Strategic Action Plan Validated Final Edited

RWANDA PACKAGING STRATEGIC
ACTION PLAN (SAP)

2023-2028
Rwanda Packaging SAP 2023-2028
FOREWORD
National development remains one of the highest responsibilities of the Government. Rwanda is
a forward-looking country with the aim to belong to the top 10 countries in doing business in 2035
and ranks among the top 20 economies in competitiveness by 2035 and top 10 in 2050. In the
last 23 years, Rwanda has taken back the reigns to redefine itself as the preferred investment
and tourism destination in Africa. Rwanda has become a reference point for good governance in
the region, political stability with well-functioning institutions, observance of the rule of law and
zero tolerance for corruption.
A robust strategic planning has been the skeleton leading the country to the development while
the strategic action plan served as the road map to the sustainable development.
This Strategic Action Plan (SAP), which will be used as the Government’s overarching reference
point to steer the packaging sector national development efforts. In this SAP under each of four
packaging strategic pillars (Investment Promotion for Packaging Materials, Encourage
Environmentally Friendly Packaging Materials, Promote Backward and Forward Linkage,
Sustainable Packaging Technologies), we have listed the strategic actions and key performance
indicators relevant to each pillar and the precise steps that we will take to accomplish them.
Further, we have taken care to ensure that each step is time-bound and must occur within a
specified deadline.
This SAP not only provides a comprehensive and accessible outline of national packaging
strategy agenda for the next five years, it also holds responsible institutions accountable to make
clear what its deliverables are and when results can be expected.
Rwanda Packaging Strategic Action Plan 2023-2028

Contents
List of Figures ............................................................................................................................................. 3

List of Abbreviations................................................................................................................................... 4
CHAPTER 1: INTRODUCTION ............................................................................................................... 6
CHAPTER 2: PACKAGING STRATEGIC ACTION PLAN CONTEXT .............................................. 7
2.1. SAP Scope ...................................................................................................................................... 8
2.2. Rwanda packaging Policy Context ............................................................................................ 10
CHAPTER 3: IMPLEMENTATION OF THE SAP 2028 ...................................................................... 11
3.1. Critical Success Factors .............................................................................................................. 11
3.2. Implementation Approach ........................................................................................................... 12
Foundation Phase: 2024-2025 ........................................................................................................... 12
Development Phase: 2025-2026........................................................................................................ 14
Realization Phase: 2027-2029 ........................................................................................................... 14
3.3. Priority Areas and Resources ..................................................................................................... 14
3.3.1. Design Technologies ............................................................................................................ 15
3.3.1.1. Resources for Design ........................................................................................................ 15
3.3.2. Systems and Education........................................................................................................ 16
3.3.2.1 Resources for Systems and Education ........................................................................... 16
CHAPTER 4: MONITORING, REVIEW AND EVALUATION ............................................................ 18
4.1. Key Performance Indicators........................................................................................................ 18
Development: KPIs and Measures 2025 to 2026 .............................................................................. 18
Realization: KPIs and Measures 2027 to 2029 ................................................................................ 19
CHAPTER 5: SAP 2023-2028 Governance ......................................................................................... 20
5.1 Roles and responsibilities ............................................................................................................. 20
5.1.2. Role of Government .................................................................................................................. 21
CHAPTER 6: FINANCING THE SAP .................................................................................................... 22
6.1. Domestic resource mobilization – Budgeting ........................................................................... 22
6.2. External resource mobilization ................................................................................................... 22

List of Figures
Figure 1: Challenges in packaging design, education, and material circularity ............................ 7
Figure 2: Strategic pillars aligned with the strategic vision. .......................................................... 8
Figure 3: Strategic targets that will be achieved by 2028 in the packaging industry ..................... 9
Figure 4: Implementation approach ............................................................................................ 12
Figure 5: SAP implemenation institutional arrangement ............................................................ 15
Figure 6. SAP Governance arrangements .................................................................................. 20

List of Abbreviations
7YGP : Seven-Year Government Program

AfCFTA : African Continental Free Trade Area
ART : Annual Reporting Tool
DMRS : Domestic Market Recapturing Strategy
EDP : Entrepreneurship Development Policy
FDA : Food and Drugs Authority
FMCG : Fast-Moving Consumer Goods
KPIs : Key Performance Indicators
KTP : Knowledge Transfer Partnerships
LODA : Local Administrative Entities Development Agency
MINECOFIN : Ministry of Finance and Economic Planning and the
MINEDUC : Ministry of Education
MINICOM : Ministry of Trade and Industry
MININVEST : Ministry of Public Investments and Privatization
MSME : Micro, Small and Medium Enterprises
MT : Millions of Tones
NIRDA : National Industrial Research Development Agency
NISR : National Institute of Statistics Rwanda
NST1 : National Strategy for transformation
PMA : Packaging Material Association’s
PMA : Packaging Manufacturers Association
PRDC : Packaging Research and Design Center
PS : Packaging Strategies
PSF : Private Sector Federation

RDB : Rwanda Development Board
REMA : Rwanda Environment Management Authority
RICA : Rwanda Inspectorate, Competition and Consumer Protection Authority
RLRC : Rwanda Law Reform Commission
RP : Rwanda Polytechnic
RRA : Rwanda Revenue Authority

RSB : Rwanda Standard Board

RURA : Rwanda Utilities Regulatory Authority
SAP : Strategic Action Plan
SGI : Specialized Government Institutions
SWGs : Specialized Working Groups
TVET : Technical and Vocational Education and Training
UTIs : University Teaching Institutions
WPO : World Packaging Organizations

CHAPTER 1: INTRODUCTION
In a way packaging can be described as art and science of protecting products for storage,
distribution and use. The main purpose of packaging is to protect and preserve the goods for
logistics, warehousing and for end use. The food and beverage industry is one of the main users
of packaging. These days, around the world, lot of importance is given to packaging, as goods
are being transported from one part of the world to the other.
The World Packaging Organizations (WPO) slogan, “Better Quality of Life through Better
Packaging”, sums up the important place that packaging occupies in a modern economy. To
ensure that public appreciation of this role and the policy-makers’ support to the industry are not
diluted, attention should be paid to basic issues like collection, segregation and reuse of synthetic
packaging material and observation of regulatory requirements.
The Government of Rwanda through the Ministry of Finance and Economic Planning
(MINECOFIN) and the Rwanda Development Board (RDB) through its Special Economic Zones
and Export Facilitation Department are working to promote the domestic market recapturing
strategy (DMRS) developed by MINECOFIN in 2015.
The packaging sector was identified as one of the potential sub-sectors of an industry that
deserves special attention for policy intervention for domestic market recapturing. The packaging
sector was selected due to its role in the marketing of manufactured products and its considerable
import bill. In addition, Rwanda has committed to implementing global initiatives of environmental
protection and climate change mitigation whereby plastic-based single-use packaging materials
must be phased out in favor of alternative packaging materials that are friendly to the environment.
In order to implement the recommendations from the domestic market recapturing strategy
(DMRS), MINICOM developed the first ever Packaging Strategy for a five-year period (2022-
2027). The strategy provides strategic direction and responses to the emerging issues and critical
challenges in sector.
This Strategic Action Plan (SAP) is a central policy implementation framework and planning
document that guides the overall development direction of the packaging sector for the next five
years.
The SAP consolidates the current Government’s manifesto pledges with existing sectoral
priorities. The SAP serves as the main implementation and monitoring tool to track the progress
of the delivery of the Government’s packaging policies and development priorities. The SAP is
formally rolled out into the line ministries’ day to day operations from 1 January 2024.

CHAPTER 2: PACKAGING STRATEGIC ACTION PLAN

CONTEXT
This strategic action plan is the implementing document of the national packaging strategy 2022-
2017 published by MINICOM. The SAP was informed by the Inventory, Mapping and need
Assessment report on existing packaging manufacturers and industrial packaging users; with
emphasis to these with export potential. The report also analyzed the primary packaging situation
in terms of packaging manufacturers main features; identified the technological and packaging
gaps per sector; identified the packaging constraints affecting export; and provided
recommendations on growth strategies. It has been observed during the assessment and
discussion with different industry representatives that through packaging value chain the Rwanda
industry is lacking:
 Product Design Standards;

 Legislative Agenda, Policy, Regulation, Grants and Facilitation
 Packaging Product Procurement standards
DESIGN SYSTEM & EDUCATION MATERIAL CIRCULARITY

TECHNOLOGIES
 Lack of Packaging Product
• Prevalence of old and • No availability of
Procurement standards
skilled resources
outdated technology in  Lack of Closed Loop
packaging industry. • Lack of technical
Projects,
• Awareness of packaging expertise
 Lack of Strategic
technology. • Lack of specialized
Partnerships
• Very little automation institution for
• Limited quality products packaging
Figure 1: Challenges in packaging design, education, and material circularity
Some suggestive remedial measures for the packaging industry are to provide
 Special support for packaging sector (Capital investment and subsidy);

 Technology improvement & technology up-gradation (facilitation of technology transfer,
quality certification assistance, setting up of task force);
 Market promotion (Government may consider to develop a packaging cell, create a
directory for packaging);
 Export promotion (exposure visit, set up participation in international fairs);
 Tax relief to develop innovative packaging (Import duty, central excise Tax);
 Packaging norms to create a world class infrastructure;
 Promotion of education, establish training centers for skill up-gradation and awareness.

The assessment identified the packaging potential ideas that were validated by packaging sector
stakeholders as per the following table.
Project idea Description
General Unified Warehouse of

To enable local manufacturers to quickly get cheaper raw materials.
different imported raw materials
To provide raw materials to manufacturers of paper packaging which

Manufacturing kraft paper
are continuously increasing.
Manufacturing of labels (Roll feed The market is assured since the same are used in Beverages and
form) FMCG industries and are currently imported
Trend showing Increasing demand; is ~100% recyclable and good

Aluminum cans alternative to plastic in some situation and availability of recycling
options in Rwanda.
Increase in local Breweries production directly result in increased
demand of glass bottles.
Glass bottles As alternative to plastic and is 100% recyclable
Raw material is available
Only issue is FUEL cost which needs deeper analysis
2.1. SAP Scope
In relation to packaging sector in Rwanda, the five years strategic vision is to develop a domestic
packaging sector able to significantly contribute to the reduction of the Rwanda trade deficit and
play a critical role in packaging, marketing and promotion of Made in Rwanda products.
The following pillars have been developed to align with the strategic vision:
 Investment Promotion for Packaging Materials
 Encourage Environmentally Friendly Packaging Materials
 Promote Backward and Forward Linkage
 Ensure Sustainable Packaging Technologies
Figure 2: Strategic pillars aligned with the strategic vision.

Through the implementation of the above pillars, the following targets will be achieved by 2029:
 Establishment of research and design development center for packaging

 To satisfy the local demand of packaging boxes from 17,643 MT in 2021 to 27,756 MT in
2029
 To satisfy the local demand of packaging paper bags from 3,832 MT in 2021 to 4,966 MT
in 2029
 To satisfy the local demand of packaging woven sacks from 4,094 MT in 2021to 5,526 MT
in 2029
 To reduce the local demand of packaging plastics from 871 MT in 2021 to 519 MT in 2029
 To satisfy the local demand of packaging glass bottles from 19,530 MT in 2021to 24,179
MT in 2029
 To satisfy the local demand of packaging metal packaging from 3,216 MT in 2021to 3,343
MT in 2029
 30% average recycled content across all packaging
Each target will cover all packaging made, used or sold in Rwanda, including business and
imported packaging.
Figure 3: Strategic targets that will be achieved by 2028 in the packaging industry

2.2. Rwanda packaging Policy Context

Making Rwanda's economy more competitive is the aim of the nation's several interrelated
development policies, strategies and initiatives. Vision 2050, which examines long-term
development with a focus on the transformation of the whole economy and society, is at its
pinnacle. The National Strategy for transformation (NST1) and the Seven-Year Government
Program (7YGP) outline a decade of constant growth and transformation. The national
packaging strategy 2022-2027 is in line with other sectoral policies and strategies that are related
to industrialization, environmental protection and climate change.
The packaging Strategic Action Plan 2024-2028 is a first step to implement the packaging
strategic objectives. Taking into account the current situation of packaging sector in Rwanda as
per Inventory, Mapping and need Assessment of packaging industries of May 2023, there is a
need to institutionalize the SAP into a five-year planning cycle that lays out implementation
priorities while the five year SAPs will converge to a long term packaging strategy vision” to
develop a domestic packaging sector able to significantly contribute to the reduction of the
Rwanda trade deficit and play a critical role in packaging, marketing and promotion of Made in
Rwanda products”. These include but not limited to:
Packaging Strategy for a five-year period (2022-2027): The strategy has four main pillars,
which are (1) Investment promotion for packaging materials (2) Encourage Environmental
friendly packaging materials (3) Promote Backward and Forward Linkage (4) Ensure
Sustainable Packaging Technologies.
National Industrial Policy 2011: The emphasis is on developing competitive industrial and
professional service sectors able to producing more than $1.5 billion in exports by 2020, with
three main goals in mind: increasing domestic production for local consumption, improving
Rwanda's export competitiveness, and creating an enabling environment for Rwanda's
industrialization.
National Environment and climate change policy (2019): Addresses important environmental
and climate change issues like soil, water, and air pollution, lack of environmentally friendly
transportation systems, vulnerability of natural ecosystems, lack of low-carbon building materials
for green infrastructure development, inadequate waste treatment, and electronic and industrial
waste. The circular economy is also emphasized, which forms the strategy's foundation.
Domestic Market Recapturing Strategy (2015): Priority industries have been identified that
can help Rwanda's domestic economy recover quickly. The purpose was to reduce the trade
deficit gap by increasing the production and consumption of locally made goods while lowering
imports, which required the expansion of the packaging sector.
Made in Rwanda Policy (2017): The strategy aims to boost Rwanda's domestic market
competitiveness by reducing bottlenecks in value chains, enhancing quality, and boosting cost
competitiveness. One of the policy's objectives is to persuade clients that some important
commodities are superior in quality or price, hence decreasing demand for locally produced
goods.
Trade Policy (2010): Rwanda's Trade Policy is focused on establishing long-term, diversified
quality products and services for sale locally, regionally, and globally in order to create jobs,

boost incomes, and enhance Rwandans' living standards. Packaging is one of the most crucial
factors to consider while promoting Rwandan products.
National Export Strategy II (2015): The goal of the National Export Strategy is to make Rwanda
a globally competitive export economy by selecting priority initiatives that address Rwanda's
international competitiveness. To overcome Rwanda's lack of a developed packaging industry,
one of the National Export Strategy's foundations is to increase packaging facilities for value
addition.
Entrepreneurship Development Policy (2020): EDP vision is to develop an effective
entrepreneurship support ecosystem that creates the necessary conditions and enablers for
Rwandan entrepreneurs to unleash their entrepreneurial potential and grow dynamic and
competitive enterprises that will drive economic growth and job creation.
AfCFTA Strategy (2022): The strategy is based on the review of relevant national development
strategies, trade-related policies, Rwanda’s commitments and other trade relations in regional
communities and bilateral arrangements as well as national consultations with various relevant
stakeholders including private sector players.
CHAPTER 3: IMPLEMENTATION OF THE SAP 2028
3.1. Critical Success Factors
A number of critical success factors have been identified as necessary for the delivery of the
2027 National Packaging Strategy Targets.
1. Mandatory establishment of Packaging Research and Design Center-PRDC by NIRDA

to oversee this strategic plan implementation.
2. Mandatory development of adapted packaging educational curriculum within universities,
polytechnics and vocational training centers to avail competent human resource and
skills up-gradation and awareness on Rwanda market.
3. Mandatory application of the norms for Sustainable Packaging by PRDC

4. Government flexibility to build-operate-transfer-model as infrastructure privatization
strategy.
5. Investment in research and development, commercialization and collection and recycling
infrastructure to ensure that all packaging formats can be reused, recycled or composted.
6. Effective operation of the National Environment Protection law (the law No 17/2019 of
10/08/2019 relating to the prohibition of manufacturing, importation, use and sale of
plastic carry bags and single-use plastic items).
7. Sustained engagement by all key stakeholders to ensure collaborative outcomes across
the whole supply chain.

Considering the above mentioned critical success factors, it is obvious that the packaging sector
in Rwanda is lacking key fundamental elements that will inform successful implementation of
the SAP 2023-2028. Therefore, the SAP implementation will start by the establishment of
Packaging Research and Design Center-PRDC and other normative and institutional
arrangements before development and realization phases.
3.2. Implementation Approach

The 2027 National Packaging Strategy Targets will be implemented over three phases, some
of which overlap. The first two phases will be completed within the timeframe of the 2024–2029
strategic plan, while the third phase will commence in 2027 and continue into the 2029–2034
strategic plan.
Figure 4: Implementation approach
Foundation Phase: 2024-2025
This period aims to ensure the fundamental groundwork required to support the long-term
achievement of the targets is in place. In this phase, MINICOM and Other Concerned Public
Institutions will focus on:
 Institutional Setup and Governance Framework (e.g.: Establishment of Packaging
Research and Design Center - PRDC)
 Preparing guidance for stakeholders, setting baselines, monitoring frameworks, and
establishing the packaging sector stakeholder’s forum, specialized working groups and

networks.
 Development of investment projects proposals
 Review of the regulatory framework to support packaging industry
 Packaging norms to create a world class infrastructure
Packaging Research and Design Center-PRDC) will be a co-regulatory public institution under
NIRDA leading the packaging sector in Rwanda. PRDC delivers this model of shared
responsibility through the promotion of sustainable packaging activities including sustainable
packaging development of the design, labelling, the development of the capacities and capacity
as well as the development of the closed loop packaging projects.
The implementation of the SAP 2023-2028 supports an industry-led component of a co-
regulatory arrangement underpinned by the PRDC via packaging specialized working groups. It
embodies product stewardship and shared responsibility approaches that are founded on seven
principles:
1. The SAP 2023-2028 provides a public benefit by reducing the environmental impacts of
packaging,
2. Participation in the SWGs under PRDC delivers benefit across all relevant industries and
all types of packaging, including business-to-business packaging,
3. Decisions and actions are evidence-based and draw on the best available expertise and
knowledge of leading practice in Rwanda and the region,
4. At national-level, industry-driven arrangement, the focus of the SAP 2023-2028 is on
strategies that deliver national-level outcomes that industry is better able than
governments to deliver,
5. Actions taken under the SAP 2023-2028 have measurable outcomes and targets and
align with the strategic goals,
6. Information on the work and outcomes of the SAP 2023-2028, including performance
against targets, are reported publicly and has applicability across Rwanda
7. The governance of the SAP 2023-2028 is apolitical and includes independent
representation via Packaging Stakeholders Forum.
PRDC’s strategic approach and governance will provide the framework to guide actions to
advance sustainable packaging, while remaining flexible and adaptable to manage complexity
and the unknown.
PRDC will work with and provide feedback to and seeks guidance from the Packaging
Stakeholders forum on a bi-annual basis. The forum that will be acting like the board will be
comprised of the representatives of all public institutions involved in packaging sector
development and regulation, the representatives of the brand owners from different Specialized
Packaging working Groups, representative of Universities and other Training Institutions and
representative of Packaging Manufacturers associations. This diverse representative forum will
ensure an independent and rigorous governance approach that meets the transparency and
accountability requirements of an organization operating in a co-regulatory environment. The
Forum will be supported by two subcommittees: the Finance, Audit and Risk Committee and the
Remuneration and Nominations Committee.
The governance and operation of the forum is apolitical to ensure that there is no bias against,

or favor of, any industry sector or political group in implementing the 2028 National Packaging
Strategy Targets.
The governance of the co-regulatory structure of PRDC is managed by the reporting
requirements to the Government Officials. Senior Officers representing participating jurisdictions
make up the forum.
Development Phase: 2025-2026
This period will focus on further building collaboration and networks required for achieving the
2027 National Packaging Targets. The government institutions, development partners and
private sector will come together to mobilize the resources needed to address the identified
investment opportunities, infrastructure gaps, technology opportunities and solutions to barriers.
Realization Phase: 2027-2029
This period will deliver outcomes and realize the benefits of strong foundations and collaborative
networks established in the previous two phases. This phase will also see the monitoring and
evaluation of program outcomes and the scale up of successful pilot projects (Investment
opportunities in packaging sector). This phase also will combine the market promotion including
exposure visits participation and development of global trends report to know facilities for up
gradation of technology.
3.3. Priority Areas and Resources
To deliver the 2027 National Packaging Targets most effectively, the need assessment report
has identified three key priority areas – Design technologies, Systems and Education and
Materials Circularity. PRDC will focus delivery on each of these areas.
PRDC does not hold all the levers needed to meet the targets. Rather, PRDC will play a
coordinating strategy setting and administration role to drive collaboration throughout the supply
chain between government institutions, Packaging Material Association’s (PMA) Members, and
Packaging Stakeholders Forum.
The following figure summarizes the priority areas and required role to be played by each
institution for the implementation of the SAP 2023-2028.

Figure 5: SAP implemenation institutional arrangement
3.3.1. Design Technologies

Through better design, PRDC will make packaging that is Attractive, Informative, Convenient,
Protective, Cost-effective and Environment Friendly (recyclable, reusable or compostable and
reduce problematic and unnecessary waste).
Under the coordination of MINICOM, the product design standards and norms will be prepared
by RSB in collaboration with RICA whereas the Packaging Stakeholders forum will approve them
after checking their alignment with SAP 2023-2028.
Once the norms and standards are approved, NIRDA through PRDC will use them to prepare
the packaging design development strategy. The developed Packaging design strategy will be
implemented via Packaging Specialized Working Groups under PRDC to upgrade the made in
Rwanda packaging products
3.3.1.1. Resources for Design

Sustainability Checklist for Structural Packaging Designers
Will be Prepared by PRDC to provide a quick sustainability reference guide for packaging
designers to make more educated decisions about packaging sustainability, including
emphasizing the importance of a Circular Economy. The guidelines will articulate common
definitions and principles of ‘sustainable packaging’ so that all parties in the packaging supply
chain work toward the same vision. The application of the guidelines will varies depending on the

nature of operations.
Packaging Strategies (PS)
Packaging Strategies will be prepared to identify and analyze the trends, solutions and
innovations for consumer packaged goods processors responsible for food, beverage, household
packaging. Particular attention will be on how companies can use packaging for a competitive
advantage by improving shelf impact through package design, or operational efficiencies.
3.3.2. Systems and Education

Increasing the amount of packaging material being produced locally will require a focus on the
capability and education of stakeholders. PRDC will drive systems and education through
research initiatives, strategic development and facilitating collaboration between Members and
other stakeholders.
The need assessment report revealed that the most critical challenges of packaging sector in
Rwanda are limited capacity of human resources, packaging related data management as well
as established sector strategic framework.
In this context MINICOM will work with other government institution in charge of legislative
agenda, policy making, regulation, grants and facilitation such as RLRC, PSF, RURA, RRA,
NISR and MINEDUC to elaborate collaborative packaging related strategic framework,
government information sharing framework, Data management, Monitoring mechanisms,
capacity building and education.
PRDC through SWGs will create a continuous Quality Improvement Facility for packaging
manufacturers accreditation purposes. PRDC will also partner with universities and other
Training institutions to develop adapted curriculum to the entire packaging sector value chain.
The expected results will be the attraction of more investment in packaging sector, a modernized
packaging local production because more innovative products from the skilled human ressources
will be available within quality infrastructure.
3.3.2.1 Resources for Systems and Education

Annual Reporting Tool (ART)
The Annual Reporting Tool (ART) will be a centralized online resource for self-assessment that
promotes continuous improvement and capacity-building of all packaging actors. It will monitor
and track actors progress towards packaging sustainability over time.
It will allow packaging actors to:
 Access information on the Packaging Sustainability Framework, the basis for evaluation,
 Complete and submit annual reports,
 Access reporting scoring and feedback,
 Monitor and benchmark Members’ performance against the SAP 2023-2028,
 Submit annually customized actor action plan,
 Review and track packaging sustainability performance over time.

Research
The research function underpins several of PRDC’s activities. These activities are fundamental
for PRDC to keep informed of opportunities to have a positive impact on a particular sector or
a specific packaging-related issue.
Data Analytics
The data gathered during PRDC’s strategic projects and operations, will be captured to identify
trends, inform future strategic and tactical planning and deliver the vital reports that inform
progress on the 2027 National Packaging Strategy Targets.
3.3.3 Materials Circularity
To drive commercially viable outputs for locally produced packaging products, PRDC will
support technological and market place initiatives to improve use of recyclable, reusable and
compostable packaging materials. PRDC will seek to engage stakeholders through working
groups and advisory committees and support pilot projects with local governments and
stakeholders.
3.3.3.1 Resources for Materials Circularity
Strategic Partnerships
Partnerships are a means to achieve shared goals. PRDC’s Stakeholder Engagement Matrix
will be used to identify local and global partners to improve our measurement of materials
circularity, identify opportunities to improve the value of materials through stakeholder pilot
projects.

CHAPTER 4: MONITORING, REVIEW AND EVALUATION
Collecting data and measuring results consistently, in a way that is agreed and implemented by
all participating stakeholders, will ensure shared confidence and accountability. Developing
shared measures with stakeholders is a significant undertaking and will be a key outcome of the
early stages of implementation. PRDC monitoring and reporting provides review and evaluation
points to drive accountability and transparency for all stakeholders. PRDC will report on progress
quarterly to the packaging sector stakeholder’s forum,
Important in 2024 will be setting the baseline and collating the data sources to establish
methodologies to achieve the targets.
4.1. Key Performance Indicators
Foundation: KPIs and Measures 2024 to 2025
KPI 1: Institutional Setup and Governance Framework
 The Packaging Research and Design Center-PRDC under NIRDA has been established by
2024
 The packaging sector stakeholder’s forum, specialized working groups and networks and their
operational framework are in place.
 Regulatory framework to support packaging industry are Reviewed
 Special support for packaging sector (Capital investment and subsidy)
 Promotion of education, establish training centers for skill up-gradation and awareness
 Packaging norms to create a world class infrastructure
KPI 2: Packaging sector Baselines identified

 The 5 years national Packaging strategy developed by 2022
 Packaging Strategic action plan developed by 2023
 The packaging sector baseline assessment has been identified by 2023
 Investment projects proposals are Developed
KPI 3: The National Packaging Targets are set

 The local demand of packaging boxes increased from 17,643 MT to 27,756 MT in 2028
 The local demand of packaging paper bags increased from 3,832 MT to 4,966 MT in 2028
 The local demand of packaging woven sacks increased from 4,094 MT to 5,526 MT in 2028
 The local demand of packaging plastics reduced from 871 MT to 519 MT in 2028
 The local demand of packaging glass bottles increased from 19,530 MT to 24,179 MT in 2028
 The local demand of packaging metal packaging increased from 3,216 MT to 3,343 MT in 2028
Development: KPIs and Measures 2025 to 2026

KPI 5: Resource Mobilization

 The implementation funds for 2 pilots projects out of 5 identified packaging project proposal
mobilized by 2026
 100% of Operational budget of Institutional Setup and Governance Framework are mobilized
by 2026
KPI 6: Education, Training and Awareness are promoted

 Agreements signed between industries and TVET, government institutions for students
industrial based training under KTP program
 Relevant institutions developed curriculum based on skills required by industries
 Vocational Institutes for Packaging Industry Established
Realization: KPIs and Measures 2027 to 2029
KPI 6: Pilot projects has been established and outcomes evaluated

 Measure: 2 identified packaging investment opportunities are operational by 2029
 Measure: The implementation fund for another identified packaging project proposal is
mobilized by 2028
KPI 7: The 2027 National Packaging strategy Target measures are on track
 Measure: Key baseline measures identified in the fundamentals phase are monitored and
measured annually by 2027
 Measure: Reporting on measures identifies that targets are on track to be achieved by 2029.
KPI 8: Market promoted

 Measure: Potential exposition participated
 Measure: Consultant appointed, the report developed and disseminated into stakeholder
 Measure: Local companies participated in international fairs
 Modern technologies responding to the needs of local market identified
KPI 9: Promotion of environmentally friendly packaging

 KPI 4: The environmentally friendly packaging materials is promoted
 30% average recycled content across all packaging by 2028
 The list of available alternative packaging to plastic packaging materials established by 2025
 The number of Organized benchmarking tours for international best practices for
identification of alternative friendly packaging by 2025
 Awareness campaigns conducted
 A list of alternative packaging established
 International best practice benchmarking tours organized
 Awareness towards green economy Conducted
Additional KPIs and measures for the realization phase will be considered as part of the 2029
– 2034 strategic plan.

CHAPTER 5: SAP 2023-2028 Governance

Oversight of PRDC’s delivery of the SAP expected results is provided by the packaging
stakeholder’s forum (PSF), which is established under the ministry of trade and Industry
comprised of representatives of the Government institutions, privates sector federation,
Consumers right protection representatives, Civil Society representatives and education
institutions representatives.
The packaging stakeholder’s Forum meets twice yearly with PRDC and PRDC provides
quarterly and annual reports to the packaging stakeholders forum (PSF) on its activities and
outcomes. Using this forum, PRDC will report on progress on delivery of the 2027 National
Packaging strategy Targets including against the Key Performance Indicators identified.
The packaging stakeholder’s forum (PSF) provides the forum to review performance, including
the effectiveness of the plan, and agree to any changes that will be required to ensure
achievement of the targets.
The governance arrangements supporting the implementation of the 2027 National Packaging
Strategy Targets are as set out in Figure 6.
Figure 6. SAP Governance arrangements
5.1 Roles and responsibilities

The delivery of the 2027 National Packaging Strategic Targets requires the collaboration of many
stakeholders and has a range of interdependencies.

5.1.1 The role of PRDC

The role of PRDC can be summarized as:
 Fund mobilization to support the implementation of strategic targets;

 Fostering and strengthening whole-of-supply chain collaboration, to deliver better
outcomes through shared knowledge, expertise, networks and actions;
 Undertaking and supporting work to identify and address technical and knowledge
barriers;
 Empowering, enabling and influencing individual companies and industry sectors to do
better than they otherwise would.
5.1.2. Role of Government
The roles of the Ministry of trade and industry in providing oversight of and support to the
operation of the PRDC through NIRDA. These roles include the collaborative mechanisms
with other government institutions such as RDB, REMA, RSB, RICA, FDA and MINECOFIN
In addition to their role in overseeing implementation of the SAP-2029, the Ministry of trade
and industry (MINICOM) can influence the effectiveness of actions by PRDC, its members
and partners. PRDC will therefore seek opportunities to further align actions to deliver on
the targets, with the objectives of governments.
The support of local governments is also of vital importance to effective delivery of the
targets, as local governments have day-to-day responsibility for managing a substantial
proportion of packaging sector actors. PRDC will seek to strengthen its engagement with
the Local Administrative Entities Development Agency (LODA), local government
associations and interested regional groups and councils.
PRDC will seek opportunities to align with local government objectives, support local
government initiatives and learn from local government experiences. For example, PRDC
will seek opportunities to engage with local governments on:
 Programs aiming to phase out single use plastic packaging;

 Trials of different approaches of packaging material waste management;
 Collation and dissemination of information on experiences and lessons learned in
different jurisdictions.
5.1.3 The role of Packaging Manufacturers Association (PMA)

Packaging Manufacturers Association (PMA) gathers packaging manufacturers and users from
the entire value chain for all packaging, from packaging manufacturers, brand owners,
distributors and retailers. The PMA will create an agenda to deliver PRDC’s strategy to meet
the 2027 National Packaging Strategy Targets. In doing so the PMA will ensure PRDC has a
holistic view of materials flows and recovery and identify opportunities to improve their
recovered value.

5.1.4 The roles of Specialized Working Groups (SWGs)
PRDC will host a range of working groups that focus on:

 Fostering discussions across the packaging supply chain on the environmental impacts
of packaging materials;
 Identifying the barriers to the avoidance, reuse, recovery and recycling of packaging
materials;
 Working with participants in the packaging value chain to ensure materials are designed,
used, disposed of and collected to minimize waste and use of primary resources;
 Identifying opportunities for collaboration and innovation to improve environmental
outcomes;
 Finding recovery solutions and/or closed loop opportunities for packaging materials.
CHAPTER 6: FINANCING THE SAP
Considering the above-mentioned SAP critical success factors mainly the mandatory
establishment of Packaging Research and Design Center and Government flexibility to build-
operate-transfer-model as infrastructure privatization strategy, there is a need of financing
mechanism to help the achievement of the packaging strategic targets. The Ministry of Finance
and Economic Planning will plan the budget to establish and running operations of the center of
packaging research and design though NIRDA. The established PRDC will start the
implementation of the SAP targets by mobilizing either domestic or external resources.
6.1. Domestic resource mobilization – Budgeting
PRDC along with other Implementing agencies will be requested to produce the Baseline
estimates (budget for ongoing functions and programs - based on a budget ceiling established by
MINECOFIN) and provide proposals with budgets for new projects and programs for the period
2024-2029, which will be in line with the planned SAP targets. The PRDC will become an
opportunity for the Government to align and prioritize budget allocations to packaging national
policy priorities outlined in the SAP. This is one of the key approaches that will ensure the effective
implementation of the SAP.
6.2. External resource mobilization
The SAP will open new opportunities for the Government of Rwanda to improve the alignment of
external assistance to national priorities. Furthermore, the SAP priorities provides guidance on
the priorities for the Rwanda in relation to the United Nations 2030 Agenda and the Sustainable
Development Goals (SDGs). The SAP will therefore be used a tool for improving funds
coordination and in leveraging external assistance which will complement domestic resources to
finance the SAP.

ANNEX I: SAP 2023-2028 Implementation Plan
Foundation Phase: 2024-2025

SO 1 : Demand Stimulation & Investment Promotion for Packaging Materials
Strategic Activities Strategic Actions Performance Indicators Responsible Institutions 2023 2024 2025 2026 2027 2028 Budget (USD)
Establishment of Packaging Research and Design Center-PRDC) RDB, MINECOFIN
PRDC established 1,000,000
MINICOM,NIRDA
To establish the packaging sector stakeholder’s forum, specialized
Packaging Stakeholder forum,SWG Established NIRDA,MINICOM 70,000
Institutional Setup and Governance working groups and networks and their operational framework
Framework . To Review the regulatory framework to support packaging industry The regulatory framework to support packaging industry
RDB N/A
are reviewed
Special support for packaging sector (Capital investment and
Capital investment and subsidy are set MINECOFIN,RDB 2,000,000
subsidy);
5 years national Packaging strategy 5 years strategic plan developed and Published MINICOM N/A
Development of investment project proposals
Investment projects proposals developed RDB,NIRDA,PRDC 180,000
Identifying Packaging sector
Baselines Develop the Packaging Strategic action plan SAP developped and Published MINICOM N/A
To identify the packaging sector baseline assessment The packaging sector baseline assessment has been
RDB N/A
identified
Development Phase 2025 to 2026
To Mobilize the implementation funds for 2 pilots projects ( between The implementation funds for 2 pilots projects out of 5
NIRDA,MINICOM 50,000
glass Botlle,metal-based,Kraft paper,warehouse) identified packaging project proposal mobilized
To Mobilization Resource
Mobilizing the Operational budget of Institutional Setup and 100% of Operational budget of Institutional Setup and
NIRDA,MINICOM,MINECOFIN 50,000
Governance Framework Governance Framework are mobilized
2 identified packaging investment opportunities are
Operationalise the 2 identified packaging investment opportunities NIRDA,MINICOM 20,000
To Implement the two Pilots operational
projects The implementation fund for another identified packaging
Mobilizing the investment funds for other remaing projects NIRDA,MINICOM 50,000
project proposal is mobilized
SO 2 : Ensure Sustainable Packaging Technologies
Signing the agreement between industries and TVET Modern technologies identified RDB,MINICOM,NIRDA 30,000
To Promote the education, Training
and Awareness All packaging manufacturers in the country engaged and RDB,MINICOM,NIRDA,RP,UNIVE
Establishing Vocational institutes for packaging 50,000
secured willingness of at least 6 companies RSTIES,TVET,MINEDUC
Develop the standards for different types of sustainable packaging

Standards developed RSB,NIRDA N/A
To improve the quality and materials among the manufacturers and Users
Technology Up-gradation scheme developed whereby it reimburses the ISO
Quality Certification assistance NIRDA,RDB,RSB 100,000
9001/14001 certification expenses to the tune of 50%
Realisation : 2027-2029
To attract the foreign investors in Kraft paper, Glass bottle, Alminium Framework Agreement signed and starting installation
RDB,NIRDA,MINICOM 500,000
cans,lebels ,Metal ,Plastic recycling manufacturing Industries works
To satisfy the local demand of packaging boxes from 17,643 MT to The local demand of packaging boxes increased from
NIRDA,MINICOM,RDB N/A
27,756 MT 17,643 MT to 27,756 MT
To satisfy the local demand of packaging paper bags from 3,832 MT The local demand of packaging paper bags increased
to 4,966 MT from 3,832 MT to 4,966 MT
To satisfy the local demand of To satisfy the local demand of packaging woven sacks from 4,094 The local demand of packaging woven sacks increased
packaging material by setting the NIRDA,MINICOM,RDB N/A
MT to 5,526 MT from 4,094 MT to 5,526 MT
national packaging target
To reduce the local demand of packaging plastics from 871 MT to The local demand of packaging plastics reduced from 871
519 MT MT to 519 MT
To satisfy the local demand of packaging glass bottles from 19,530 The local demand of packaging glass bottles increased
MT to 24,179 MT from 19,530 MT
To satisfy the local demand of packaging metal packaging from The local demand of packaging metal packaging
3,216 MT to 3,343 MT increased from 3,216 MT to 3,343 MT
Appoint consultants to help MSME entrepreneurs in understanding

Consultant appointed, the report developed and
global marketing trends, best available cost benefit materials, NIRDA,RDB 100,000
disseminated into stakeholder
facilities available for up-gradation of technology
Market Promotion
Participating in the potential exposition Attended the potential exposition NIRDA,RDB 40,000
Step up participation in international fairs Local companies participated in international fairs NIRDA,RDB 50,000
Key baseline measures identified in the fundamentals
To Track the national Packaging To monitor and measure the Key baseline measures identified in the
phase are monitored and measured annually and the NIRDA,MINICOM,RDB 40,000
strategy Target's implementation fundamentals phase
related reports
SO 3 : Encourage Environmental Friendly Packaging
Make awareness to the general public and investors about the REMA,NIRDA,RDB,PSF,MINICO
Awareness campaigns conducted 30,000
country’s path towards green economy M
Establish a list of available alternative packaging to plastic packaging The liste of available alternative packaging to plastic
REMA,NIRDA,RDB N/A
materials materials
To Promote the environmental
friendly packaging Organize benchmarking tours for international best practices for
International best practice benchmarking tours organized REMA,NIRDA,RDB, MoE 70,000
identification of alternative friendly packaging
Establishing the guidelines that about 30% average recycled content 30% average recycled content across all packaging
NIRDA,REMA, MoE 50,000
across all packaging industries achieved
SO 4 : Promote Backward and Forward Linkages
Identify and build database on users and producers of packaging
Database built and operating RDB,MINICOM,NIRDA 100,000
To Strengthen packaging industries materials
through market linkage Organize workshops to link users and producers of packaging
Backward and forward linkages established RDB,MINICOM,NIRDA 100,000
materials
Total 4,680,000

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RWANDA PACKAGING STRATEGIC

ACTION PLAN (SAP)

Rwanda Packaging Strategic Action Plan 2023-2028

List of Figures ............................................................................................................................................. 3

Rwanda Packaging Strategic Action Plan 2023-2028

Figure 1: Challenges in packaging design, education, and material circularity ............................ 7

Figure 2: Strategic pillars aligned with the strategic vision. .......................................................... 8

Figure 4: Implementation approach ............................................................................................ 12

Figure 5: SAP implemenation institutional arrangement ............................................................ 15

Figure 6. SAP Governance arrangements .................................................................................. 20

Rwanda Packaging Strategic Action Plan 2023-2028

7YGP : Seven-Year Government Program

PSF : Private Sector Federation

Rwanda Packaging Strategic Action Plan 2023-2028

RSB : Rwanda Standard Board

Rwanda Packaging Strategic Action Plan 2023-2028

Rwanda Packaging Strategic Action Plan 2023-2028

CHAPTER 2: PACKAGING STRATEGIC ACTION PLAN

 Product Design Standards;

DESIGN SYSTEM & EDUCATION MATERIAL CIRCULARITY

Figure 1: Challenges in packaging design, education, and material circularity

 Special support for packaging sector (Capital investment and subsidy);

Rwanda Packaging Strategic Action Plan 2023-2028

Project idea Description

General Unified Warehouse of

To provide raw materials to manufacturers of paper packaging which

Trend showing Increasing demand; is ~100% recyclable and good

2.1. SAP Scope

Figure 2: Strategic pillars aligned with the strategic vision.

Rwanda Packaging Strategic Action Plan 2023-2028

 Establishment of research and design development center for packaging

Rwanda Packaging Strategic Action Plan 2023-2028

2.2. Rwanda packaging Policy Context

Rwanda Packaging Strategic Action Plan 2023-2028

CHAPTER 3: IMPLEMENTATION OF THE SAP 2028

3.1. Critical Success Factors

1. Mandatory establishment of Packaging Research and Design Center-PRDC by NIRDA

3. Mandatory application of the norms for Sustainable Packaging by PRDC

Rwanda Packaging Strategic Action Plan 2023-2028

3.2. Implementation Approach

Figure 4: Implementation approach

Foundation Phase: 2024-2025

Rwanda Packaging Strategic Action Plan 2023-2028

Rwanda Packaging Strategic Action Plan 2023-2028

Development Phase: 2025-2026

Realization Phase: 2027-2029

3.3. Priority Areas and Resources

Rwanda Packaging Strategic Action Plan 2023-2028

Figure 5: SAP implemenation institutional arrangement

3.3.1. Design Technologies

3.3.1.1. Resources for Design

Rwanda Packaging Strategic Action Plan 2023-2028

3.3.2. Systems and Education

3.3.2.1 Resources for Systems and Education

Rwanda Packaging Strategic Action Plan 2023-2028

Rwanda Packaging Strategic Action Plan 2023-2028

CHAPTER 4: MONITORING, REVIEW AND EVALUATION

4.1. Key Performance Indicators

Foundation: KPIs and Measures 2024 to 2025

KPI 1: Institutional Setup and Governance Framework

KPI 2: Packaging sector Baselines identified

KPI 3: The National Packaging Targets are set

Development: KPIs and Measures 2025 to 2026

Rwanda Packaging Strategic Action Plan 2023-2028