Declaration of Principles

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Country/entity: Democratic Republic of Congo
Rwanda
Region: Africa (excl MENA)
Agreement name: Declaration of Principles
Date: 25 Apr 2025
Agreement status: Multiparty signed/agreed
Interim arrangement: Yes
Agreement/conflict level: Interstate/intrastate conflict(s)
Congo Civil Wars (1996 - )
The overthrow of the long-term dictator Mobutu Sese Seko by a rebel Tutsi army backed by Uganda and Rwanda in 1997 acted as a catalyst for a war with regional dimensions, mainly fought in the eastern Kivu provinces. The conflict escalated in 1998, when President Laurent Kabila, then backed by Zimbabwean and Angolan troops, ordered Rwanda and Uganda to leave. After Kabila’s assassination in 2001, his son Joseph took over the presidency and won in the 2006 democratic elections.

In the eastern provinces, Tutsi-led militias, mainly organised in the National Congress for the Defense of the People (CNDP), fought the remnants of the Rwandan Hutu force FDLR, with further involvement of Rwandan and Ugandan troops. Other regionally operating militia groups, like the Lord’s Resistance Army from Northern Uganda, the so-called Mai Mai groups or guerrilla outfits like the March 23 Movement (M23) further contributed, and still contribute, to the complexity of the situation in eastern DRC.

Following Joseph Kabila's departure in 2019, his successor Félix Tshisekedi faced renewed instability as the M23 rebel group, dormant since 2013, resumed operations in late 2021 with substantial Rwandan support. In January 2025, M23 forces backed by Rwandan troops captured the regional capital Goma in the most serious escalation since the Second Congo War. This prompted U.S. mediation under President Trump, leading to talks in Qatar in March 2025 and a preliminary peace agreement signed in Washington on June 27, 2025. The Washington Accords were formally signed by Presidents Tshisekedi and Kagame on December 4, 2025, committing Rwanda to withdraw troops and cease M23 support while the DRC pledged to neutralize the FDLR and establish regional economic integration with significant U.S. commercial involvement. However, fighting continues as of late 2025, with both sides accused of violating commitments.
Stage: Pre-negotiation/process
Conflict nature: Government/territory
Peace process: DRC: the Doha Track for Eastern DRC
Parties: FOR THE GOVERNMENT OF THE DEMOCRATIC REPUBLIC OF THE CONGO, Thérèse Kayikwamba Wagner Minister of Foreign Affairs and Cooperation

FOR THE GOVERNMENT OF THE REPUBLIC OF RWANDA, Olivier J.P. Nduhungirehe Minister of Foreign Affairs and International Cooperation
Third parties: Witnessed by:
THE GOVERNMENT OF THE UNITED STATES OF AMERICA
Marco Rubio Secretary of State
Description: Principles document by DRC and Rwanda recognising mutual borders, security concerns, and committing to: joint security coordination; phased regional-economic integration; safe return of IDPs/refugees; support for MONUSCO & regional forces; and preparation of a draft peace agreement under U.S. facilitation.

Agreement document: DC_RW_250425_Declaration of Principles (opens in new tab) | Download PDF
Source of document: https://www.state.gov/releases/bureau-of-african-affairs/2025/04/declaration-of-principles/

Groups

Children/youth: No specific mention.
Disabled persons: No specific mention.
Elderly/age: No specific mention.
Migrant workers: No specific mention.
Racial/ethnic/national group: No specific mention.
Religious groups: No specific mention.
Indigenous people: No specific mention.
Other groups: No specific mention.
Refugees/displaced persons: Groups→Refugees/displaced persons→Substantive
4. RETURN OF IDPS AND REFUGEES
The Participants commit, with the support of UN agencies and appropriate humanitarian organizations, to facilitate the safe and voluntary return of IDPs to their original places of residence in eastern DRC following the return of peace to those areas, as well as DRC citizens who have been displaced by conflict and currently reside in Rwanda or other countries, in a manner consistent with their international legal obligations.
Social class: No specific mention.

Gender

Women, girls and gender: No specific mention.
Men and boys: No specific mention.
LGBTI: No specific mention.
Family: No specific mention.

State definition

Nature of state (general): 1. SOVEREIGNTY, TERRITORIAL INTEGRITY, AND GOVERNANCE
The Participants mutually acknowledge each other’s sovereignty and territorial integrity and commit to a pathway to resolve their disputes by peaceful means grounded in diplomacy and negotiation rather than hostile force or rhetoric.
The Participants mutually acknowledge each other’s established territorial borders and commit to refrain from actions or rhetoric that threaten or question the validity of those borders.
The Participants acknowledge each Participant’s sovereign right to govern and administer its own territory in a manner that does not infringe on the other Participant’s sovereignty or territorial integrity.
The Participants commit to refrain from interfering in each other’s internal affairs.
State configuration: No specific mention.
Self determination: No specific mention.
Referendum: No specific mention.
State symbols: No specific mention.
Independence/secession: No specific mention.
Accession/unification: No specific mention.
Border delimitation: No specific mention.
Cross-border provision: No specific mention.

Governance

Political institutions (new or reformed): No specific mention.
Elections: No specific mention.
Electoral commission: No specific mention.
Political parties reform: No specific mention.
Civil society: No specific mention.
Traditional/religious leaders: No specific mention.
Public administration: No specific mention.
Constitution: No specific mention.

Power sharing

Political power sharing: No specific mention.
Territorial power sharing: No specific mention.
Economic power sharing: No specific mention.
Military power sharing: No specific mention.

Human rights and equality

Human rights/RoL general: No specific mention.
Bill of rights/similar: No specific mention.
Treaty incorporation: No specific mention.
Civil and political rights: No specific mention.
Socio-economic rights: No specific mention.

Rights related issues

Citizenship: No specific mention.
Democracy: No specific mention.
Detention procedures: No specific mention.
Media and communication: No specific mention.
Mobility/access: No specific mention.
Protection measures: Rights related issues→Protection measures→Protection of civilians
5. MONUSCO AND REGIONAL FORCES AND MECHANISMS
The Participants commit to support MONUSCO in accordance with its mandate and commit to protect, facilitate, and promote MONUSCO’s ability to protect civilian populations and perform all obligations mandated by the UNSC, including functions that support the implementation of UNSC Resolution 2773.
The Participants commit to protect, facilitate, and promote the ability of MONUSCO and regional forces and mechanisms to act in accordance with their respective mandates, including as necessary for an agreed-upon verification mechanism and inter-positional force to facilitate the good faith implementation of these Principles by the Participants and non-state armed groups.
Other: No specific mention.

Rights institutions

NHRI: No specific mention.
Regional or international human rights institutions: No specific mention.

Justice sector reform

Criminal justice and emergency law: No specific mention.
State of emergency provisions: No specific mention.
Judiciary and courts: No specific mention.
Prisons and detention: No specific mention.
Traditional Laws: No specific mention.

Socio-economic reconstruction

Development or socio-economic reconstruction: Socio-economic reconstruction→Development or socio-economic reconstruction→Socio-economic development
2. SECURITY CONCERNS
...
The Participants acknowledge that peace, security, and stability are essential to increase legitimate commercial trade and broader regional economic cooperation.
...
3. REGIONAL ECONOMIC INTEGRATION FRAMEWORK
...
national park management;
derisking of mineral supply chains;
Socio-economic reconstruction→Development or socio-economic reconstruction→Infrastructure and reconstruction
3. REGIONAL ECONOMIC INTEGRATION FRAMEWORK
...
The Participants commit to explore options to link this framework to other international or regional economic development initiatives, including in infrastructure projects.
The Participants commit to launch and/or expand cooperation on shared priorities such as hydropower development;
National economic plan: No specific mention.
Natural resources: 3. REGIONAL ECONOMIC INTEGRATION FRAMEWORK
The Participants commit to a phased regional economic integration framework building on existing efforts, such as the ICGLR, COMESA, and the EAC, that provides both Participants with expanded foreign trade and investment and introduces greater transparency to ensure both Participants prosper from the region’s natural resources through mutually beneficial partnerships and investment opportunities.
...
derisking of mineral supply chains;
and transparent, formalized, and licit end-to-end mineral value chains (from mine to processed metal) that link both countries, in partnership with the U.S. government and U.S. investors.
International funds: 3. REGIONAL ECONOMIC INTEGRATION FRAMEWORK
...
The Participants expect this framework to be accompanied by the launch or expansion of significant investments, including those facilitated by the U.S. government and U.S. private sector, aimed at transforming the regional economy to the benefit of all participating countries.
The Participants commit to explore options to link this framework to other international or regional economic development initiatives, including in infrastructure projects.
Business: 3. REGIONAL ECONOMIC INTEGRATION FRAMEWORK
The Participants commit to a phased regional economic integration framework building on existing efforts, such as the ICGLR, COMESA, and the EAC, that provides both Participants with expanded foreign trade and investment and introduces greater transparency to ensure both Participants prosper from the region’s natural resources through mutually beneficial partnerships and investment opportunities.
The Participants expect this framework to be accompanied by the launch or expansion of significant investments, including those facilitated by the U.S. government and U.S. private sector, aimed at transforming the regional economy to the benefit of all participating countries.
...
derisking of mineral supply chains;
and transparent, formalized, and licit end-to-end mineral value chains (from mine to processed metal) that link both countries, in partnership with the U.S. government and U.S. investors.
Taxation: No specific mention.
Banks: No specific mention.

Land, property and environment

Land reform/rights: Land, property and environment→Land reform/rights→Land reform and management
3. REGIONAL ECONOMIC INTEGRATION FRAMEWORK
...
national park management;
Pastoralist/nomadism rights: No specific mention.
Cultural heritage: No specific mention.
Environment: No specific mention.
Water or riparian rights or access: 3. REGIONAL ECONOMIC INTEGRATION FRAMEWORK
...
The Participants commit to launch and/or expand cooperation on shared priorities such as hydropower development;

Security sector

Security Guarantees: 1. SOVEREIGNTY, TERRITORIAL INTEGRITY, AND GOVERNANCE
...
The Participants commit to refrain from interfering in each other’s internal affairs.
2. SECURITY CONCERNS
The Participants acknowledge they both have legitimate security concerns in their shared border region and commit to address such concerns in a manner consistent with both Participants’ sovereignty and territorial integrity.
The Participants acknowledge that peace, security, and stability are essential to increase legitimate commercial trade and broader regional economic cooperation.
...
The Participants commit to explore the establishment of a joint security coordination mechanism to counter non-state armed groups and criminal organizations that threaten the Participants’ legitimate security concerns.
...
5. MONUSCO AND REGIONAL FORCES AND MECHANISMS
The Participants commit to support MONUSCO in accordance with its mandate and commit to protect, facilitate, and promote MONUSCO’s ability to protect civilian populations and perform all obligations mandated by the UNSC, including functions that support the implementation of UNSC Resolution 2773.
The Participants commit to protect, facilitate, and promote the ability of MONUSCO and regional forces and mechanisms to act in accordance with their respective mandates, including as necessary for an agreed-upon verification mechanism and inter-positional force to facilitate the good faith implementation of these Principles by the Participants and non-state armed groups.
Ceasefire: Security sector→Ceasefire→General commitments
5. MONUSCO AND REGIONAL FORCES AND MECHANISMS
The Participants commit to support MONUSCO in accordance with its mandate and commit to protect, facilitate, and promote MONUSCO’s ability to protect civilian populations and perform all obligations mandated by the UNSC, including functions that support the implementation of UNSC Resolution 2773.
The Participants commit to protect, facilitate, and promote the ability of MONUSCO and regional forces and mechanisms to act in accordance with their respective mandates, including as necessary for an agreed-upon verification mechanism and inter-positional force to facilitate the good faith implementation of these Principles by the Participants and non-state armed groups.
Police: No specific mention.
Armed forces: No specific mention.
DDR: No specific mention.
Intelligence services: No specific mention.
Parastatal/rebel and opposition group forces: 2. SECURITY CONCERNS
...
The Participants acknowledge their shared interest in limiting the proliferation of non- state armed groups within and across their borders and commit to refrain from providing state military support to non-state armed groups.
The Participants commit to explore the establishment of a joint security coordination mechanism to counter non-state armed groups and criminal organizations that threaten the Participants’ legitimate security concerns.
...
5. MONUSCO AND REGIONAL FORCES AND MECHANISMS
...
The Participants commit to protect, facilitate, and promote the ability of MONUSCO and regional forces and mechanisms to act in accordance with their respective mandates, including as necessary for an agreed-upon verification mechanism and inter-positional force to facilitate the good faith implementation of these Principles by the Participants and non-state armed groups.
Withdrawal of foreign forces: No specific mention.
Corruption: No specific mention.
Crime/organised crime: 2. SECURITY CONCERNS
...
The Participants commit to explore the establishment of a joint security coordination mechanism to counter non-state armed groups and criminal organizations that threaten the Participants’ legitimate security concerns.
Drugs: No specific mention.
Terrorism: No specific mention.

Transitional justice

Transitional justice general: No specific mention.
Amnesty/pardon: No specific mention.
Courts: No specific mention.
Mechanism: No specific mention.
Prisoner release: No specific mention.
Vetting: No specific mention.
Victims: No specific mention.
Missing persons: No specific mention.
Reparations: No specific mention.
Reconciliation: No specific mention.

Implementation

UN signatory: No specific mention.
Other international signatory: 6. PEACE AGREEMENT
...
Witnessed by: THE GOVERNMENT OF THE UNITED STATES OF AMERICA, Marco Rubio Secretary of State
Referendum for agreement: No specific mention.
International mission/force/similar: 5. MONUSCO AND REGIONAL FORCES AND MECHANISMS
The Participants commit to support MONUSCO in accordance with its mandate and commit to protect, facilitate, and promote MONUSCO’s ability to protect civilian populations and perform all obligations mandated by the UNSC, including functions that support the implementation of UNSC Resolution 2773.
The Participants commit to protect, facilitate, and promote the ability of MONUSCO and regional forces and mechanisms to act in accordance with their respective mandates, including as necessary for an agreed-upon verification mechanism and inter-positional force to facilitate the good faith implementation of these Principles by the Participants and non-state armed groups.
Enforcement mechanism: 6. PEACE AGREEMENT
In furtherance of these Principles, consistent with the Nairobi Process and the Luanda Process, now merged under the EAC-SADC framework, as endorsed by the AU under President Gnassingbe’s facilitation, taking into consideration the current Doha talks between the government of DRC, the government of Rwanda and M23/AFC and in cooperation and consultation with the U.S. government, the Participants commit to coordinate through existing channels to generate an initial draft Peace Agreement for the Participants’ mutual review no later than May 2.
To resolve disagreements around the draft text of the Peace Agreement, the Participants commit to meet at the Foreign Minister level in Washington, D.C., hosted by the U.S. Department of State.

Declaration of Principles

Between the Government of the Democratic Republic of the Congo and the Government of the Republic of Rwanda (the Participants), in support of a pathway to peace, stability, and integrated economic development in the eastern DRC region and the resumption of normal bilateral relations between the Participants.

Signature of this document affirms the political commitment of the Participants set forth herein.

1. SOVEREIGNTY, TERRITORIAL INTEGRITY, AND GOVERNANCE

The Participants mutually acknowledge each other’s sovereignty and territorial integrity and commit to a pathway to resolve their disputes by peaceful means grounded in diplomacy and negotiation rather than hostile force or rhetoric.

The Participants mutually acknowledge each other’s established territorial borders and commit to refrain from actions or rhetoric that threaten or question the validity of those borders.

The Participants acknowledge each Participant’s sovereign right to govern and administer its own territory in a manner that does not infringe on the other Participant’s sovereignty or territorial integrity.

The Participants commit to refrain from interfering in each other’s internal affairs.

2. SECURITY CONCERNS

The Participants acknowledge they both have legitimate security concerns in their shared border region and commit to address such concerns in a manner consistent with both Participants’ sovereignty and territorial integrity.

The Participants acknowledge that peace, security, and stability are essential to increase legitimate commercial trade and broader regional economic cooperation.

The Participants acknowledge their shared interest in limiting the proliferation of non- state armed groups within and across their borders and commit to refrain from providing state military support to non-state armed groups.

The Participants commit to explore the establishment of a joint security coordination mechanism to counter non-state armed groups and criminal organizations that threaten the Participants’ legitimate security concerns.

3. REGIONAL ECONOMIC INTEGRATION FRAMEWORK

The Participants commit to a phased regional economic integration framework building on existing efforts, such as the ICGLR, COMESA, and the EAC, that provides both Participants with expanded foreign trade and investment and introduces greater transparency to ensure both Participants prosper from the region’s natural resources through mutually beneficial partnerships and investment opportunities.

The Participants expect this framework to be accompanied by the launch or expansion of significant investments, including those facilitated by the U.S. government and U.S. private sector, aimed at transforming the regional economy to the benefit of all participating countries.

The Participants commit to explore options to link this framework to other international or regional economic development initiatives, including in infrastructure projects.

The Participants commit to launch and/or expand cooperation on shared priorities such as hydropower development;

national park management;

derisking of mineral supply chains;

and transparent, formalized, and licit end-to-end mineral value chains (from mine to processed metal) that link both countries, in partnership with the U.S. government and U.S. investors.

4. RETURN OF IDPS AND REFUGEES

The Participants commit, with the support of UN agencies and appropriate humanitarian organizations, to facilitate the safe and voluntary return of IDPs to their original places of residence in eastern DRC following the return of peace to those areas, as well as DRC citizens who have been displaced by conflict and currently reside in Rwanda or other countries, in a manner consistent with their international legal obligations.

5. MONUSCO AND REGIONAL FORCES AND MECHANISMS

The Participants commit to support MONUSCO in accordance with its mandate and commit to protect, facilitate, and promote MONUSCO’s ability to protect civilian populations and perform all obligations mandated by the UNSC, including functions that support the implementation of UNSC Resolution 2773.

The Participants commit to protect, facilitate, and promote the ability of MONUSCO and regional forces and mechanisms to act in accordance with their respective mandates, including as necessary for an agreed-upon verification mechanism and inter-positional force to facilitate the good faith implementation of these Principles by the Participants and non-state armed groups.

6. PEACE AGREEMENT

In furtherance of these Principles, consistent with the Nairobi Process and the Luanda Process, now merged under the EAC-SADC framework, as endorsed by the AU under President Gnassingbe’s facilitation, taking into consideration the current Doha talks between the government of DRC, the government of Rwanda and M23/AFC and in cooperation and consultation with the U.S. government, the Participants commit to coordinate through existing channels to generate an initial draft Peace Agreement for the Participants’ mutual review no later than May 2.

To resolve disagreements around the draft text of the Peace Agreement, the Participants commit to meet at the Foreign Minister level in Washington, D.C., hosted by the U.S. Department of State.

Signed at Washington on April 25, 2025, in duplicate, in the English language.

FOR THE GOVERNMENT OF THE DEMOCRATIC REPUBLIC OF THE CONGO

Thérèse Kayikwamba Wagner Minister of Foreign Affairs and Cooperation

FOR THE GOVERNMENT OF THE REPUBLIC OF RWANDA

Olivier J.P. Nduhungirehe Minister of Foreign Affairs and International Cooperation

Witnessed by: THE GOVERNMENT OF THE UNITED STATES OF AMERICA, Marco Rubio Secretary of State

LIST OF ACRONYMS

AU – African Union

DRC – Democratic Republic of Congo

EAC – East African Community

IDPs – Internally Displaced Persons

MONUSCO – United Nations Stabilization Mission in the Democratic Republic of the Congo

SADC – Southern African Development Community

UN – United Nations

UNSC – United Nations Security Council

Declaration of Principles

Groups

Gender

State definition

Governance

Power sharing

Human rights and equality

Rights related issues

Rights institutions

Justice sector reform

Socio-economic reconstruction

Land, property and environment

Security sector

Transitional justice

Implementation

Source agreement