
Mainstream and monitor
gender equity directives and   
compliance to related
legislation in energy sector
programs and policies
Integrate climate change
considerations into major    
energy infrastructure plans
Electrification
Elaborate annual action plan
to reach 100% access to     
electricity in schools, sector
offices and health centres by
2017.

I-1
 MININFRA &

MIGEPROF/
MINECOFIN

MINISANTE
Agencies

MINIRENA
MINICOM

MINEDUC

MIDIMAR
MINALOC

MINIJUST
MINEAC
REG Ltd

REMA

RNRA
RURA

RPPA
NCBS
GMO

NCST
NICA
RDB

RSB
Energy Efficiency/Demand-Side Management

Develop and adopt Law on

Energy Efficiency           
Establish an energy
efficiency and demand-side    
management program within
Utility
Establish a working group to
harmonize energy efficient        
labelling and standards for
appliances in the EAC
Petroleum
Adopt Secondary regulations
on downstream petroleum            
activities including
enforcement of products
quality standards and
strategic reserve
requirements

Geothermal

I-2
 MININFRA &

MIGEPROF/
MINECOFIN

MINISANTE
Agencies

MINIRENA
MINICOM

MINEDUC

MIDIMAR
MINALOC

MINIJUST
MINEAC
REG Ltd

REMA

RNRA
RURA

RPPA
NCBS
GMO

NCST
NICA
RDB

RSB
Adopt Geothermal
Resources Law and           
Secondary Regulations for
Sustainable Geothermal
Exploration & Development
Biomass & Peat

Improve national peat

resource mapping and       
quality assessments
Facilitate bilateral R&D
cooperation activities to    
optimize peat energy
resource uses
Updated national ICS and
biogas technology standards         
Development of Biomass
resource and supply       
Biomass to Energy
technologies’ development       

I-3
Annex II: Prevailing legal and regulatory framework

No one single law or set of regulations governs the entire energy sector. Activities and
investments are governed by a set of stand-alone laws and regulations specific to each
individual subsector. Most but not all of the above references sub-sectors have their own
law covering the exploitation, utilization, and sales of energy resource. The general legal
framework or hierarchy includes several national laws that are indirectly applicable to
activities in the energy sector, laws specific to a particular energy sub-sector, regulations in
force for a particular sub-sector, as well as technical guidelines, codes, and standards in
place that may or may not be legally binding. A high-level overview of the key laws and
regulations applicable to each of these sub-sectors is provided below. It is not intended to
be an exhaustive inventory, but rather a tool to inform decision-makers, investors, and
researchers on the key legal and regulatory frameworks that shape governmental policy,
program implementation, and investment incentives.

The principle laws and related regulations connected to the exploitation and use of
Rwanda’s energy resources comprise the Investment Code (2014), PPP Law (2014),
Electricity Act (2011), the Law Establishing EWSA (2010) and the Law Repealing EWSA
(2013), the Law Establishing and Determining the Mandate of the Rwanda Utilities
Regulatory Authority (2001) and (2013) respectively, Organic Law on Environment (2005)
and the Petroleum Law (2013). A set of other proposed laws, including the Gas Law, are still
under development.

The mandate to regulate business operations across all energy subsectors falls under the
mandate of the Rwanda Utilities Regulatory Authority (RURA). As an independent agency
RURA is obliged to regulate in an accountable, transparent and fair manner for the benefit
of all stakeholders.
Main Cross-cutting laws and regulations applicable to sector
01) Investment Code (2014). The RDB has been in the process of updating the investment
code applying to all strategic and foreign investors in 2014. Energy is treated as a
strategic sector and a number of specific fiscal and other incentives are outlined in the
code to promote greater investment and private sector engagement in the energy
sector.

02) Public Private Partnerships Law (anticipated 2014). Providing the legal framework for
the implementation and management of PPPs, this law clarifies the rules governing
Public-Private engagement and procurement. It provides a streamlined framework for
PPP approvals and procurement as an alternative to public procurement methods.
Ministries will need to undertake feasibility studies to show the viability and advantages
of using a PPP procurement approach versus public procurement methods. The law
II - 1
 provides for sector-specific rules for the procurement of PPP projects to be developed
by relevant line ministries.

03) Organic Law on Environment (2005). Rwanda’s National Environment Policy is legally
codified in the Organic law n° 04/2005 of which was adopted in August 2005,
determining the modalities of protection, conservation and promotion of environment
originating in the Ministry of Natural Resources and with guidelines to be implemented
by the Rwanda Environment Management Authority (REMA). Article 73 of the
Environmental Law notes that industries that import equipment and which assist in
eliminating or reducing atmospheric carbon dioxide and chlorofluorocarbons and those
which manufacture equipment that reduce the pollution of the environment are subject
to reduction of customs duty on the equipment, which shall be administered under the
law concerning taxes and revenues. It should also be noted that the Environment Law
affords an opportunity for the Treasury to establish regulations to reduce income taxes
for individuals and persons undertaking activities that promote the environment.
Ministerial Order N° 003/2008 lays out the procedures and requirements for
undertaking EIA while Ministerial Order N° 004/2008 outlines the list of works, activities,
and project types that are subject to completing an EIA.

04) Law Establishing RURA (2013): The Rwanda Utilities Regulatory Authority (RURA) is an
autonomous public entity that was initially created by the Law N° 39/2001 of 13
September 2001 with the mission to regulate specified public Utilities including
electricity and the extraction and distribution of gas from Lake Kivu. This law was
replaced by Law Nº 09/2013 of 01/03/2013 establishing and determining RURA’s
mission, powers, organization and functioning. The revised law gives RURA the mandate
to regulate, among others, electronic technologies, renewable and non-renewable
energy, industrial gases, pipelines, and storage facilities. The law gives the regulator the
legal authority to contribute to energy policy making, licensing of energy service
providers, and the protection of energy consumers. Chapter II article 7 gives the
regulator the legal mandate to regulate tariffs and other charges related to electricity
among other regulated utilities. RURA shall carry out regular reviews of tariffs and
charges required by providers of regulated services, taking into consideration the costs
of production and supply, the return on assets, the consumer's and the investor’s
interests and the desire to promote competitive tariffs. Under Ministerial Order 4/DC/04
OF 07/06/2004, RURA is allowed to collect 1% of the previous year’s annual turnover of
the electric power utility for its operations.

II - 2
Electric power laws and regulations

Electricity Law (2011): The main legal instrument for the power sector is Law N°21/2011 of
23/06/2011 governing electricity activities in Rwanda, which is progressive and forward
looking. The law aims to create an enabling environment for the development and
distribution of electric power for the entire population and for all sectors. It covers the
general market set-up, as well as the licensing regime for the production, transmission,
distribution and trading of power within and outside of the national territory.
 Market structure. The electricity market shall be a market-based one based on free
and equal access to the activities of electricity production, transmission and
distribution. Electricity transmission and distribution activities shall be non-
discriminatory, and based on tariffs approved and published by RURA; however,
transmission or distribution through the grid may be denied where such grid is of a
low capacity or where granting it would cause prejudice to existing grid users (Article
27 and 28).

 Tariff setting. Principles relating to determining electricity tariffs shall be prepared by

the regulatory agency and approved by the Minister in charge of electricity (Article
29). After consultation with the Minister concerning the amount of the State subsidy,
RURA sets tariffs in accordance with the regulations (Article 30). These must ensure
that the investor has a normal return on his/her investments. The capital investment
shall be determined on the basis of infrastructure and equipment value used for the
project implementation (Article 32).

 Power concession agreements. MININFRA, through the Minister in charge of

electricity, has the power to issue concession agreements related to electric power
generation.

 Licensing. A license is required by all market participants undertaking generation,

transmission, distribution, purchasing, or trading operations both within and outside
the national territory. This shall be issued by RURA and payable against a fee as
determined by the agency. (Articles 4 to 7). Licenses shall be granted within sixty (60)
days after a concession has been obtained. Depending on the content of the license,
the holder of a license for electricity production shall have the rights and
responsibilities to construct, operate, maintain and manage his or her electricity
production facilities, contract for delivery and sale of electric power generated in his
or her production unit, and connect to the transmission and distribution grid.

 Autonomous generation and wheeling. The Law provides for the operation of a
project meant for autonomous electricity production. Projects with an installed
II - 3
 capacity of less than fifty kilowatts (50 kW) are exempted from a license altogether
and not subject to any prior notification to the regulator. Under the Law Establishing
RURA, activities of production, transmission and distribution of electricity through
transmission and distribution power plants and grids established by a company or a
household for their own consumption, or for consumption by other companies
thereto, shall be authorized (article 36). Where such power plants are established
within private properties, there must be no violation of public and State private
domain.

02) Law repealing EWSA: The law establishing EWSA (N°43/2000 of December 2010)
merged RECO& RWASCO, the former national parastatal companies in charge of energy
and water distribution, giving rise EWSA. A new policy vision to “corporatize” the utility,
however, gave rise to the adoption of the Law Repealing EWSA (Law N°97/2013), which
repealed the 2010 law and essentially reversed its intent. The new law mandates a
separation between the electric power utility and the water and sanitation utility. All
legal and financial responsibilities and obligations from EWSA have been fully
transferred to the newly registered companies (REG Ltd and WASAC Ltd).

03) Regulations for electric power resources exploitation: With specific reference to the
electric power sub-sector, RURA has as its core role to regulate electric power
production, transmission, supply and distribution, as well as sales. In reviewing
electricity tariffs and ensuring compliance to the adopted standards, RURA works to
enforce fair competition between operators.

04) Rural Electrification licenses: A rural electrification license is not precisely defined in the
Electricity Law. RURA has drafted a regulation for simplified licensing procedures in
order to expedite off-grid and mini-grid based rural electrification.

05) Electricity licensing regulations: RURA is responsible for issuing permits and certificates
to all electrical operators that satisfy the licensing requirements outlined in the
Electricity Law (2011). The regulations on electricity licensing (No
002/energy/el/rura/2013), which came into effect on 25 July 2013, establish a
framework for undertaking electricity activities with a view to an efficient, effective,
sustainable and orderly development of electricity supply operations. Chapter III of the
regulations outlines the different categories of licenses required in this context,
including production, transmission, domestic and international trade. These regulations
do not govern concession licenses or agreements.
 Production (generation) license: A license holder shall have the right to generate
electrical power and sell it to other licensees or large scale customers inside the

II - 4
 country and to access transmission or distribution networks, however, prior to the
approval by RURA of the contractual agreement between the license-holder and the
relevant transmission or distribution company is required by law.
 Transmission license: License-holders for the transmission of electricity must comply
with Article 17 and shall have the right to buy/transmit/sell electrical energy on their
network to other Licensees or consumers connected to the transmission network
inside the country. The license-holder shall also have the right to access the
transmission network in accordance with any contractual agreement subject to prior
approval by RURA. This transmission network can also be used for communication
purposes as long as it does not negatively affect the performance of the transmission
network. Articles 11 and 12 of these regulations stipulate the rights and obligations
for license holders to undertake domestic and international trade (Regulation No.
002/energy/el/rura/2013, July 2013)
 Distribution license: In addition to needing to comply with Article 18 of the Law
governing electricity in Rwanda, license holders for the distribution of electricity shall
have the right to purchase electrical power from the transmission company or any
other Licensee and to sell it to other Licensees or consumers inside Rwanda,
consistent with license conditions set by RURA.

06) Regulations for electric power quality: In August 2013, RURA published the Rwandan
Grid Code which establishes the rules and procedures that allow all participants to use
the interconnected power system in a safe, reliable, efficient and economical manner. In
connection with ensuring reliability, RURA is responsible for the compilation, approval,
implementation, of the Grid Code which encompasses a set of technical guidelines for
guaranteeing the principles above. RURA monitors and evaluates the quality of services
provided by electricity service providers, assuring conformity to the Grid Code and
licensing requirements. A Grid Code Advisory Committee shall be regularly constituted
to recommend appropriate updates and revisions to the Code. Individual generation
plants which do or potentially could threaten the stability of the grid and the power
quality standards under the Grid Code would therefore be subject to rejection,
revocation, or suspension of their licenses.

07) Regulations on Renewable Energy Feed-in Tariffs (REFIT): Law 09/2013 of 01/03/2013
establishing RURA gives it the legal mandate to establish and regulate electricity tariffs in
consultation with the Minister in charge of energy and REG. Following the
recommendations of a study conducted in 2012, a set of regulations determining feed-in
tariffs for micro-hydro projects ranging from 50 kW to 10 MW were developed (Annex 1
of regulations 01/energy/rura/2012 of 09/02/2012). Tariff levels reflected a cost
recovery plus return basis to encourage mobilization of private investors. RURA
undertook a review of the existing regime in 2013 to better align tariffs to market
II - 5
 realities, and drafted an updated regulation. This is reflected in, and has been
incorporated into the EP objectives.

08) Draft regulations on solar water heaters installation: RURA drafted regulations on
mandatory installation of solar water heaters and guidelines on installation, as well as
rules for the accreditation of installers and the issuing of permits for conducting this
trade. This builds upon technical guidelines that were published in November 2012
describing how solar collectors especially those larger than 4m2 can be safely installed
on roofs: Guidelines for Solar Water Heaters Installation. The guidelines target suppliers,
installers and building consent authorities to improve the quality of installation of solar
water heater systems, providing a range of options and performance-based solutions to
end-users.

09) Electrical installations regulations: Regulation No 002/el/energy/rura/2012 adopted by

RURA in October 2012 covers requirements for undertaking electrical installations,
aiming to protect people, properties, and the environment from hazards that can arise
under both normal and faulty conditions. It applies to installations in all premises,
whether residential, commercial, public or industrial and outlines the corresponding
required permits, depending on the complexity of the installations.

Technical guidelines on utilization of energy solutions

01) Energy Efficiency Promotion: RURA adopted Guidelines Promoting Energy Efficiency
Measures in May 2013, outlining specific measures to enhance efficient use of
electricity. Technical guidance and a number of useful tips for saving electricity on
common uses and appliances are provided to different targeted end-users such as
business/industry, large public institutions, and residential consumers. All energy
facilities are encouraged to meet Minimum Energy Performance Standards (MEPS) that
effectively limit the maximum amount of energy that may be consumed by a single
product per specified task. The guidelines stipulate that all energy consuming appliances
and equipment bear labels and meet MEPS for efficient energy use and conservation.

02) Electrical power standards: Related to regulations on electrical installations, RSB has
enacted over a dozen different power quality standards concerning electric and optical
fiber cables, wiring, plugs and outlets, lamps and luminaries, etc. Any person or
company involved in electrical installations works who fails to comply with the above
regulations is subject to revocation or suspension of permits and operating licenses. All
electrical installations should comply with the provisions contained in the following
standards; RS 565-1: 2011 (Electrical Wiring of Premises-Part 1: Low-voltage

II - 6
Installations), RS 474-1: 2011(Power Installations exceeding 1kV a.c.–Part 1: Common
rules) and any other relevant standards issued by RSB which may include the following:

Electrical engineering standard Rwandan National

Standard and Year
of Adoption
41 Electric and optical fiber cables-Test methods for non-metallic IEC 60811-201:2012
materials-Part 201:General tests-Measurement of insulation
thickness
42 Electric and optical fiber cables-Test methods for non-metallic IEC 60811-202:2012
materials-Part 202:General tests-Measurement of non-metallic
sheath
43 Electric and optical fiber cables-Test methods for non-metallic IEC 60811-203:2012
materials-Part 203:General tests-Measurement of overall
dimensions
44 Electric and optical fiber cables-Test methods for non-metallic IEC 60811-401:2012
materials-Part 401:Miscellaneous tests-Thermal ageing
methods- Ageing in an air oven
45 Electric and optical fiber cables-Test methods for non-metallic IEC 60811-412:2012
materials-Part 412:Miscellaneous tests-Thermal ageing
methods- Ageing in an air bomb
46 Electric and optical fiber cables-Test methods for non-metallic IEC 60811-501:2012
materials-Part 501:Mechanical tests-Test for determining the
mechanical properties of insulating and sheathing compounds
47 Polyvinyl chloride insulated cables of rated voltages up to and IEC 60227 - 5:2011
including 450/750V – Part 5: Flexible cables (cords). Ed2
48 Polyvinyl chloride insulated cables of rated voltages up to and IEC 60227 - 7:2012
including 450/750V - Part 7: Flexible cables screened and Ed2
unscreened with two or more conductors.
49 Power cables with extruded insulation and their accessories for IEC 60502 -1:2009
rated voltages from 1 kV(Um = 1,2 kV) up to 30 kV(Um= 36kV) - Ed2
Part 1:Cables for rated voltages of 1 kV(Um=1,2kV) and 3
kV(Um=3,6kV)
50 Electric toys - Safety IEC 62115 :2011 Ed2
51 Safety requirement for electrical equipment for measurement, IEC 61010-2:2010
control, and laboratory use - Part 1:General requirements Ed2
52 Uninterruptible power supplies(UPS) - Part 3:Method of IEC 62040 - 3:2011
specifying the performance and test requirements Ed2
53 Electrical installations of buildings -Selection and erection of IEC 60364-5-54:2011

II - 7
 electrical equipment - Earthling arrangement and protective Ed2
conductors
54 Incandescent lamps -Safety specifications - Tungsten filament IEC 60432-2:2012
lamps for domestic and similar general lighting purposes Ed2
55 Household and similar electrical appliances - Safety - Part2 - 7: IEC 60335 -2 -7:2012
Particular requirements for washing machines Ed2
56 Electrical installations of buildings - Part 4-42: Protection for IEC 60364 – 4 –
safety - Protection against thermal effects 42:2010 Ed2
57 Luminaires -Part 2 - 2: Particular requirements. Section two: IEC 60598 – 2 – 2:
Recessed luminaires 2011 Ed2
58 Plugs, socket-outlets, and socket-outlets and couplers for IEC 60309-1:2012
industrial purposes -part1: General requirements Ed2
59 Luminaires - Part 2-3: Particular requirements - Luminaires for IEC 60598 -2 -
road and street lighting 3:2011 Ed2
60 Incandescent lamps - Safety specifications - Part 3: Tungsten IEC 60432-3:2012
halogen lamps (non-vehicle) Ed2

Laws and regulations for petroleum sub-sector activities

The petroleum industry is typically divided into three major components i.e. upstream,
midstream and downstream ends. In Rwanda, upstream regulations are not yet developed
since petroleum exploration and exploitation activities are yet to be commercially
developed.

01) Law Regulating Petroleum and Petroleum Products Trade: Law Nº85/2013 OF
11/9/2013 applies to the import, export, transportation, processing, storage,
distribution, wholesale and retail sale of petroleum and petroleum products in
Rwanda, including LPG. The law provides clarity on licensing categories,
requirements, procedures to be followed. Any person or company may free
participate in the trade of petroleum products as long as they are licensed. Licensees
must meet quality standards set out by relevant regulatory authorities. Various
requirements for maintaining a strategic reserve of stocks are outlined.

02) Petroleum (Exploration and Production) Law: The law provides provisions for
licensing, divided between exploration licensing and production licensing. Upon
discovery of a resource, the holder of an exploration license may apply for a
production license. The law further obliges companies to prioritize the employment
of Rwandan citizens for managerial positions and provides other conditions for
capacity development. The main regulatory tool for the management of petroleum
resources is a system of licensing companies to carry out petroleum exploration
II - 8
 operations in return for the performance of explicit and enforceable obligations. The
objective of the licensing system is to allocate petroleum exploration rights to those
best able to conduct exploration activities and, to carry out commercial exploration
and production of petroleum resources in an efficient and responsible manner.

03) Law Establishing the National Standards Inspectorate, Competition, and Consumer
Protection Authority (NICA).Under Law No. 61/2013 of 23 August 2013, a new
competent authority shall be established to ensure adherence to quality standards
and pro-competition measures. It is envisioned under the downstream petroleum
policy that NICA shall be at the core of efforts to enforce technical standards for the
sub-sector.

A number of regulations have been passed to manage the importation and storage of
petroleum liquid fuels, petroleum depots, use of LPG, as well as oil pipelines. RURA, in
collaboration with Kigali City Council (KCC), RSB, MININFRA and MINICOM developed
guidelines for the construction of petrol stations and these are currently being enforced by
KCC. The following are some guidelines regulating petroleum business in Rwanda:

01) Regulations on above-ground Petroleum Storage Facilities

o
(N 006/Energy/RURA/2012) adopted by RURA on 8 June 2012 determine the
modalities of constructing and managing petroleum storage facilities in Rwanda. Any
person intending to construct an above-ground petroleum storage facility (e.g., bulk
storage, filling plant, and pipeline) must first obtain a permit subject to fulfilling
certain prerequisites. All tanks, pipes, valves and pipe fittings shall be designed and
built in accordance with approved national standards (i.e. API STD 650) and have a
safety factor adequate for the conditions of service. Guidelines are also given on the
design and construction of facilities used to store petroleum products of over 150 m3
in capacity. Preference is given to vertical tanks consisting of not more than one
compartment and use of elevated tanks for petroleum storage are discouraged. 18
Owners or operators of above-ground storage facilities or tanks shall prepare a spill
prevention control and mitigation plan prepared in accordance with applicable
national Environment, Health and Safety (EHS) guidelines and relevant national
standards. Other regulations promulgated by agencies such as the Rwanda Revenue
Authority and the APSF concerning the taxation, labeling, safe storage and disposal
of hazardous substances are also material to such facilities.

02) Regulations for fluid transportation pipelines have been prepared by RURA.

18
Where deemed necessary, a special permit must be issued.
II - 9
 03) Regulations on LPG: On 7 May 2012, RURA adopted Liquefied Petroleum Gas
Regulation (No.005/RURA/2012) which covers the importation, transportation,
construction, storage and distribution, wholesale and retail trade of LPG. Licensing
started in June 2013, initially mainly targeting big LPG dealers, with a plan to apply
this to LPG retailers as well. According to the regulations, no person shall conduct a
business of importation, transportation, supply, storage, distribution, wholesale and
retail supply and sale to industrial consumers of LPG and related activities except
under and in accordance with the terms and conditions of a license granted by RURA.
 Importation: Section III stipulates that importation of LPG into Rwanda shall only be
carried out by entities holding a valid license from RURA. Furthermore, the vehicle
used for importation must meet the requirements of RS 573 and RS 579. Where no
national standard exists, the relevant international standards approved by RSB shall
apply.
 Filling: LPG may only be filled into cylinders by a valid license holder issued by RURA.
A licensee shall at all times ensure that LPG is contained in a secure cylinder that
conforms to RS 569, RS 570, RS 571, RS 572, RS 574 and RS 576.The standard
capacities of LPG cylinders shall be as specified in RS 569 & RS 570 and cylinders shall
be fitted with unified valves. Cylinders not falling in the categories specified above
are not allowed to be filled with LPG.
 Distribution: A “special license” may be granted to operators involved in multiple
aspects of the LPG supply chain (e.g.., importation, bulk storage, transportation,
distribution, wholesale and retail). Any person intending to construct an LPG facility
(bulk storage, filling plant, and pipeline) shall, before commencing such construction,
apply in writing to RURA for a permit.

Technical guidelines for petroleum sub-sector activities

01) Technical guidelines on petrol stations: RURA issued technical guidelines for the
construction of new petrol filling stations in 2011. To ensure public safety and
worker health and safety compliance, RURA provides ongoing technical advice during
construction. The guidance is based on a national standard established by RSB on
“Installations, modification and decommissioning of underground storage tanks,
pumps/dispensers, pipe work at service stations and consumer installation.” The
guidelines provide minimum standards for the construction and operation of filling
stations, specifications for underground storage tanks, environmental protection
measures, fire preventions and fighting, calibration of equipment, waste water
management, among others. A filling station should have at least the following
minimum specifications:
 One underground storage tank for each petroleum product sold at the station
with a minimum capacity of 5 m3

II - 10
  One digital dispensing pump (two-way) for each petroleum product sold at
the station. All dispensing pumps should be covered.
 One service bay, wash bay
 Office premises
 One wastewater drainage system and firefighting equipment

Laws and Regulations under the Biomass subsector

There are no general guidelines on the exploitation of biomass energy resources in Rwanda
save for a few regulations on charcoal harvesting and technical guidelines on construction of
biogas digesters issued by RURA. Details are discussed below.

01) Technical Guidelines on construction of fixed domestic biogas digesters: In September

2012, RURA issued technical guidelines for the construction of domestic fixed dome
biogas digesters to be used by local construction companies as well as public
enterprises. The guidelines aim to ensure for the quality and required productivity of
digesters as well as the safety of end-users. Specifically, they cover responsibilities of a
biogas plant constructor, plant design and gas production optimization, plant siting,
feedstock requirements, and construction methods including appropriate materials to
be used. The guidelines should be used by all those constructing fixed-dome biogas
digesters for the main fixed dome plant models in Rwanda plant of 4, 6, 8 and 10 cubic
meters capacity respectively. Any deviation from this should be after approval by a
skilled technical supervisor with appropriate accreditation and licensing.

02) Regulations on Charcoal Harvesting. A permit is needed to cut mature trees; however,
such a permit is not needed for own use. At national level, cutting young trees is
prohibited. While carbonization is most efficient during the dry season, as dry wood
gives a higher output per unit input, some districts prohibit charcoal production in this
period to prevent fire outbreaks. A wood transport permit is needed from district
authorities to bring products to market. For charcoal, the permit is limited to a particular
Sector.

Technical Guidelines under the Biomass subsector

01) Technology standards for ICS. RSB has developed a technology standard for ICS.

02) Technical Guidelines on Construction of Cook Stoves. The former EWSA prepared
informal technical guidelines on the construction of ICS, but compliance is not
mandatory.

II - 11
Annex III: Policy Road Map & Stakeholder Consultations

Perceiving a need to revise the existing energy policy (2011) to better align with new
priorities and meet sector challenges, MININFRA initiated a process to update the policy in
2013. There was felt to be a strong need for the revised policy to reflect EDPRS-II targets, a
new 5-year Energy Sector Strategic Plan (ESSP) drafted in 2012, as well as other major policy
and regulatory shifts in the dynamic energy landscape. The policy was developed under a
highly consultative approach involving all key stakeholders who were made aware of the
road map and process for policy development. This road map, circulated in early 2014,
indicated the main phases, activities, and timelines to be followed. The key stages were
divided into: i) drafting; ii) refining; iii) validating; iv) adopting; and v) enforcing the policy. A
high level-timeline for the road map is depicted below. Whilst the dates are no longer
accurate due delays in the finalization of the policy, it is presented here for illustrative
purposes.

Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov

Refine

Validate

Adopt

Enforce +
Extend

Validation Workshop
Final Draft
Domestic investment forum
Final Version and Cabinet Brief

Publication / Press Conference Policy Implementation Audit for National Dialogue

An initial policy “refining” retreat was held on 7 and 8 March 2014, in Musanze, where an
initial draft was discussed among over twenty participants representing a core group of
institutions involved in the sector. Policy priorities, challenges, and opportunities were
discussed in small working groups. Following the retreat, a series of formal stakeholder
consultation meetings were held over the course of April and May 2014. Approximately 50
different organizations from both within and outside of government were bilaterally
consulted. These allowed for an exchange of views and receipt of critical inputs on the draft
principles, goals, objectives, and strategic prioritization. The consultations were also a key

III-1
instrument for gaining stakeholders’ clear appreciation for the new energy sector policy
vision.

A national validation workshop was held on 12 June 2014 in Kigali at Lemigo Hotel, which
was attended by roughly 75 participants from across government, civil society, development
partners and the private sector. The meeting reached its objectives: (i) to give all
stakeholders a clear understanding of the main policy objectives and vision for Rwanda's
energy sector; furthering institutional consensus on the proposed key policy principles and
objectives for each sub-sector; (iii) to harmonize inconsistencies, contradictions, and
overlaps; and (iv) to identify any remaining gaps or critical views omitted from the final
draft. On the basis of the validation workshop, a summary matrix of the policy was
developed highlighting areas for further development and updating of the ESSP prior. A
finalized version of this matrix is included in Annex IV.

Finally, an inter-ministerial consultation meeting was held in Kigali at MININFRA on 25

September at which time the final draft document was circulated for review and feedback,
together with the updated ESSP. The purpose of the meeting was to ensure broad
awareness of the final contents and to get final feedback prior to Cabinet submission and
deliberations.
A table summarizing the stakeholders and institutions consulted in the policy development
process is below.

Consolidated List of Stakeholders Consulted

Private Sector Federation Private-General

Energy Private Developers Private-Energy
Rwanda Chamber of Industry Private-General
Rwanda Renewable Energy Association Private-Energy
Rwanda Mining Association-RMA Private-Mining
Rwanda Mining Investment Forum-RMIF Private-Mining
Petroleum Importers Private-Energy
World Bank DP
African Development Bank DP
Belgian Technical Cooperation DP
Japan International Cooperation Agency DP
GIZ DP

III-2
KfW DP
European Union DP
World Vision NGO
Action Aid NGO
Care International NGO
CIMERWA Private-General
UTEXRWA Private-General
RIG (PEC, REC, etc.) Private-General
Ngali Energy Private-Energy
BRALIRWA Private-Manufacturing
Kabuye Sugar works Private-Manufacturing
Ministry of Agricultural and Animal Resources GoR-Ministry
Ministry of Finance GoR-Ministry
Ministry of Foreign Affairs and Cooperation GoR-Ministry
Ministry of Natural Resources GoR-Ministry
REMA GoR-Agency
Ministry of Gender and Family Protection /Gender Monitoring
Office GoR-Ministry
Ministry of Education GoR-Ministry
Ministry of Commerce GoR-Ministry
Ministry of Health GoR-Ministry
Ministry of East African Community Affairs GoR-Ministry
Ministry of Justice GoR-Ministry
Rwanda Revenue Authority GoR-Agency
Ministry of Local government GoR-Ministry
Prime Minister's office GoR-Other
Rwanda Utilities Regulatory Authority (RURA) GoR-Other/Regulator
Rwanda Energy Group GoR-Company
Rwanda Standards Board GoR-Agency
Rwanda Development Board GoR-Agency
III-3
National Women Council GoR-Agency
Environmental and Natural Resources Authority GoR-Agency
Nile Basin Initiative Regional Org
CEPGL Regional Org
NELSAP Regional Org
SINELAC Regional Org
City of Kigali Local Government
University of Rwanda College of Science & Technology Academia
IPRCs Academia

The following methods will be used to continue to inform and engage the public on the
policy:

 Presentation of the policy document at the Energy Sector Working Group meeting and
at a special meeting of the Private Sector Forum with energy investors.
 Posting of the document to the MININFRA website for easy download
 Distributing of the document at future energy seminars and workshops to be held with
stakeholders
 Distribution of the document at investment promotion forums such as the Rwanda
Power & Infrastructure Investment Forum
 Organize a series of sensitization workshops on the policy after its approval.
 Collaborate with MINAFET to distribute the policy to Embassies and consulates.
 Presentation to local districts via quarterly meetings organized by MINALOC.

III-4
Annex IV: Summary of Energy Policy Objectives & Principles and links to EDPRS & ESSP

In following summary table, a comprehensive overview of all National Energy Policy

objectives and principles is provided. The table also highlights linkages between the energy
policy and the EDPRS-II goals and cross-cutting thematic issues. Finally in the last column, it
is shown how the policy directives are expected to be translated into headline
implementation strategies under the Energy Sector Strategic Plan (ESSP). The legend
further indicates how the policy actions and measures to be undertaken in support of the
sub-sector objectives and global principles can be categorized.

Legend:

(P) A pure policy instrument, signifying a shift in approach, philosophy, or principle

underlying strategic direction or implementation

(E) An economic instrument to affect desired policy outcome, including fiscal reform, public
funding of a target investment program, investment incentives

(R) A regulatory instrument, including the adoption or amendment of a law or regulation to

drive policy compliance, as well as the development of any related standards, codes, and
technical guidelines.

(I)An institutional reform, such as a consolidation or re-organization of government agency

mandates to implement the policy.

III-5
 EDPRS II NATIONAL ENERGY POLICY (EP) ENERGY SECTOR
STRATEGIC PLAN (ESSP)

Overarching Goal EDPRS II goals strongly Overarching Goal Core Objectives High-Level Target
linked to the energy Objectives
sector (to be achieved by end of
FY2018)
Policy Vision:
Enhance access to modern, The electric power
“Accelerate progress to Increased economic "To contribute sustainable energy services for all system equivalent
middle income status and competitiveness, taking into effectively to the growth Rwandans; installed capacity
better quality of life for account the role of energy as a of the national economy Optimize the power generation mix in (domestic generation
productive input/catalyst. order to reduce long-run costs, + imports) to 563 MW
all Rwandans through and thereby improve the
promote energy security, and Increase household
sustained growth of standard of living for the
reduce the carbon-intensity of the access to grid
11.5% and accelerated Pursuit of a ‘green economy’ entire nation in a grid over time. electricity to 48% and
reduction of poverty to approach to economic sustainable and Create an enabling environment for off-grid electricity to
General (all Sub-Sectors)

less than 30% of transformation. environmentally sound increased private sector 22%.
population.” manner.“ participation in energy supply and Achieve savings from
service provision; energy efficiency
Youth empowered and rural Encourage and incentivize more measures of up to
communities connected to rational, efficient use of energy; 50,000 MWh
economic opportunity through Overall Goal: Achieve cost-reflective provision of Reduce carbon intensity
jobs and better infrastructure. energy services, a gradual of the grid by 10% by
"To ensure all residents transition toward “smart 2018 and 25% by 2025
An enabling environment for and industries can subsidies,” greater market (from 2013 baseline).
private-sector driven growth and access energy products competition, and more Ensure 80% of all
socioeconomic transformation. and services that are transparent tariff-setting. households employ
sufficient, reliable, Ensure the sustainability of energy clean cooking energy
Improved service delivery exploration, extraction, supply, technologies.
affordable, and
through accountable governance and consumption. Realize all EAC Regional
sustainable." Integration Policy
priorities for energy
sector.

IV -1
 EDPRS II NATIONAL ENERGY POLICY (EP) ENERGY SECTOR
STRATEGIC PLAN (ESSP)

Overarching Goal EDPRS II goals strongly Overarching Goal Core Objectives High-Level Target
linked to the energy Objectives
sector (to be achieved by end of
FY2018)

 Inclusive engagement and strong ownership by all 1. Promote integrated planning and streamline sector governance.
stakeholders.

 Innovative approaches and home-grown initiatives 2. Boost national ownership of Rwanda’s energy vision and build more decentralized
fostered to address development challenges. implementation capacity (including through enhanced human, organizational and
Key Guiding Principles

institutional capacity.
 Empower community and district-driven development and
coordinate mutually reinforcing linkages between sector 3. Mainstream gender-based equity, environmental sustainability, and climate concerns
policy goals and decentralization strategies. into energy planning and sector strategies.

 Focus on emerging priorities, including “green growth” and

overall sustainability. 4. Promote value-for-money and increased market competition in energy development.

5. Transition from indiscriminate to “smart subsidies” aligned to social protection

principles.

IV - 2
 EDPRS II NATIONAL ENERGY POLICY (EP) ENERGY SECTOR
STRATEGIC PLAN (ESSP)

Overarching Goal EDPRS II goals strongly Overarching Goal Core Objectives High-Level Target
linked to the energy Objectives
sector (to be achieved by end of
FY2018)

 Capacity Building
1. Regional integration
 Environment and climate change
Cross-Cutting Themes

2. Energy technology standards, and related compliance and enforcement

 Family and Gender
3. Energy data collection and statistics
 Regional Integration
4. Energy research, development, and technological innovation
 HIV/AIDS and NCDs
5. Energy security and disaster mitigation
 Disaster Management
Private Sector Participation/Engagement

 Private sector participation central to delivery strategy,

particularly in energy sector. 1. Streamline investment promotion processes for IPPs.

 Job creation and skills development through private-sector 2. Accelerate energy sector Public-Private Partnerships (PPPs), taking advantage of new
expansion and opportunity. national guidelines and procurement procedures

3. Extend and expand investment incentives to private investors.

4. De-risk investments through financing risky upstream resource assessments and pre-
feasibility studies.

5. Empower local enterprises to engage in energy sector deals and introduce more
competitive, transparent approaches to service provision where appropriate.

IV - 3
 EDPRS II NATIONAL ENERGY POLICY (EP) ENERGY SECTOR
STRATEGIC PLAN (ESSP)

Overarching Goal EDPRS II goals strongly Overarching Goal Core Objectives High-Level Target
linked to the energy Objectives
sector (to be achieved by end of
FY2018)

 Reduce coordination failures through integrated planning 1. The shall convene and coordinate regular cross-sector planning meetings with regards
and joint solutions to infrastructure development and to the National Energy Policy and Integrated Planning.
Governance

service delivery.
2. Improve stakeholder communication, education, and public outreach mechanisms
 Strengthen citizen participation and demand for
accountability. 3. Revamp energy sub-sector coordination mechanisms and technical working groups.

IV - 4
National Energy Policy Goal Policy Objectives Instruments & Corresponding ESSP Actions

Electricity Sector
Main policy objective: 1. Reform the power sector in long-term to 1.1. EWSA restructuring and corporatization - a
increase institutional accountability and three phase process.
Ensure sufficient, reliable, sustainable and operational efficiencies. Restructure
affordable power supply to all Rwandans EWSA into electricity utility, energy
development, and water utility
companies. (P)

2. Transition to a cost-reflective yet 2.1. Establish a “glide-path” to cost-reflectivity that

affordable electricity tariff. reflects the principle of moving toward “smart
(P), (E) subsidies” targeting strategic industries and
vulnerable social groups vs. the indiscriminate
subsidization of power.
2.2. Achieve operational efficiencies in EUCL and
implement energy efficiency and demand-side
management programs to shave peak load and
reduce required generation capacity.
3. Optimize the power mix so as to reduce 3.1. Ensure future energy demand is realistically
long-run cost of service, diversify energy forecasted and contribute to lowering the cost of
generation technologies, and gradually electric power supply through improvements in
reduce the carbon-intensity of grid over analysis and planning effectively translated into
time. National Power Master Plan and EAPP Power
Master Plan.
Vision to reduce petroleum-based power 3.2. Power Master Plan and generation road map to
generation over time so as to be used achieve strategic balancing act between increasing
only for peaking and back-up power by net imports of expected demand, optimizing
2020. exploitation of domestic energy resources, and IV - 5
 (P) accelerating progress toward a regionally-
integrated power market.
3.3. Conclude economically advantageous trading
agreements with regional power houses (net
exporters) in line with technical constraints and
energy security guidelines (i.e. import cap of up to a
maximum of 20%.19
3.4. Develop and enhance regulations facilitating
regional trading arrangements.20
3.5. Gradually phase out expensive, petroleum-based
generational capacity on a rental operational basis.
Instead, build a utility-owned peaker power plant to
cover peak demand and/or maintain a reserve
margin to hedge against short-term power supply
unavailability or import shocks.
3.6. Short-term priority to be given to domestic
methane gas for base load applications over hydro-
based imports and petroleum-based generation
sources. Develop other indigenous energy
resources such as biomass and solar power subject
to being as sustainable, affordable, and reliable
compared to imports.
3.7. Integrate findings of Strategic Environmental
Assessment for the Energy Sector and other macro-
level climate risk and sustainability assessments

19
Additional analysis by energy planning team is necessary to come up with justifiable target. A 30% target represents a big increase from status quo,
while still maintaining a high level of energy security. Moreover, it is well in line with average import-export ratios of other countries in the region.
20
Revised power tariff already paves way through unique transmission-related component.
IV - 6
 into future power Master Plans and ESIA guidelines
to be elaborated by REMA specifically tailed to
power generation projects.
3.8. Develop a strategy to access climate financing and
incorporate into planning and budgeting processes
to incentivise cleaner technologies and practices.

4. Develop national electrical power system 4.1. Utility to increase long-term investments in new
to serve growing demand in an generation capacity as well as transmission and
economically efficient way and reduce distribution systems extension and rehabilitation.
technical and non-technical losses. 4.2. Accelerate implementation of system loss-
(P), (E) reduction investment activities (technical and non-
technical).
4.3. Implement quick win supply-side energy efficiency
measures, i.e. grid loss-reduction programs.
4.4. Implement regional grid integration strategies and
actions, taking into account required institutional,
regulatory, technical, and investment reforms.
Champion solutions associated with optimization
of interconnected grids at regional level (e.g.,
EAC/EAPP technical meetings).

5. Enhance the attractiveness of exploiting General

domestic resources for power generation 5.1. Adjust REFIT tariff schedule subject to a set
and increase local private sector fixed price cap, 3 year review to see the impact on
participation through government- the utility and determine whether the REFIT tariff
funded risk mitigation mechanisms and schedule should remain the same or be revised
IPP investment streamlining. Revise and downwards, incorporate standardized PPA into the
expand renewable energy feed-in tariff regulation, and add more clean energy resource
IV - 7
 (REFIT) mechanism. types to be covered beyond hydropower such as
grid-connected solar, biogas and landfill gas under
Government to prioritize funding of resource an “avoided cost approach.
mapping, pre-feasibility studies, upstream 5.2. Relevant technology standards to be
exploration, and piloting to gain a clearer developed by RSB. REMA to develop relevant
picture of the extent to which domestic environmental guidelines. REMA, RURA, and NICA,
hydropower, peat, solar and wind as appropriate to enforce compliance.
resources can generate electricity on 5.3. Review investment procedures relevant to the
commercially viable and competitive energy sector, including the investment code and
terms. modalities of engagement.

(P), (E), (R), (I)

Peat
5.4. MININFRA to undertake peat energy strategy
and action plan including socio-economic impact
assessment to ascertain optimal use for:
power generation,
direct industrial heat
steam applications, or
use as domestic charcoal substitute
5.5. REG to undertake detailed national resource
assessment (inventory) of existing bogs.

Methane
5.6. Consider splitting extraction and power
generation components in IPP procurement.
5.7. Prioritize technologies that allow for maximum
IV - 8
 sustainable extraction subject to value for money.

Geothermal energy
5.8. Upgrade existing legal and regulatory framework
to unique needs of geothermal energy activities
5.9. Government to de-risk by exploring the
prospective geothermal areas until proven
resources available, including carrying out step-
wise exploration and ranking of all prospects.
5.10. Operationalize a Geothermal Development
Program to act as umbrella structure for
coordinating all exploration and public-led
investment activities.
5.11. Manage tendering of PPP for development of
up- and downstream facilities and for commercial
exploitation of proven resources.
Closely coordinate mining and energy concessions
between relevant ministries.
Conduct a feasibility study to evaluate viable direct
applications of geothermal energy beyond
power.
6. Facilitate autonomous power generation 6.1. Regulatory changes to encourage uptake of
through updated policy guidelines, dedicated power plants for industry, geared
streamlined licensing, and regulatory toward mining and agro-industries.
reforms. 6.2. Scope of simplified licensing regulations
(P),(R) targeting rural electrification activities to be
extended to autonomous generation.
6.3. Research optimal systems integration of solar
energy in grid and undertake planning measures to
IV - 9
 increase transmission efficiency and stability in
intermittent power supply.

Electricity Access
Main policy objective: 1. Introduce short and long-term 1.1. Increase household access to grid electricity to
institutional reforms to increase sector 48% and off-grid electricity to 22% based on analysis
Enhance access to sustainable, modern energy coordination, accountability, and by REG Ltd and MININFRA.
for all Rwandans delivery effectiveness. 1.2. Prioritize connections to productive uses: either
large users or small and medium enterprises.
In the short term, all major off-grid energy access and
rural electrification programs implemented by the
Utility on behalf of MININFRA should be consolidated
under the umbrella of the EARP.

2. Ensure 100% access to electricity in all 2.1. EARP to examine feasibility of reaching target for
schools, Sector offices and health each remaining unelectrified institution through on-
centres by 2018. (P) or off-grid connection, whichever more economical.
MINEDUC, MINALOC & MINISANTE to 2.2. EARP to analyze costs and benefits of expanding
elaborate guidelines for budgeting access to other public services (e.g., administrative,
responsibility for operations and community centers).
maintenance and ongoing electricity
services. (I)
3. Scale up innovative partnerships to 3.1. MININFRA shall develop, pilot, and scale-up
increase rural access to appropriate off- innovative PPPs for off-grid energy delivery, following
grid technology solutions. new process and project cycle under PPP Policy.
(P), (E) Government shall support programs through in-kind
assistance and other measures, including provision of
new investment and fiscal incentives.
3.2. Initiate grassroots awareness-raising campaign to
IV - 10
 promote sustainable off-grid electricity solutions,
collaborating with existing civil society organizations
and energy associations.
4. Fiscal reforms to inject market-based 4.1. Study the market, fiscal and socio-economic
incentives targeting urban and peri- impacts of phasing out subsidies on kerosene.
urban citizens to switch from kerosene Determine degree to which market demand for
and wood fuels to solar lighting and solar-home-systems and solar-powered lamps would
clean cooking technologies, such as be benefited from such fiscal reforms.
phasing out a tax exemption on 4.2. Incorporate social protection principles into
kerosene, extending a VAT exemption design of any fiscal reforms.
for LPG. (E)
5. Introduce greater competition and 5.1. Adopt and enforce new secondary regulations
flexibility in off-grid service provision under the Electricity Act to simplify licensing
through measures to simplify licensing frameworks and processes for SPDs.
and stimulate Small-scale Power 5.2. Utility to publish National Electrification Plan put in
Distributors (SPDs). the public domain and remaining valid for at least
(R) three years. This will encourage private investment in
off-grid electricity businesses.
6. Allow cross border electrification. 6.1. Facilitate regulatory frameworks for low-voltage
(P), (R) cross-border electrification interconnection lines and
service delivery.
Energy Efficiency and Demand-Side Management
Main policy objective: 1. Adopt new laws, regulations and codes 1.1. MININFRA to introduce an Energy Efficiency
that mandate energy efficiency Strategy and Law as framework to support series of
Constrain unbridled future energy consumption measures in public institutions, new regulations by RURA.
growth and support realizing Rwanda’s Green households, and commercial businesses. 1.2. Integrate promotion of energy smart building
Economy vision. (R) technologies into monitoring and implementation of
new government asset management policy.
1.3. Introduce energy-smart and energy-efficient
IV - 11
 technologies and practices into Rwandan building
codes, including mandatory installation of solar water
heaters for large water consumers (e.g., hotels,
integrated developments) in parallel to extending
subsidy to end-users to incentivize switching. RHA to
elaborate codes. RURA to ensure enforcement.
Rwanda Housing Authority to oversee training, skills
development.
2. Restructure electricity tariff methodology 2.1. RURA to regulate a “demand charge” tariff
to incentivize efficiency component along with a time-of-use based scheme.
(R)
3. REG Ltd to establish a dedicated demand- 3.1. Develop a staffing and business plan as part of
side management/energy efficiency unit EWSA restructuring/institutional reform.
to oversee implementation of relevant 3.2. Develop and outsource a comprehensive behavioral
programs aligned to the policy. change marketing campaign targeting common sense
(I) energy management among high-consumption
commercial and household end-users. Translate
existing RURA guidelines into educational curriculae
and public awareness programs.
3.3. Water Utility Company shall retrofit existing water
pumping systems with variable speed drives to
reduce energy demand load and operational costs.
3.4. Assess viability of other incentives for LV customers
on pre-paid-meters (e.g., rebates) to shift demand
patterns to smooth demand load during the day.
4. Promote and remove barriers to the 4.1. REG Ltd EE/DSM Unit to manage bulk procurement
implementation of priority efficient and distribution of CFLs for residential customers
lighting initiatives through bulk (based on current consumption and end-user
procurement, social marketing affordability)
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 campaigns, and targeted subsidies for 4.2. REG Ltd EE/DSM Unit to manage energy-efficient
retrofits. lighting retrofits in public institutions in collaboration
(P), (E) with MININFRA.
4.3. Districts empowered to take responsibility for the
ongoing maintenance and running costs of street
lighting through regulatory reforms. Technical
support to be provided by REG Ltd EE/DSM Unit to
conduct cost-effective street lighting retrofitting.
5. Develop and adopt an EAC-wide energy 5.1. RSB to establish a working group. Align regional
standards and labeling scheme for standards to EAC under existing regional integration
common household appliances. processes.
(R)
6. Encourage and incentivize regular energy 6.1. Major end-users, such as industries, encouraged
audits in industry and commerce. and incentivized to carry out regular energy audits.
(P), (E) 6.6. MININFRA to develop a strategy and business
model for an energy efficiency finance facility to
bankroll audits (50/50 cost split) and retrofits. Facility
would be initially capitalized by MINECOFIN through
a reallocation of power tariff subsidy and DP
contributions. Capital would be replenished on the
basis of savings achieved. It would also establish
energy performance benchmarks for industry.
7. Institutionalize “green” public 7.1. RPPA and REMA to develop clear criteria,
procurement guidelines and strategies guidelines for integrating energy and resource
focused on equipment with a high efficiency into existing procurement policy and
energy footprint. (P) processes.

Biomass Sector
Main policy objective: 1. Consolidate institutional mandates and 1.1. MINALOC to promote improved charcoal
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Facilitate fuel-switching from traditional initiate stronger involvement of local production and improved cook stoves.
biomass energy carriers toward modern biomass districts 1.2. Local districts to take more ownership of
energy technologies and cleaner fuel (I) biomass program implementation, with the support
and guidance of MINALOC.
alternatives in order to reduce non-renewable
1.3. Better coordination and monitoring of local
fuel wood consumption and related social, district development plans with respect to clean
health, and environmental costs. cooking targets and implementation strategies.
2. Formalize charcoal production and 2.1. Efforts to increase more formalization of sector
supply to facilitate more effective including better-organized and consolidated
regulatory control as well as charcoal producer cooperatives and associations.
mainstreaming improved harvesting and 2.2. Better enforcement by RNRA of current
carbonization techniques. regulations, including licensing regime, to stop illegal
(P), (R) wood harvesting at the district level.
2.3. MININFRA and MINALOC to ramp up support for
capacity development of local charcoal producers in
improved harvesting and carbonization methods.
Ensure the delivery of ongoing technical assistance
under a “train-the-trainers” model in every district.
2.4. Carry out supply chain analysis to ensure more
reliable, affordable, sustainable product on market.
2.5. REMA shall continue to promote agro-forestry
on local shumbas to reduce fuel wood pressure.

3. Increase access to cleaner cooking 3.1. Rebalance budget to address clean cooking
energy carriers (e.g., biogas, LPG, green priorities as heavily skewed toward power sub-
charcoal, and biomass pyrolysis stoves) sector.
by promoting technology standards, 3.2.Strategy to identify appropriate technologies for
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 introducing fiscal reforms where household cooking and ICS at different income
appropriate, and piloting new market levels/geographies.
transformation activities. 3.3. RSB shall elaborate updated national ICS standards
(E), (R) with the support of REMA, MININFRA, and the
private sector.
3.4. Implementation strategy shall place more emphasis
on social marketing/behavioural change campaigns
and awareness raising through, inter alia, public
demonstrations at “Umuganda” meetings.
3.5. Promote more market-based PPP approaches to
scaling up clean cooking programs. Evaluate
feasibility of piloting similar PPP models program
under concession agreements that can offer turnkey
modern biomass cooking solutions.
3.6. Implement green fiscal reforms
− enhance local skills development programs
− expand partnership agreements with financial
institutions in order to expand credit access to
households in order to facilitate fuel switching.
3.7. Promote LPG by:
− Continuing VAT exemption
− Providing incentives to retailers to improve LPG
distribution infrastructure
− Undertake a social marketing campaign.
3.8. Promote green charcoal through REG Ltd targeting
peat and agriculture waste.
3.9. Support biogas utilization by:
− Restructuring approach to the NDBP. More focus
on institutions vs. households.
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 − Reforming subsidies for biogas to be more means-
tested and in line with system capacity, market
demand. MINALOC to ensure more consistency of
concessional financing terms across local districts.
− RSB to define and adopt new national technology
standard for biogas digesters.
4. Develop a harmonized, regionally 4.1. MINICOM and MININFRA shall promote and
integrated market for sustainable liquid harmonize policies and market opportunities for
biofuels. regional biofuel industry development. Explore
(P) feasibility for regional biorefineries whereby feed
stocks imported into Rwanda duty free from EAC.

Petroleum
Main policy objective: 1. Enhance attractiveness of Rwanda as 1.1. Implement National Petroleum Exploration and
investment destination for upstream oil Production Policy adopted by Cabinet in 2013
Ensure safe, sufficient, reliable, sustainable and and gas exploration and development.
affordable supply of petroleum and LPG. (P), (R)
2. Institute an effective public-private 2.1. MINICOM to consider updating reserve requirement
hybrid model for maintaining strategic levels to reflect current market situation.
petroleum products. Recommend 2.2. Introduce incentives to incentivize retailers and
MINICOM review strategic reserve wholesale fuel distributers to increase investments in
requirements to balance cost/security gas (LPG) storage facilities.
imperatives.
(P), (R)
3. Accelerate regional cooperation and 3.1. Strategic joint investment in Hoima regional
strategic infrastructure development refinery and target participation in other multi-
including new refining, pipeline national investments, including bio-diesel blending
transportation, and railway facilities.
infrastructure. (P), (E) 3.2. Develop transportation infrastructure inter-
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 connections for faster, more reliable supplies of
petroleum and LPG. Study extension of refined
petroleum pipeline to Kigali.
4. Enhance effectiveness of petroleum price 4.1. Conclude bulk purchasing agreements for
stabilization mechanisms, such as petroleum products with Tanzania, Uganda, and
introducing new price control Kenya.
methodologies, expanding bulk 4.2. Encourage and incentivize private investors to
procurement, and introducing hedging undertake bulk purchasing arrangements
requirements for large public consumers 4.3. Adopt, enforce appropriate fuel pricing
(R) methodology.
4.4. Encourage or mandated large fuel consumers to
enter into fuel hedging arrangements.
5. Introduce mandatory petroleum statistics 5.1. Adopt regulation for mandatory submission to
(R) regulator of data related to petroleum products’
trade, sales, and strategic stores.
5.2. Closley track market growth and penetration rates
for LPG through surveys, etc.
6. Determine and enforce petroleum 6.1. RURA shall set and enforce standards for all
standards to ensure even product downstream petroleum products.
quality
(R)

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7. Implement market transformation 7.1. Implement a social marketing and behavioral
activities, including possible revision of change campaign to increase market uptake of LPG
fiscal incentives to strengthen targeting middle-class households in urban areas.
incentivize for LPG fuel-switching, 7.2. Assist local importers with storage and distribution
targeting urban areas. infrastructure investment and bulk purchasing
(P), (E) arrangements in order to reduce LPG price.
7.3. TVETs to provide training in the production and /or
assembling of LPG low cost stoves to match increased
demand.

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