Legal Framework

On August 27, 2010, Kenya adopted a new Constitution, guaranteeing fundamental human rights and freedoms. The constitution also enshrines that “Any treaty or convention ratified by Kenya shall form part of the law of Kenya under this Constitution”  Art. 2 (6).

Although the Constitution employs a rather progressive stance, LGBTQI+ persons in Kenya continue to be the target of sexual violence, physical and verbal abuse, and social exclusion. Moreover, Art. 45 (2) of the Constitution discriminates against same-sex marriage, as does Art. 3 (1) of the Marriage Act from 6 May 2014. LGBTQI+ persons are not protected against discrimination under Kenyan law. Homosexual conduct is illegal, and the right to equality under Art. 27 (4) of the Constitution does not include either sexual orientation or gender identity.

Kenya has colonial-era sodomy laws that are still in force. Under Section 162 of the Kenyan Penal Code “any person who a) has carnal knowledge of any person against the order of nature; or b) has carnal knowledge of an animal; or c) permits a male person to have carnal knowledge of him or her against the order of nature” is punishable for committing an “unnatural offense” and is liable to imprisonment for fourteen years. Section 163 defines any attempt to commit an “unnatural offense” as a crime with a seven year prison term. Consensual sexual conduct (“any act of gross indecency”) between men is also prohibited under Section 165, which carries a five year prison term. However, the Penal Code does not seem to statutorily ban female-female same-sex acts. Although not expressly mentioned in the Penal Code, the language of the law and the interpretation of the term “against the order of nature” under Section 162 can nevertheless constitute a serious threat for lesbian and bisexual women (see below the case Ali Abdi Shabura v. Republic).

The Sexual Offences Act 2006 directs the law on sexual offences in Kenya. It was enacted in order to prevent and protect all persons from unlawful sexual acts and does not mention same-sex relations. As opposed to the Penal Code which provided for maximum sentences for sexual offences, the 2006 Act contains more minimal mandatory prison terms on specific sexual offences. However, in a shadow report to the Committee Against Torture (CAT) on the period 2013-2022, Kenyan Civil Society Organisations highlighted that LGBTQI+ persons continue to be targeted by both state and non-state actors under Section 162(a), (c) and 165 of the Penal Code of Kenya. Furter, Anti-sodomy laws enable abuse that escalates to a degree of torture under CAT, thus violating Kenya’s obligations under CAT and its new Constitution.

The Registration of Persons (Amendment) Bill 2019 sought to amend the Registration of Persons Act to legally recognize intersex individuals. This proposed legislation aimed to protect intersex persons by ensuring the intersex gender was accounted for in the nation’s registration systems from birth through adulthood. 

Kenya’s 2021 Refugees Act (the Act) was developed to reaffirm commitment by the Kenyan government to offer protection to refugees in line with the UN Convention relating to the status of refugees and the Organisation of African Unity Convention governing the specific aspects of refugee problems in Africa. While LGBTQI+ individuals are not explicitly recognised under the definition of “refugees” in the Act, applications by LGBTQI+ individuals are still being reviewed, albeit at a slower rate. The Kenyan government has claimed that the average wait time for asylum is 12 months, but there are reports of LGBTQI+ applicants having waited up to six years. Note, however, that the Kenyan Refugee Commissioner, John Burugu, has stated that persecution of LGBTQI+ individuals is not a valid ground for asylum. The consequence of delays has meant that asylum seekers must stay in refugee camps while waiting for their applications to be processed, they cannot work legally, open bank accounts or even obtain a SIM card, and they cannot seek resettlement in safer countries.

In 2017, the Kenyan government established the Taskforce on Policy, Legal, Institutional, and Administrative Reforms Regarding Intersex Persons, chaired by MP Mbage Ng’ang’a. This initiative aimed to address the challenges faced by intersex individuals in Kenya, including discrimination, lack of legal recognition, and human rights violations. The task force’s report, published in 2018, provided 27 key recommendations to enhance the rights and welfare of intersex persons. These recommendations encompassed legal reforms, public education, and the inclusion of intersex individuals in national documentation processes.

Following the task force’s report, the Attorney General, through Gazette Notice No. 7264 dated August 16, 2019, established the Intersex Persons Implementation Coordination Committee (IPICC). This committee was tasked with overseeing the execution of the task force’s recommendations. Notably, in August 2019, Kenya became the first African nation to include intersex as a category in its national census, marking a significant step toward recognition and inclusion.

In 2023, the IPICC introduced the Intersex Bill 2023, to protect the rights of Intersex Persons through the elimination of unlawful discrimination and to recognise their human rights. As of April 2025, the Bill is yet to be enacted.

According to the Kenyan Human Rights Commission report The Outlawed Amongst Us, transgender and intersex individuals are unable to self-determine their gender due to the inadequate legal framework. The government’s failure to address heteronormativity and fixed gender binaries have resulted in State-sanctioned homophobia. Kenyan law does not provide for legal gender recognition, preventing individuals from changing their name or gender marker on official documents. This lack of recognition leads to social marginalisation and difficulties in accessing services like healthcare and education.

Absence of progressive laws has socially marginalised transgender individuals and permitted ill-treatment by state officials. Most intersex individuals either have corrective surgeries performed at birth by their parents or are not given the chance to undergo a sex reassignment surgery when they are of age due to the lack of legal recognition for sex reassignments. In addition, a legal mechanism to change one’s name and personal details in identity documents remains absent.

Public Attitudes and/or State's Capacity to protect​​

Numerous Kenyan politicians and religious leaders believe that homosexuality is a Western import and against African norms and traditions. Religious leaders have an important role in the society, and religious groups have hindered the advancement of LGBTQI+ rights, for instance opposing the registration of the National Gay and Lesbian Human Rights Commission to the NGO board. Negative social attitudes towards LGBTQI+ individuals are common to the extent that the Kenya Medical Research Institute (KEMRI) providing HIV/AIDS services was the target of vigilant attacks motivated by conservative and religious values in 2010. Human Rights Watch wrote an open letter to the Government of Kenya in relation to the attacks, emphasising that such acts violate the ICCPR’s provisions for protection of private life and protection against discrimination.

In 2010 Prime Minister Ralia Odinga commented that same-sex relationships are outlawed in the new Constitution because marriage is defined as being between a man and a woman. Moreover, in 2014, Aden Duale, a leading Kenyan MP said that homosexuality is “as serious as terrorism” in response to a group of MPs demanding tougher laws on homosexuality. The Deputy President, William Ruto has also repeatedly issued homophobic statements against LGBTQI+ persons.

LGBTQI+ persons in Kenya have also faced harassment and abuse by police officials who charge them with false allegations and hold them in “remand houses’ with no explanation of the charges against them. In another instance, a Police Constable interviewed by the Kenya Human Rights Commission stated that “all homosexuals are criminals and rapists”.

Gay individuals face discrimination in accessing health care due to high prevalence of HIV amongst men which is almost three times higher than in the general population. Because sexual relations between men are criminalised, LGBTQI+ persons avoid seeking help with HIV services. Practitioners often deny HIV care to LGBTQI+ patients and at times breach their privacy by exposing them to police officials. As such, these individuals will often self-medicate or even lie to doctors, resulting in incorrect treatment.

In 2019, the Deputy County Commissioner in Kiambu announced that authorities were “investigating increased cases of homosexuality in the area” and vowed to arrest and prosecute those involved. 

In April 2016 the NGO National Gay and Lesbian Human Rights Commission (NGLHRC) filed a lawsuit challenging Kenyan law against same-sex conducts between consenting adults under Sections 162, 163 and 165 of the Kenyan Penal Code. The High Court upheld these laws in May 2019, and therefore – although the case is being appealed and is expected to be heard by the Supreme Court – the laws remain in effect as of July 2025.

However, in a landmark decision in February 2023, the Supreme Court of Kenya upheld the right of the NGLHRC to register as a non-governmental organisation. The court ruled that denying registration based on sexual orientation was unconstitutional and violated the right to freedom of association. While the ruling did not decriminalise same-sex relations, it is a significant step in recognising LGBTQI+ rights in civil society.

In August 2023, the Parliament of Kenya began consideration of the Family Protection Bill, which intended to ban homosexuality, same-sex unions, and LGBTQI+ activities and campaigns (including protests and marches). The bill provides that individuals engaging in non-consensual same-sex acts could face imprisonment for a minimum of 10 years and a maximum of 50 years, while owners of premises used for same-sex relations would face huge fines or jail terms of up to seven years if the bill enters into force. As of July 2025, the bill remains under consideration.

More recently, in April 2024, the Mombasa High Court issued an interim order requiring that anti-gay groups and individuals refrain from protests inciting violence against LGBTQI+ people in Kenya

Kenya remains largely conservative on LGBTQI+ issues, and according to surveys published in 2020 the vast majority of the population believes that homosexuality should not be accepted by society. Traditional social and religious attitudes contribute to widespread stigma and discrimination.

Prejudice and lack of legal protections together contribute to a climate where LGBTQI+ persons are disproportionately exposed to physical violence, verbal abuse, the destruction of property, as well as discrimination in access to public services – including healthcare in particular – housing and employment. Many LGBTQI+ people feel they cannot be open about their sexual orientation or gender identity, because they fear violence, harassment and discrimination. Traditional social and religious attitudes play a significant role in perpetuating homophobia and transphobia in Kenya. Lesbians suffer discrimination from their family members, as parents who find out that their daughter is a lesbian may withdraw educational support. Openly gay and transgender people are vulnerable to physical violence, harassment and intimidation.

In Kenya, MSM (men who have sex with men) residing in informal settlements and slums face more direct verbal abuse, such as the derogatory word “shoga which means gay in Swahili. Even in more inclusive circles, such as human rights circles, the word is used as a discriminatory term against LGBTQI+ persons. 

Kenya receives a large number of LGBTQI+ refugees from across the region, especially Uganda, since the enactment of the Anti-Homosexuality Act in Uganda in 2014. As such, the refugees at the refugee camp in Kenya automatically assume that all newly arriving Ugandan refugees are LGBTQI+ persons, giving rise to harassment by other refugee residents. In general, LGBTQI+ refugees fleeing to Kenya face further violence, exploitation and stigmatization when they arrive. Therefore, LGBTQI+ refugees often choose not to reveal their sexual orientation.

In addition, most Kenyan refugee-assistance NGOs are unaware of the specific protection needs of LGBTQI+ refugees, who are referred by asylum authorities. As a result, many LGBTQI+ refugees in Kenya face the risk of being excluded from services. Although UNHCR tries to rapidly answer protection needs of LGBTQI+ refugees, it fails to combat homophobic attitudes among protection agents in Kenya.

LGBTQI+ refugees who claim asylum on the basis of their membership of a particular social group via the refugee status determination (RSD) procedure conducted by UNHCR are eligible to receive international legal protection through resettlement. However, since October 2013 the responsibility for RSD processes has been transferred to the Department for Refugee Affairs (DRA) under the Refugees Act 2006, which raises concerns for upholding current RSD policies.

Nonetheless, the US Refugee Admissions Program (USRAP) reviews LGBTIQ+ resettlement cases on an expedited basis. However, the resettlement process can take between 12 to 18 months, on top of already waiting for several years before the resettlement process is started.

Case Law

Mathenge & another v Inspector General of Police & 4 others; National Commission on Human Rights & 3 others (Interested Parties) (Constitutional Petition E048 of 2023) (2024)
The Centre for Minority Rights and Strategic Litigation and others filed a petition against Police Inspector General Japhet Koome, two anti-LGBTQI+ activists, and a national advocacy group named the “Anti-LGBTQI+ Movement” for permitting religious leaders and advocacy groups to organise homophobic protests following court decisions favourable to the LGBTQI+ community. The judge ruled that clerics, politics and anti-LGBTQI+ groups cannot hold homophobic protests or incite violence against LGBTQI+ identifying individuals, and the judge prohibited any state agency from attempting “expulsion from Kenya or any part of Kenya of LGBTQI+ identifying individuals or closure of organisations serving LGBTQI+ identifying individuals”.

Kaluma v NGO Co-ordination Board & 5 others (Application E011 of 2023) (2023)
George Peter Kaluma, a Kenyan Member of Parliament, tried to challenge the judgment of the Supreme Court of Kenya in respect of the case NGO Coordination Board vs Eric Gitari & Others, SC Petition No. 16 of 2019 on 24th February 2023 on the basis that the judgment usurped the sovereign power of the people, the legislative role and authority of Parliament and purported to amend Article 27(4) of the Constitution; that the Court disregarded the views of the people of Kenya on “sex” and “gender”, and that the decision has opened the door wide to registration of associations, entities, organisations whose naming and/or objects are contrary to the law and inconsistent with public interest; and that there is widespread discontent, uproar, dissent and displeasure with the judgment by the general public as reported across all mainstream media and social media platforms. However, the Kenyan Supreme Court upheld its February 2023 decision which found that denying the registration of the NGLHRC was unconstitutional. This is a landmark case that has entrenched the right to freedom of association for LGBTQI+ persons.

Ramtu v Muslims for Human Rights (MUHURI) (2023)

The claimant worked for MUHURI as the Executive Director. After successful completion of 6 months probation, MUHURI terminated the claimant’s employment without notice or hearing. The claimant claimed that the circumstances leading to termination of employment were discriminatory, unconstitutional and in contravention of the respondent’s human resource policy or the due process. The claimant also claimed that the termination of employment was actuated by malice following allegations that the claimant was a proponent of the LGBTQI+ community (a matter that had been addressed during her interview and recruitment process but was later being used to terminate her employment). The court ruled in the claimant’s favour, also reprimanding MUHURI for failing to address the claim of discriminatory treatment of the claimant at work, so the judge ruled that such conduct is without justification and the claimant was entitled to damages. The judge also ruled that the termination of the claimant’s employment by the respondent was devoid of due process and was unlawful and unfair.

Constitutional Petition by C.O.I. & G.M.N. against Forced Anal Examination (2018)
Two men accused of homosexuality have filed a constitutional petition in order to challenge the use of forced anal examinations. According to the men, doctors at Mombasa’s Coast General Provincial Hospital (known as Madaraka Hospital) and law enforcement officials violated their rights by subjecting them to forced anal examinations while they were in police custody on charges related to homosexual conduct in 2015. The Court of Appeal in Mombasa ruled on 22 March 2018 that forced anal examinations on individuals accused of same-sex relations are unconstitutional. This decision overturned a 2016 High Court ruling that had upheld the use of such examinations by authorities.

EG & 7 others v Attorney General; DKM & 9 others (Interested Parties); Katiba Institute & another (Amicus Curiae) [2019] KEHC 11288 (KLR) JM, MO, MA     

In June 2016, a petition was brought by EG, a Kenyan lawyer and director of an NGO, that challenged sections of the Kenyan Penal Code which criminalises same-sex sexual conduct on the basis that they were unconstitutional on grounds of vagueness and uncertainty. In November 2016, a petition was brought by four individuals and three civil society organisations on the basis that individuals have experienced discrimination and physical attacks as a result of their actual or perceived sexual orientation which was a violation of their rights to privacy, dignity and security of the person. The High Court in Nairobi considered both petitions simultaneously due to their similarity in nature. The Court held that the provisions in the Penal Code which criminalise same-sex sexual conduct were constitutional and did not infringe the rights to equality, dignity, privacy, health, expression, freedom and security of the person, or the right to a fair hearing. The Court stated that decriminalising same-sex sexual conduct on grounds that it is consensual and is done in private between adults would lead to cohabitation of same-sex couples which would infringe the constitutional provisions that protect the family as the “natural and fundamental unit of society”..

Eric Gitari v Non- Governmental Organisations Co-ordination Board & 4 others (2015)
In March 2013, the Non-Governmental Organizations Coordination Board rejected the LGBTQI+ rights group NGLHRC’s request to register because the name of the organisation was “unacceptable’” and because Kenya’s penal code “criminalises gay and lesbian liaisons”. The High Court of Kenya ruled that the members of the group could formally register their organisation under the Non-Governmental Organizations Coordination Board Act. 

Baby ‘A’ (Suing through the Mother E A) & another v. Attorney General & 6 others (2014)
This is the case of an intersex child who had been denied a birth certificate by the hospital, as the staff had been unable to determine the child’s sex. The High Court of Kenya at Nairobi held that under the Constitution, the Children’s Act, and the international treaties to which Kenya is a party, children are protected against all forms of discrimination, including on the grounds of intersex status. The Court ordered the government to develop guidelines for the recognition and support of intersex people.

Republic v Kenya National Examinations Council & another Ex-Parte Audrey Mbugua Ithibu (2014)

Audrey Mbugua was diagnosed with Gender Identity Disorder. She later sought hormonal treatment, changed her name from Andrew to Audrey, and decided to change her national identity card, passport and academic papers to reflect her changed gender from male to female. She asked the Kenya National Examinations Council (the Council) to replace her Certificate of Secondary Education by changing her name and removing the existing male designation. However, the Council refused, indicating that “regulations do not allow addition or deletion of a name after award of a certificate to a candidate”. The Council also stated that the available medical records did not show that Audrey had completed her transition to female gender, and that her national identity card and passport still reflected her former name. Audrey sought a court order compelling the Council to follow her requests, she argued that the refusal to change her name and gender mark was “unreasonable and unjustified and unfair in the circumstances,” and was “in breach of the rules of natural justice”. In this case, the High Court ordered the Council to change the name and remove the existing gender designation from the academic certificate as requested by Audrey Mbugua. The court based its ruling on Art. 10 and 28 of the Kenyan Constitution on respecting and promoting human dignity. This is a significant ruling for the transgender community in Kenya.

Ali Abdi Shabura v. Republic (2012) eKLR Criminal Appeal 90 of 2007

In this case, Ali Abdi Shabura was charged and convicted of committing an unnatural offence contrary to the Kenyan Penal Code against two young boys which involved acts of sodomy. Ali Abdi Shabura attempted to appeal against his conviction and sentence on various grounds, including that there was no evidence to support the charges against him because the medical expert’s evidence exonerated him from the offence, the evidence of the two young boys was not corroborated, and the sentence passed against him was harsh and contrary to Section 162(a) of the Penal Code. However, all of the appellant’s arguments failed and the High Court held that there was adequate evidence to convict the appellant, the sentence was lawful and the appeal was dismissed. 

One of the key points in this case is that the High Court observed that the phrase “against the order of nature” as used in the “unnatural offences” provision of the Kenyan Penal Code means “sexual intercourse or copulation between man or woman in the same sex, or either of them with a beast”’, which therefore includes acts between women. Although this specific case did not concern lesbian and bisexual women, and there appears to have been no cases where lesbian and bisexual women have been prosecuted under this provision of the Kenyan Penal Code, this ruling leaves open the possibility of criminalisation and it illustrates the potential risks that the vague criminal language can pose to their lives.

Monica Jesang Katam v Jackson Chepkwony & another [2011] eKLR

This case concerns the right to inheritance in marriages between women under the Nandi tradition. The High Court affirmed the right of Inheritance to Monica Jesang who was a beneficiary of the estate of Cherotich Kimong’ony Kibserea (deceased). The High Court at Mombasa in deciding the case upheld customary law by observing that the Nandi were to rightly claim protection under Article 11 (1) of the 2010 Constitution of Kenya, which recognises culture as the foundation of the nation and as the cumulative civilization of the Kenyan people.

Richard Muasya v. the Hon. Attorney General, High Court of Kenya (2 December 2010)

In this case the High Court held that it was acceptable for an intersex person to be confined separately from other prisoners in detention and that solitary confinement was lawful as there was no suitable room available for RM during the criminal trial. However, damages were granted under inhuman and degrading treatment, given that the guards had deliberately exposed the petitioner’s genitalia in the presence of other persons. The High Court ruled that the petitioner did not face discrimination or lack of legal recognition from having to be registered as either male or female and there was no need to create a third gender category.

LGBTQI+ Organisations

Website
Address: P.O.BOX 13005-00100, Nairobi, Kenya
Tel: +254-020 2497228
Email: info@ishtarmsm.org

Director: Peter N. Njane
Email: director@ishtarmsm.org / pnjane@ishtarmsm.org / pnjoro2002@yahoo.com
Tel: +25 47 21 95 25 70
Administrative contact: Jeffrey K. Musa, Communication and Mobilization Manager
Email: communications@ishtarmsm.org or jeffreym@ishtarmsm.org or jeffreym162@gmail.com
Tel: +254724034964 / +25 47 13 79 71 57 (mobile)

Ishtar MSM is a community based organization that advances sexual health rights of men that have sex with men to reduce the stigma and discrimination aliened with them by creating awareness with the aim of advocating for their rights to access health care, including STI/HIV and AIDS related care and treatment. Ishtar-MSM is a member group of The Gay & Lesbian Coalition of Kenya (GALCK).

Ishtar MSM was formed in the year 1997 when the founders and members did a play by the Name “Cleopatra” at the Kenya National Theater. Majority of them were Male Sex Workers and later formed Ishtar as a support group. They would come together and help each other in various ways like bailing each other and moral support. After 1999 they registered the organization as self help group under the ministry of Home affairs, heritage and sports to create awareness to the members in HIV/AIDS prevention, care & treatment.

In the 2003 through new leadership and members the organization included holistically all MSM (Men who have sex with men) and the initial members the Male sex workers were part Ishtar’s programmes.

Currently Ishtar has 300 registered members and the organization operates from Nairobi.

Website
Facebook
Mail: P O Box 7144 – 00300, Nairobi, Kenya
Tel: +254(0)20 233 0050 / +254(0)20 812 7535
Email: info@uhai-eashri.org

Established in 2009, and based in Nairobi, UHAI EASHRI funds activist organisations in 7 Eastern African countries—Burundi, Democratic Republic of Congo, Ethiopia, Kenya, Rwanda, Tanzania and Uganda—and Pan-African organisations working across the continent. UHAI EASHRI is Africa’s first indigenous activist fund supporting sexual and gender minorities  and sex worker human rights. It has funded critical court challenges that overturned repressive laws, resourced pioneering community-led HIV clinics, and supported communities to document their lives, organisations and advocacy. Aside from funding they engage in capacity building, research, convening, and support efforts that build knowledge, effectiveness, accountability, sustainability, and integrity in the communities they work with across Eastern Africa.

Country of Origin Experts in LGBTQI+ rights

We do not currently list any COI Expert in LGBTQI+ rights in Kenya.  If you would like to be listed, or you have any suggestions, please contact us.

Country of Origin Information on LGBTQI+ situation

The following sections contain documents that can be consulted when looking for Country of Origin Information (COI) with regards to the situation and treatment of  the LGBTQI+ community in Kenya.

See Report here

This report presents COI on Kenya focusing on issues identified to be of relevance in refugee status determination for Kenyan nationals of the LGBTQI+ community. Research concentrated on events that took place between 1 January 2020 and 15 December 2023. 

Kenya Legal Assistance

Find organisations providing legal assistance to refugees in Kenya.

Kenya COI

Find Kenya Country of Origin information (COI) experts, reports, commentaries, and relevant documents. 

We are always looking to expand the resources on our platform. If you know about relevant resources, or you are aware of organisations and/or individuals to include in our directories, please get in touch.

Last updated July 2025