Kenya’s CBK seeks powers to take over struggling fintechs
Kenya’s central bank is seeking powers to take over struggling payment companies and sell their businesses, expanding the regulator’s role in protecting customer money when providers run into trouble.
The draft National Payment System Bill, 2026, would allow the Central Bank of Kenya (CBK) to intervene when a provider fails to meet its obligations to customers or other financial institutions, breaches regulatory requirements, or threatens financial stability.
The measures could put CBK at the centre of resolving failures in an industry where customers rely on private companies to hold and move their money. It could force service providers and their investors to surrender control of a troubled business before it reaches liquidation, with CBK deciding who runs it and appointing a statutory manager to sell it.
“The Central Bank may intervene in the management of a payment service provider or a payment system operator where … the payment service provider or payment system operator fails to meet its obligations to customers,” the draft bill states.
A company that fails to comply with a regulatory directive could also face action, while CBK could intervene during a crisis to protect financial stability and public confidence.
That would give the regulator room to act while a business still has assets and operations worth preserving. In payments, a provider’s inability to settle its obligations can affect merchants awaiting sales proceeds, customers making transfers, and other institutions expecting payment.
The proposal also allows CBK to remove company officials it deems responsible for a company’s deterioration, appoint a director who cannot be dismissed without its approval, and stop the firm from taking on new payment business or agents.
“All the powers of the directors, significant shareholders, senior officers or trustees” would cease on the manager’s appointment, except where the manager permitted them to continue, the draft says.
Such restrictions could limit the amount of additional customer money exposed to a troubled provider. They could also leave its owners with little influence over how the company responds to its troubles.
While the proposal places the protection of customer money at the centre of any intervention, it does not guarantee uninterrupted access to funds. A statutory manager could suspend payments to customers and other creditors while managing the company’s affairs.
CBK has intervened in a payment company before. In October 2021, it revoked the authorisation of Mobile Pay, which operated under the Tangaza brand, citing regulatory breaches that put customer funds at risk. According to the regulator, the company failed to submit audited accounts for its business and trust fund, as well as security audits and other reports.
The proposed law would build on those powers with a detailed statutory management regime, including provisions for replacing management and selling a provider’s business.
CBK has exercised similar powers in the banking industry over the past decade. It placed Imperial Bank into receivership in October 2015 and announced its liquidation in December 2021.
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When Onafriq announced it was shutting down Baxi, its Nigerian agent banking business, on October 16, it marked the end of a five-year expansion effort that began when the company acquired one of Nigeria’s largest independent agent banking networks. But months before announcing the closure, the pan-African payments company had been negotiating a sale of Baxi.
The proposed sale, which covered the entire agency banking operation active only in Nigeria, remained unresolved as of July, according to Onafriq’s audited financial statements filed in the United Kingdom.
In the statement announcing Baxi’s closure, the company cited inflation, naira depreciation, rising operating costs, shrinking margins, and growth in alternative payment methods such as account-to-account (A2A) transfers, which weakened offline payments. It said the economics of running an offline agent network had become unsustainable.
Onafriq’s statement did not mention the prospective buyer or the status of the negotiations. As of July 29, when the accounts were approved, negotiations were still ongoing, and Onafriq said it could not reliably estimate the structure, timing, or financial impact of a sale.
“During 2026, Onafrıq Nigeria Payments Limited entered into a non-binding memorandum of terms with a purchaser in respect of the proposed divestment of the agency business,” the company said in the financial statements. “The proposed transaction contemplates the sale of 100% of the agency business and related operations, subject to the terms and conditions to be agreed between the parties in a definitive asset purchase agreement.”
By then, the business had already suffered a sharp financial decline. Onafriq’s agency services revenue fell 56% to $13.4 million in 2024, from $30.4 million the previous year. The company also wrote off the remaining $4.56 million in goodwill tied to its Nigerian payments business, reflecting a decline in the value it expected to recover from the investment.
The attempted sale reversed the strategy that brought Onafriq into Nigeria. The company had acquired Baxi to connect a vast network of cash-based agents to its pan-African payments infrastructure.
Five years later, it was looking for an acquirer to take over that network. By October, it was telling Baxi’s agents—over 460,000 as of 2025—to move their funds elsewhere.
An unfinished sale
Baxi’s declining revenue was only part of its financial troubles. Although Onafriq cut agency services costs from $17 million in 2023 to $8.7 million in 2024, gross profit fell even faster, declining by 65% from $13.4 million to $4.7 million, according to its financial report.
The group’s agency business generated about $35 in gross profit for every $100 in revenue in 2024, down from $44 the previous year. That left considerably less money to cover salaries, technology, and other operating expenses.
By the time Onafriq began negotiating a sale in 2026, its agency services generated substantially less gross profit than they did two years earlier. The business also operated company-owned point-of-sale (PoS) terminals and provided short-term credit to agents whose wallet balances were running low.
According to Onafriq, agents typically had one to seven days to repay the loans, with interest rates ranging from 2.5% to 7% for each loan. The company funded the credit from its own resources, assessed agents’ creditworthiness, and collected repayments and managed defaults.
In July 2026, Onafriq said its Nigerian subsidiary, Onafriq Nigeria Payments Limited, owed ₦13.8 billion ($10.4 million) to Zenith Bank, a Nigerian tier-1 lender, and ₦6.1 billion ($4.6 million) to Stanbic IBTC Bank, a mid-tier bank, in outstanding overdrafts, bringing the total to ₦19.9 billion ($15 million), its filings showed.
“We entered Nigeria with conviction and commitment, but did not achieve the outcome we set out for,” Dare Okoudjou, Onafriq’s founder and chief executive officer, said in the statement announcing Baxi’s shutdown in Nigeria.
The economics behind Baxi’s retreat
Onafriq had already begun writing down the value of its Nigerian payments business before Baxi’s shutdown. It wrote off $2.4 million in goodwill in 2023 and the remaining $4.56 million in 2024, according to its filings.
Goodwill is the extra value recorded when a company buys a business, beyond the value of its identifiable net assets. The write-offs meant Onafriq no longer expected the business’s future earnings to justify that extra value.
However, other parts of Onafriq’s group-wide business were performing better. Revenue from money transfer fees grew by 20% to $43.9 million in 2024. The group’s card fee revenue also jumped 22%.
The contrasting performance helps explain why Onafriq retained its payments network and card-issuing services while closing Baxi. Yet, Nigeria’s wider PoS market presented a more complicated picture.
According to the Nigeria Inter-Bank Settlement System (NIBSS), the country’s payments switch, PoS transactions’ value rose 79% to ₦18.78 trillion ($14.1 billion) in the first quarter of 2026. The number of deployed PoS terminals had more than doubled, from 2.45 million at the end of 2023 to 5.56 million at the end of 2024.
But the growth in transaction value concealed a much slower increase in the number of payments. In 2024, NIBSS data showed PoS transaction volumes rose by just 8%, from 1.4 billion to 1.5 billion, even as deployed terminals increased by 127%.
The number of terminals was expanding much faster than the transactions passing through them. For agent banking providers, more devices in the market meant greater competition for customers, without a corresponding increase in the number of transactions from which they could earn commissions.
Deployed PoS terminals
5.56 million
Terminals deployed nationwide by year-end
THE NETWORK
5.56m
Each square represents approximately
50,000 deployed terminals.
Squares are a scaled illustration.
Annual PoS transactions
1.5 billion
Transactions processed nationwide
during the year
TRANSACTION VOLUME
1.5bn
01.6bn transactions
The bar uses the same scale for
both years, making the relatively
small change visible.
THE IMPLIED TRANSACTIONS PER TERMINAL
270
annual transactions per
year-end deployed terminal
−53%
change from 2023 to 2024
In 2024, Nigeria recorded roughly
270 annual PoS transactions for
every terminal deployed at year-end,
compared with about 571 in 2023.
Meanwhile, Baxi’s economics were deteriorating
Onafriq’s reported agency services figures
show what happened to the business as
Nigeria’s wider PoS network expanded.
These are group agency services figures,
not a measure of transactions per Baxi agent.
Agency services revenue
$13.4m
Down 56% from 2023
Agency services gross profit
$4.7m
Down 65% from 2023
What the numbers suggest:
Nigeria’s PoS network was expanding far
faster than the number of transactions
flowing through it. That is consistent
with intensifying competition for
transaction activity, even as Onafriq’s
agency revenue and gross profit declined.
It does not establish that the national
trend caused Baxi’s losses or shutdown.
The Nigerian fintech unicorn said it served over six million businesses in 2025, underscoring the scale of the networks Baxi was competing against, which made its business hard to justify.
From expansion to exit
Onafriq entered Nigeria's agent banking market in October 2021, when the company, then known as MFS Africa, announced its acquisition of Capricorn Digital Limited, the company behind Baxi. The deal was completed in March 2022 after receiving the Central Bank of Nigeria's (CBN) approval.
At the time, Baxi had more than 90,000 agents providing cash withdrawals, transfers, and bill payments. The network processed over $1.6 billion in transactions in 2021, making it one of Nigeria's largest independent agent banking networks.
The acquisition was intended to connect Baxi's physical distribution network to MFS Africa's cross-border payments infrastructure. In June 2022, the company also secured debt financing from Stanbic IBTC Bank to support Baxi's expansion.
Five years later, Onafriq is dismantling that strategy. Following the shutdown, it said it had transferred Baxi's agents to another principal bank and given them 30 days to move their funds to a principal bank of their choice.
Onafriq will continue operating in Nigeria through its payments network and card-issuing services, but without the agent banking business it acquired to establish a foothold in the country's offline payments market.
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Onafriq, a digital payments network that operates across 40 African countries, is winding down Baxi, its Nigerian agent banking business, after five years, following what the company calls a review of its long-term strategy and sustainability.
The company said in a statement on Friday that inflation, naira depreciation, rising operating costs, lower trading volumes, margin pressure, and the rapid growth of instant account-to-account payments have made the offline agent banking business unsustainable.
Baxi was one of Onafriq’s large bets on Nigeria’s offline payments economy, built around the idea that a vast agent network could bring financial services to customers who still relied heavily on cash. However, economic conditions made maintaining that network more difficult.
“We entered Nigeria with conviction and commitment, but did not achieve the outcome we set out for,” Dare Okoudjou, Onafriq’s founder and chief executive officer, said. “Closing this business was a difficult decision to arrive at, one that affects colleagues, agents, and business partners across Nigeria who poured their hearts and soul into building out the Baxi network.”
Onafriq said the decision will affect employees whose roles are tied to the business. However, it did not disclose the number of affected employees.
Baxi agents have been transitioned to another principal bank and asked to move their funds to their preferred principal bank within 30 days. Onafriq will continue operating in Nigeria as a Payment Solution Service Provider, focusing on its payments network and card issuing services.
In 2024, the naira lost roughly 129% of its value, falling to ₦1,479 per dollar. Nigeria’s inflation rate also reached 34.8% in December 2024, according to Nigeria’s Central Bank (CBN). For a business with a large physical network, the depreciation and inflation could mean operating inputs became more expensive.
Onafriq began agent banking in Nigeria by acquiring Capricorn Digital in a deal announced in October 2021. At the time, Baxi had more than 90,000 agents and had processed more than $1.6 billion in transactions in 2021. The acquisition was Onafriq’s route into a payment market that still had its financial system heavily reliant on banks and cash.
The plan was to use Baxi’s extensive physical distribution network to connect Nigeria’s offline payments ecosystem to MFS Africa’s cross-border payments infrastructure, according to the company. Baxi’s agents provided cash-in and cash-out services as well as account opening, money transfers, bill payments, and other services.
However, Nigerians’ payment behaviour began to change as instant account-to-account transfers became more widespread. The volume of Internet transfers in the first half of 2024 was 11.6 billion, compared with the 6.3 billion for the point-of-sale (PoS) payment option. At the same time, competition from fintechs, including Moniepoint, OPay and PalmPay, began to grow and dominated the PoS agent-banking market.
Onafriq said it will consult affected employees and support them through the transition and continue to honour its commitments to agents and other stakeholders as the business winds down.
Onafriq’s exit from agent banking comes amid a pullback by some fintechs from Nigeria’s financial services market, squeezed by a tougher funding environment and rising operating costs. In May, Chimoney, a cross-border payments infrastructure company, ceased operations after struggling to raise enough capital to continue operations, while Gigbanc announced in July that it would wind down its business amid a difficult fundraising environment.
“This decision is confined to the agent banking business in Nigeria and does not represent an exit from the Nigerian market,” the company added in the statement. “Onafriq Group remains strong, with continued growth across its cross-border payments network and card issuing services.
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