Relations between Rwanda and Benin have evolved over the years from high-level political exchanges into broader cooperation covering security, trade and investment, aviation, ICT, digital transformation and public-sector services.

The latest chapter in the relationship came on September 16, when Benin President Romuald Wadagni was received by President Paul Kagame in Kigali on his first official visit to Rwanda since taking office in May.

The two leaders held a tête-à-tête before wider talks focusing on bilateral relations and cooperation.

Wadagni was elected on April 12 and sworn in on May 24, with Prime Minister Justin Nsengiyumva representing Kagame at his inauguration in Cotonou.

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Wadagni’s visit builds on years of diplomatic engagement between Kigali and Cotonou, during which the two countries have steadily expanded their areas of cooperation.

Early presidential exchanges

High-level exchanges date back at least to 2010, when Kagame visited Benin and was awarded the Grand Cross of the National Order of Benin.

The honour, conferred by then-President Boni Yayi, recognised Kagame’s contribution to Africa’s development and his commitment to the continent.

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Relations gained further momentum in August 2016, when then-Beninese President Patrice Talon made a three-day official visit to Rwanda.

During the visit, the two presidents held talks and witnessed the signing of cooperation protocols aimed at expanding ties between the two countries.

Kagame said stronger relations between Rwanda and Benin could contribute to deeper African integration, while Talon highlighted Rwanda’s development experience and its impact beyond the country.

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Cooperation expands

As political ties strengthened, the relationship gradually expanded into other sectors, including aviation, security, trade, investment and public administration.

Aviation was among the early areas of practical cooperation.

RwandAir began flights between Kigali and Cotonou in 2016 and opened a regional hub in Benin the following year, with plans to use Cotonou as a base for connections across West and Central Africa.

In 2017, the two governments signed a memorandum of understanding to establish a joint-venture airline based in Cotonou.

The proposed carrier was expected to connect Benin with destinations including Abidjan, Brazzaville, Douala, Libreville, Bamako, Dakar and Conakry.

The partnership was part of wider efforts to strengthen Benin’s aviation and tourism sectors while improving connectivity between West Africa and other parts of the continent.

Security ties deepen

Security cooperation also became an increasingly important part of the relationship.

In July 2022, Benin’s Chief of Army Staff, Brig Gen Fructueux Candide Ahodegnon Gbaguidi, visited Rwanda and held talks with his Rwandan counterpart at Rwanda Defence Force headquarters.

Gbaguidi said he had been mandated by then-President Patrice Talon to exchange views on security matters and learn from Rwanda’s experience.

Police cooperation also expanded that year, with the Rwanda National Police and Benin Republican Police holding bilateral talks in Kigali.

The discussions covered information and intelligence sharing, counterterrorism, organised crime and police training.

Benin’s then Director General of Police, Soumaila Allabi Yaya, said his country was interested in drawing on Rwanda’s experience in tackling terrorism.

The growing security relationship was formalised further in 2023, when Rwanda and Benin signed a security and military cooperation agreement.

At the time, the two countries also discussed the threat posed by terrorism in the Sahel and its expansion towards coastal West African countries.

2023 marks major expansion

Bilateral ties recorded another significant expansion in April 2023, when Kagame travelled to Cotonou for a two-day state visit.

During the visit, Rwanda and Benin signed nine cooperation agreements covering taxation, agriculture, digital development, local governance, sustainable development, military cooperation, commercial and industrial cooperation, tourism and investment promotion.

The two leaders also discussed implementation of the African Continental Free Trade Area, as well as cooperation in security, defence, the economy and research.

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Kagame also toured Sèmè City, Benin’s flagship innovation and skills-development project, where he interacted with young entrepreneurs, students and start-up managers.

The agreements illustrated how relations had moved beyond presidential diplomacy towards cooperation involving institutions, technical experts and businesses.

Digital and public-sector cooperation

Digital transformation has since emerged as another area of growing cooperation.

The two countries have a mechanism for technical cooperation and the exchange of specialised personnel, allowing experts from either side to work in institutions in the other country based on their expertise and experience.

In 2023, Pascal Nyamulinda, the former director general of Rwanda’s National Identification Agency, was appointed to head Benin’s National Agency for the Identification of Persons.

He was tasked with coordinating the agency responsible for the country’s identification system, including digital and biometric registration.

In March 2024, Rwanda-based Irembo carried out a technical evaluation mission in Benin to assess processes and infrastructure related to the digitalisation of public services.

The mission was part of Benin’s efforts to accelerate digital public-service delivery, with Irembo sharing recommendations and lessons from Rwanda’s experience.

Institutional exchanges have also extended to public finance management.

In August 2026, a delegation from Benin’s Inspection Générale des Finances visited Rwanda’s Office of the Auditor General to learn about public-sector auditing, financial and audit information systems, and the management of public resources.

The delegation exchanged experiences with its Rwandan counterparts on auditing government revenue and expenditure, audit planning, quality assurance, communicating audit findings and following up on recommendations.

A new phase under Wadagni

Wadagni’s visit to Kigali now marks the beginning of a new phase in a relationship that has broadened considerably over the past decade and a half.

His administration inherits a framework of cooperation spanning political dialogue, defence and security, aviation, digital services, trade and investment, tourism and public-sector management.

The September 16 talks with Kagame provide the two governments with an opportunity to build on those existing arrangements and explore how the partnership can develop further under Benin’s new leadership.