Lessons from Kenya's Bold, but Insufficiently Executed Visa-Free Policy
The Kenya experience helps the country balance the African goal of open borders and regional connections with practical reality.
In January 2024, Kenya announced that it would become a visa-free country for African visitors as a step towards open borders and regional integration. However, like many ambitious policies, the challenges were in implementation.
Instead of repealing visa requirements altogether, Kenya has introduced an electronic travel approval (ETA) system to modernize entry into the country by increasing accessibility and security. But instead, this process has become a bureaucratic obstacle and complicated travel for many.
The Kenya experience exemplifies how intended policies can be mitigated without clear communication, stakeholder engagement, and adaptable implementation.
For many travelers, implementation issues quickly transformed into frustrating real-world outcomes. Citizens of many African countries, such as South Africa and Angola, who had mutual visa exemption agreements with Kenya, suddenly had to apply for online travel permits.
Additional bureaucracy was perceived as a step back, contradicting the nature of visa-free travel. A complaint has emerged from the tourism department. There, the uncertainty surrounding travel approvals disrupts last-minute bookings and meeting trips.
The Kenya experience focused on continental discussions about integration. At the African Economic Conference, where the 2024 Africa Visa Openness Index Report was launched, experts highlighted how ETA policies act as digital barriers to entry, despite being framed as progressive.
With the ETA decision, Kenya dropped 17 locations in the open, ranking 46th out of 54 African countries
The report revealed the results of the ETA decision. Kenya dropped 17 locations in the open, ranking 46th out of 54 African countries. Before the system was introduced, it was considered one of the more open countries in Africa when it came to visa access. Kenya has allowed many Africans to obtain visas upon arrival. I have obtained visas, particularly from East African community members and countries with mutual agreements.
Since 2017, Kenya has expanded its arrival visa access to many African countries and established itself as a regional hub for business and travel. The ETA was turning this progress back.
At the regional level, shifts away from Kenya's arrival visas were at odds with the wider movement towards free mobility. The free movement of people in the African Union (AU) aims to eliminate travel restrictions across the continent and promote greater economic and social integration.
The discussion of visa-free travel is not unique to Kenya. On the sidelines at the AU summit in February, the African minister discussed obstacles to economic integration and highlighted visa restrictions as an important barrier. East African communities have defended equally free movement as a core principle of regional economic cooperation.
Due to restrictions introduced by the Kenyan system, it was placed behind Ghana, Rwanda and Benin. Even Angola, a country that historically maintained a restrictive visa system, recently liberalised its immigration policy and extended visa-free travel to nearly 100 countries, including 14 in Africa.
When innovating in digital systems, the government must ensure that they do not inadvertently set new barriers
Free movement is not only a matter of policy rhetoric, but also a practical need for deepening economic connections. Representatives from the African Development Bank point out that African travelers are important for tourism and investment in the continent, and mobility barriers reduce opportunities for trade and cooperation.
Faced with criticism of Kenya's new policies, the government was initially defensive, citing the need for security screening and border control efficiency. However, frustration led to the need for policy review, and in December last year the Cabinet decided to reevaluate the system.
The policy was reversed in January, with all African citizens (except those in Somalia and Libyan) exempt from the ETA requirements. The government said this is a necessary revision to support tourism, trade and economic growth.
The reversal said it aimed to promote regional integration and facilitate travel across the continent. Most African visitors will be allowed to stay for two months, but East African Community Nationals will continue to enjoy six months' stay under local freedom movement protocols.
The “Advanced Passenger Information and Passenger Name Records System” has also been introduced, which has been enhanced for pre-screening, increased security, and streamlined processing at entry points. As of late February, these changes are still moving, but not all of them are reflected on the official ETA website. In the interim, Kenyan immigrants reportedly have suspended implementation of ETA pre-approval for African arrivals, but travelers are advised to check the latest notifications.
As Africa moves towards greater integration, unilateral national action should be avoided
Commitment to Kenya's revision courses is for policy learning in real time. After seeing the downside, the government took action to remove the hurdles within a year.
The country's experience offers three important lessons to others pursuing similar visa reforms. First, do not harm existing openness. When innovating using digital systems like ETAs, don't accidentally set up new barriers. Looking back, exempt Africans from policy would have saved Kenya from their grief.
Secondly, reciprocity and local consultation are essential. Kenya's rapid amendment, which waives ETA fees in certain countries and ultimately exempts everything in Africa, demonstrates the importance of respecting mutual visa arrangements and listening to local partners. As Africa moves towards greater integration, unilateral action should be avoided in favour of an approach coordinated through the AU or local economic community framework.
Third, maintain adaptability. The fact that Kenya adjusted its policy within a year shows its willingness to respond to data such as Africa Visa Openness Index rankings and traveler feedback, and to align with continental best practices.
Perhaps Kenya has gotten off to the wrong sprint towards visa openness, but is slowly finding a foothold. The ETA policy now uses technology to achieve efficiency without alienating travelers that Kenya aims to be welcoming.
The experiences of countries, including Kenya, provide the lesson that Africa approaches its vision of visa-free travel and economic integration.
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