The Rwandan delegation in Washington, D.C., this week came prepared to sign the long-awaited Regional Economic Integration Framework (REIF).
The REIF is a landmark agreement brokered under the mediation of the United States, designed to turn peace commitments between Rwanda and the Democratic Republic of the Congo (DRC) into tangible economic cooperation.
But just as optimism reached its peak, Kinshasa’s delegation abruptly pulled back. The DRC refused to sign the deal at the eleventh hour, a decision that has not only shocked mediators and observers but also cast doubt on its commitment to regional peace, security, and prosperity.
“We are puzzled by the DRC’s last-minute decision not to sign the agreement, given the positive atmosphere of the negotiations during which the text of the REIF was finalised, and the diligent mediation work of Senior Advisor Massad Boulos and the State Department,” Rwanda government spokesperson Yolande Makolo said in a statement shared.
Her words reflect more than diplomatic disappointment — they underscore growing frustration in Kigali and Washington alike that Kinshasa’s unpredictable behaviour could unravel months of progress toward stabilising one of Africa’s most volatile regions.
What the REIF represents
The REIF was conceived as the economic arm of the Peace Agreement signed between Rwanda and the DRC in June 2025, under U.S. mediation. While the peace accord focused on halting hostilities, neutralising armed groups such as the Democratic Forces for the Liberation of Rwanda (FDLR) and lifting Rwanda’s defensive measures, the REIF was meant to transform that fragile truce into a mutually beneficial partnership.
It aimed to promote cross-border trade, joint infrastructure development, and investment incentives across sectors like transport, energy, and agriculture. The underlying principle was simple yet ambitious: peace would endure if it produced prosperity.
According to the U.S. State Department’s joint communiqué released after the Third Joint Oversight Committee (JOC) meeting, both Kigali and Kinshasa had agreed on the final text of the REIF.
The framework was seen as a crucial confidence-building measure, a practical step forward to consolidate trust through economic interdependence.
Kinshasa’s last-minute U-turn
Rwanda’s Foreign Minister, Olivier Nduhungirehe and other officials confirmed that the DRC delegation had initially shown readiness to sign the REIF. However, just before the ceremony, President Félix Tshisekedi reportedly instructed his team to withdraw, citing domestic concerns and fears of political backlash at home.
This unexpected reversal not only blindsided mediators but also undercut the momentum of a process that had taken months of meticulous negotiation.
For Rwanda, it was a reminder of what officials describe as a “pattern of inconsistency” from their Congolese counterparts — an unwillingness to translate verbal commitments into concrete action.
“This was not just a diplomatic formality,” Makolo said. “The REIF was meant to give life to the peace agreement — to make it meaningful for our people and for the region’s development. The DRC’s decision is a serious setback to that vision.”
A disturbing pattern of non-commitment
Observers note that Kinshasa’s refusal to sign the REIF is not an isolated incident. It reflects a broader reluctance to fully implement obligations under the peace accord — particularly the neutralisation of the FDLR, an armed group that Rwanda regards as an existential security threat due to its historical ties to perpetrators of the 1994 Genocide against the Tutsi.
Under the June peace agreement, the DRC committed to act decisively against the FDLR and to cooperate with verification mechanisms under U.S. and regional oversight.
Rwanda, in turn, was to lift defensive measures taken along the shared border once credible steps were taken against the militia.
However, as the U.S. communiqué noted, progress has been slow. The joint security coordination mechanism remains only partially operational, and mutual accusations continue to undermine trust. Kinshasa’s apparent hesitancy to confront the FDLR has become one of the most contentious issues in the process.
“On the peace agreement, specifically the neutralisation of the DRC-backed FDLR and Rwanda lifting defensive measures accordingly, the DRC had refused to proceed until specific actions agreed this past Wednesday during the Joint Oversight Committee meeting were implemented,” Makolo said, referencing details in the official communiqué.
Five ways the DRC is discouraging regional peace
Eroding diplomatic trust – the last-minute withdrawal from the signing table damages not just Rwanda’s confidence but also that of international mediators. Once commitments become fluid, future negotiations lose credibility.
Using domestic politics as a shield – while leaders naturally consider internal opinion, repeatedly invoking domestic politics to delay or avoid commitments signals unreliability. It suggests that external agreements can be sacrificed at any moment for short-term political gain.
Delaying security implementation – the DRC’s slow pace in dismantling the FDLR and other militias gives the impression that it is either unable or unwilling to enforce its own pledges — leaving Rwanda with no choice but to maintain defensive measures.
Weakening U.S. mediation – the peace process has been heavily backed by Washington. The U.S. has invested significant diplomatic capital through envoy Massad Boulos. Repeated reversals by Kinshasa risk undermining the credibility of that mediation.
Stalling economic progress – every delay in the REIF postpones opportunities for infrastructure development, regional trade, and job creation. For the Great Lakes region — one of Africa’s most resource-rich yet conflict-prone zones — this hesitation is a costly missed opportunity.
The broader implications – Eastern DRC remains plagued by instability, with dozens of armed groups operating near the Rwandan and Ugandan borders. The peace agreement and REIF were supposed to mark a turning point — aligning security with economic growth. By refusing to sign, Kinshasa risks undoing the fragile optimism that had begun to take root.
Investors and donors who were ready to back cross-border projects will likely hold back. Regional confidence could wane. Most worryingly, the political signal is that DRC’s leadership may not yet be ready to match words with deeds when it comes to peace.
For Rwanda, however, the message remains clear. “Rwanda believes in the peace agreement and in the approach of the U.S. mediation,” Makolo reaffirmed.
“We hope that the REIF will eventually be signed. The peace process must succeed — it is the best chance for stability and economic development for our region.”
The road ahead
The next steps will depend on whether the DRC recommits to the principles it has already endorsed. Experts suggest that Washington may push for a phased approach — where economic cooperation moves forward in stages, tied to verifiable progress on security benchmarks. Regional bodies like the African Union and East African Community may also be called upon to provide guarantees and oversight.
Ultimately, peace cannot thrive on rhetoric alone. It requires discipline, consistency, and political courage — qualities that will determine whether Kinshasa’s hesitation in Washington was a temporary stumble or a defining setback.
For now, Rwanda’s delegation leaves Washington with its signature pen unused but its message resolute: regional peace and economic integration are still possible — but only if all parties honor their word.
