From Patronage to Impunity: How the United States Elevated Paul Kagame

From Patronage to Impunity: How the United States Elevated Paul Kagame—and Continues to Shield Him Despite Violations in the Great Lakes Region

Introduction

Paul Kagame's rise to power in Rwanda and his enduring influence in the Great Lakes region cannot be understood without examining the decisive role played by the United States. From the aftermath of the 1994 genocide to the present-day conflict in eastern Democratic Republic of the Congo (RDC), Washington has been a central political, military, and diplomatic backer of Kagame's government. This support has persisted despite mounting evidence from the United Nations, human rights organisations, and independent experts that Rwanda has repeatedly violated international law, undermined Congolese sovereignty, and breached regional and international agreements — including the Washington Agreement.

This document argues that U.S. support for Kagame has evolved from post-genocide solidarity into long-term strategic indulgence, producing a system of regional impunity. While the U.S. publicly promotes respect for international law, conflict resolution, and sovereignty, its continued protection of Kagame has directly contributed to prolonged instability in the Great Lakes region, particularly in eastern RDC. The failure to enforce accountability has weakened international norms, emboldened military adventurism, and left millions of Congolese civilians trapped in cycles of violence.

1. U.S. Sponsorship and Kagame's Rise to Power

Paul Kagame's political and military ascent is closely linked to U.S. strategic interests in post-Cold War Africa. Kagame received military training in the United States, including at Fort Leavenworth, and developed close ties with U.S. defence and intelligence networks. Following the 1994 genocide, Washington embraced the Rwandan Patriotic Front (RPF) as a disciplined, reform-oriented force capable of restoring order in a devastated country.

In the context of Western guilt over failing to stop the genocide, Kagame was rapidly elevated as a symbol of African renewal and moral authority. This framing, however, came at the expense of critical scrutiny. Early warnings about RPF abuses — including political repression, extrajudicial killings, and ethnic targeting — were marginalised. The U.S. and its allies prioritised stability and loyalty over accountability.

From this point onward, Kagame was treated not merely as Rwanda's leader, but as a regional security actor whose actions were afforded exceptional tolerance.

2. Militarisation of the Great Lakes Region

Beginning in 1996, Rwanda launched repeated military interventions in the RDC, initially justified as necessary to neutralise génocidaires who had fled across the border. However, these interventions quickly expanded beyond defensive operations.

The UN Mapping Report (2010) documents that Rwandan forces and their allies committed widespread violations in the RDC between 1993 and 2003, including mass killings of civilians, forced displacement, and systematic destruction of refugee populations. The report concluded that some of these acts, if proven before a competent court, could constitute crimes against humanity or genocide.

Despite the gravity of these findings, no international judicial process was initiated against Rwanda. Instead, Kagame's government continued to receive U.S. military cooperation, development assistance, and diplomatic backing.

3. Proxy Warfare and Armed Groups

Over the years, Rwanda has consistently relied on proxy armed groups to maintain influence in eastern RDC. UN Group of Experts reports have repeatedly documented Rwanda's support for:

• CNDP (2006–2009)

• M23 (2012–2013; 2021–present)

These reports detail the provision of weapons, training, intelligence, recruitment, and direct command support from Rwanda to these groups. The 2022 and 2023 UN Group of Experts reports explicitly confirmed the presence of Rwandan Defence Forces (RDF) operating inside Congolese territory alongside M23.

Such actions constitute clear violations of:

• The UN Charter (Article 2(4))

• Multiple UN Security Council resolutions

• Regional peace agreements

• The Washington Agreement

Yet the U.S. response has remained largely rhetorical.

4. The Washington Agreement: Commitments and Breaches

The Washington Agreement was designed to de-escalate tensions between Rwanda and the RDC, reaffirm respect for sovereignty, and end state support for armed groups. Rwanda formally committed to these principles.

However, UN evidence shows that Rwanda has repeatedly violated these commitments by:

• Supporting M23 militarily and logistically

• Conducting cross-border military operations

• Facilitating illicit mineral flows from occupied territories

• Undermining Congolese state authority

These violations are not isolated incidents but part of a sustained strategy of coercive influence. Despite this, the U.S. has refrained from imposing meaningful consequences.

5. U.S. Condemnation Without Consequences

The United States has occasionally expressed "concern" over Rwanda's actions. In 2012, limited aid was temporarily suspended following international pressure over M23. However, this response was short-lived and largely symbolic.

By contrast, states accused of similar conduct elsewhere have faced sanctions, isolation, and international prosecution. Rwanda, however, continues to benefit from:

• U.S. military training and cooperation

• Budgetary and development support

• Diplomatic shielding in international forums

This selective application of accountability undermines the credibility of U.S. foreign policy and reinforces Kagame's perception of impunity.

6. Why the U.S. Continues to Protect Kagame

Several factors explain Washington's reluctance to confront Kagame:

a) Security Subcontracting

Rwanda plays a prominent role in UN and African Union peacekeeping missions, including in Mozambique and the Central African Republic. The U.S. views Rwanda as an efficient, low-cost security partner.

b) Genocide Guilt

Western failure in 1994 has created a political reluctance to challenge Kagame, even when his government violates international law.

c) Strategic Minerals and Regional Control

Eastern RDC contains minerals critical to global supply chains, including coltan, cobalt, and gold. Rwanda's role as a transit and laundering hub benefits multinational interests, while insulating end-users from accountability.

7. Narrative Control and Criminalisation of Criticism

Kagame's government has systematically weaponised genocide memory to suppress dissent. Critics are frequently accused of:

• Genocide denial

• Supporting the FDLR

• Promoting "divisionism"

This strategy has been effective internationally, deterring journalists, academics, and policymakers from scrutinising Rwanda's regional conduct. U.S. silence has reinforced this chilling effect.

8. Consequences for the RDC and Its People

The human cost of this impunity is staggering:

• Over 6 million conflict-related deaths since the late 1990s

• Millions displaced

• Widespread sexual violence

• Chronic humanitarian crises

By tolerating Rwanda's actions, the U.S. has indirectly contributed to the fragmentation of the Congolese state and the normalisation of proxy warfare.

9. Damage to International Law and Multilateralism

When UN findings are ignored, international law becomes optional. Rwanda's case demonstrates how strategic alliances can neutralise accountability mechanisms, eroding trust in the UN system and encouraging similar behaviour elsewhere.

10. What Accountability Would Require

A credible U.S. policy shift would include:

1. Public acknowledgement of Rwanda's violations

2. Targeted sanctions against responsible officials

3. Suspension of military cooperation

4. Support for independent investigations

5. Re-centering Congolese sovereignty and voices

Without these steps, peace initiatives will remain cosmetic.

Conclusion

The United States played a decisive role in bringing Paul Kagame to power and continues to shield him despite overwhelming evidence of regional destabilisation and repeated violations of international agreements, including the Washington Agreement. This protection has enabled impunity, prolonged conflict, and inflicted immense suffering on the people of the RDC.

History will judge not only Kagame's actions, but also those who empowered him and chose silence over accountability. Lasting peace in the Great Lakes region will remain impossible until international law is applied consistently — without exceptions for strategic allies.

References and UN Reports

• UN OHCHR (2010). Democratic Republic of the Congo Mapping Report (1993–2003)

• UN Security Council, Group of Experts on the DRC:

  • S/2012/843

  • S/2022/479

  • S/2023/990

• UN Security Council Resolution 1533 (2004) and renewals

• Human Rights Watch. Rwanda's Support to Armed Groups in Eastern Congo

• International Crisis Group. The Great Lakes Crisis

• Global Witness. Conflict Minerals and Regional Destabilisation

• Charter of the United Nations, Articles 2(4) and 51

Prepared par :

Sam Nkumi, Chris Thomson & Gilberte Bienvenue
Improve Africa, London, UK