The U.S. government estimates the total population at 12.7 million (midyear 2020 estimate). According to the 2012 census, the population is 44 percent Catholic; 38 percent Protestant, including Anglican, Pentecostal, Baptist, Methodist, Episcopalian, and evangelical Christian churches; 12 percent Seventh-day Adventist; 2 percent Muslim; and 0.7 percent Jehovah’s Witnesses. Several other small religious groups, together constituting less than 1 percent of the population, include animists, Baha’is, members of The Church of Jesus Christ of Latter-day Saints, and a small Jewish community consisting entirely of foreigners. Approximately 2.5 percent of the population holds no religious beliefs. The head office of the Rwanda Muslim Community (RMC) stated Muslims could constitute as much as 12 to 15 percent of the population. The majority of Muslims are Sunni, with a small number of Shia (200-300), according to the RMC. While generally there are no concentrations of religious groups in certain geographic areas, a significant number of Muslims live in the Nyamirambo neighborhood of Kigali.

Legal Framework

The constitution prohibits religious discrimination and provides for freedom of conscience, religion, worship, and public manifestation thereof even when the government declares a state of emergency. Exercising these rights may be subject to limitations to ensure respect of others’ rights and good morals, public order, and social welfare. The constitution bars political parties based on religious affiliation. The penal code stipulates religious discrimination is punishable by five to seven years in prison and fines of 100,000 to 1,000,000 Rwandan francs ($110 to $1,100).

Under the law determining the organization and functioning of FBOs, which include religious groups and nongovernmental organizations associated with religious groups, any organization, umbrella organization, or ministry that intends to begin operations must obtain legal status from the Rwanda Governance Board (RGB). According to the law, an FBO must submit the following to obtain legal status: an application letter addressed to the RGB; notarized statutes governing its organization; the address of its head office and the names of its legal representative and deputy, their duties, full address, and criminal records; a document certifying the legal representative and deputy were appointed in accordance with its statutes; a brief notarized statement explaining its doctrine; a notarized declaration of the legal representatives of the organization of consent to the responsibilities assigned to them; notarized minutes of the group’s general assembly that established the organization, approved its statutes, and appointed members of its organs; a notarized document describing the organization’s annual action plan and source of funding; a document indicating the building that meets the requirements of the building code of the area of operation; a letter issued by district authorities agreeing to collaborate with the organization; a partnership document issued by an umbrella organization of the organization’s choosing; and proof of payment of a nonrefundable application fee. The law states the RGB must either issue a certificate of legal personality within 60 days of the date of receipt of the application or, in case of denial, send a written notice explaining the reasons for the denial within 30 days of the date of receipt of the application. Under the law, FBOs that already held legal personality as of September 10, 2018, when the current law was passed, were not required to reapply but had to harmonize their functioning and statutes with the current law and submit the revised statutes to the RGB within 12 months of the law’s enactment.

Under the law, if the RGB denies an FBO’s application for legal status, the group may reapply when the reason for denial no longer exists.

The law stipulates that preachers with supervisory responsibilities must possess a degree in religious studies from an institution of higher learning or any other degree with a valid certificate in religious studies issued by a recognized institution. The law also requires that an FBO’s legal representative hold a degree from an institution of higher learning. The law states that persons required to hold an academic degree shall have five years from the date of the law’s enactment to comply with the requirement.

The law establishes fines of one to two million francs ($1,100 to $2,100) and imprisonment from one to two years for any individual who obstructs the practice of religious rituals. The law also prohibits public defamation of rituals, symbols, and “religious cult objects.” The penalty is imprisonment for a term of not less than 15 days but less than three months and a fine of 100,000 to 200,000 francs ($110 to $210), or only one of these penalties.

The law regulates public meetings and states that any person who holds a meeting or demonstration in a public place without prior authorization is subject to eight days’ to six months’ imprisonment, a fine of 100,000 to 1,000,000 francs ($110 to $1,100), or both. Penalties increase if the illegal meeting or demonstration is found to have threatened security, public order, or health. The law states that religious sermons must be delivered in designated facilities that meet the requirements of the law and that if an FBO intends to organize a special public gathering, it must seek authorization from the competent authority.

Under the law, FBOs are prohibited from causing noise pollution. Offenders are subject to a fine of 100,000 to 1,000,000 francs ($110 to $1,100), and repeat offenders are subject to increased fines and up to one month’s imprisonment. By law, groups may not use their faith, religious practices, and preaching to jeopardize national unity, peace and security, public order and health, good morals, good conduct, freedom, or the fundamental rights of others.

Students in public primary school and the first three years of secondary education must take a survey class on world religions, ethics, and citizenship. The Ministry of Education establishes the curriculum. The law does not specify either opt-out provisions or penalties for not taking part in the class. The law allows parents to enroll their children in private religious schools.

The government subsidizes some schools affiliated with religious groups. A presidential order guarantees students attending any government-subsidized school the right to worship according to their beliefs during the school day, as long as their religious groups are registered in the country and the students’ worship practices do not interfere with learning and teaching activities. The order does not stipulate any procedure for arranging special accommodations.

The law states FBOs may give their opinions on social or faith-related matters but may not engage in political activities to gain political power, organize debates to support political organizations or political candidates, or use any other means to support candidates for any public office.

Every foreign missionary must have a temporary resident permit and a foreign identity card. Specific requirements to obtain the permit (which is valid for two years and renewable) include a signed curriculum vitae, an original police clearance from the country of prior residence, an authorization letter from the parent organization, and a fee of 100,000 francs ($110).

The country is a party to the International Covenant on Civil and Political Rights.

Government Practices

During the year, many places of worship remained closed because they failed to make government-mandated infrastructure improvements to address health and safety standards or noise pollution ordinances. Government officials stated that these requirements were necessary to protect the health of worshippers and said that while some places of worship had been closed, religious organizations were not prohibited from operating. They stated that time and resource constraints prevented many religious groups from bringing their places of worship into compliance with government requirements during the year, and added that many religious groups made arrangements to worship elsewhere until they could make improvements to their facilities. Of the 8,760 places of worship that were closed in 2018, the government reported 2,016 were allowed to reopen as of December 2019 after making required improvements. An additional 215 places of worship were allowed to reopen during the year after making required improvements.

Civil society and religious leaders reported that most places of worship that were not in compliance in 2019 continued to be out of compliance during the year and thus remained closed. They stated the required improvements were often prohibitively expensive for organizations of modest means (which constituted the majority) and that the economic effects of COVID-19 had left them with limited resources to make improvements.

Religious leaders said the same requirements applied to places of worship in both urban and rural areas and that the government applied the same infrastructure improvement requirements in urban and rural areas without regard for the level of economic development in the area. Religious leaders raised concerns that long-term closures of places of worship would negatively affect education and economic development in their communities because FBOs and religious groups often sponsored schools and provided access to finance through lending groups or banking services.

Media reported several cases in which local officials broke up groups that had gathered to pray in homes or in caves in contravention of COVID-19-related government prohibitions on mass gatherings, including those for religious purposes. In July, the government announced that places of worship could resume holding services after implementing COVID-19 preventive measures and obtaining approval from local authorities. Government officials stated that the government coordinated closely with religious leaders to develop guidelines on hand washing, physical distancing, and other safe practices that would allow for the resumption of services. Government and religious group representatives reported that many groups resumed services in line with these guidelines, although some groups in rural areas found meeting the requirements difficult.

In August, the government eliminated a requirement in the law mandating that civil servants and teachers swear an oath of allegiance to the country as a condition of employment. Jehovah’s Witnesses had long sought this change on the grounds that the oath requirement violated their religious beliefs and constituted a major barrier to employment. The amended law requires an oath only for elected offices. Jehovah’s Witnesses noted parliamentary debate on the issue featured parliamentarians advocating for the law to be changed to make it more inclusive of Jehovah’s Witnesses.

Government officials presiding over wedding ceremonies generally required couples to comply with the legal requirement that they take a pledge while touching the national flag, which ran counter to Jehovah’s Witnesses’ religious beliefs. The government sought to accommodate Jehovah’s Witnesses by allowing them to request modified wedding ceremonies without the flag pledge, although many couples reportedly faced delays arranging a ceremony with that special accommodation.

Jehovah’s Witnesses students faced sporadic challenges with respect to military and patriotic activities and certain religious services at school. Although the law protects students’ rights not to participate in these activities, Jehovah’s Witnesses stated that some school administrators of both public and religious schools were not aware of or did not enforce those protections.

Civil society leaders reported that the government pressured prominent religious leaders to be “positive” personalities and refrain from making statements in conflict with government policies.

Muslim community leaders stated that they maintained a collaborative relationship with the National Police and continued to work to combat extremism and radicalization in the Muslim community. Leaders said that they conducted training throughout the year to educate young Muslims about the dangers of extremism.

Religious leaders said numerous religious groups and associations contributed to greater religious understanding and tolerance by participating in interfaith activities and collaborating on public awareness campaigns. During the year, the Rwanda Religious Leaders Forum (RRLF), an organization under the joint leadership of the Grand Mufti of Rwanda and Protestant, Catholic, Anglican, and evangelical Christian leaders, continued to pursue its stated aim of strengthening interfaith collaboration on education, combating gender-based violence, and promoting socioeconomic development, unity, and reconciliation. The RRLF also made public statements advocating for reopening places of worship after the nationwide COVID-19 lockdown and worked with the government to develop parameters under which religious services could resume.

Observers said religious organizations played a crucial role in meeting the humanitarian needs of poor and vulnerable citizens most affected by COVID-19.

Embassy representatives continued to engage with government officials and religious organizations on the FBO law and its implementation. Embassy representatives discussed the law with government officials and encouraged the government to maintain clear channels of communication with religious groups and FBOs. Embassy representatives urged the government to be flexible in the application of government regulations and to work with religious groups and FBOs to reopen places of worship. Embassy representatives closely monitored whether COVID-19-related enforcement of public health directives affecting religious groups were applied consistently across all parts of society.

The embassy hosted interfaith discussions focused on religious diversity and how faith groups could help their communities cope with the COVID-19 pandemic. In October, the Ambassador hosted a virtual roundtable with representatives of Catholic, Protestant, evangelical Protestant, and Muslim communities. The groups discussed the importance of interfaith dialogue and religious tolerance and highlighted the benefits of interfaith cooperation for the country.

The U.S. government estimates the total population at 15.7 million (midyear 2020 estimate). According to 2016 government statistics, 95.9 percent of the population identifies as Muslim. Most Muslims are Sunni and belong to one of several Sufi brotherhoods, each of which incorporates unique practices, including some aspects of indigenous beliefs. Within the Muslim population there are 30,000-50,000 Shia Muslims, according to an unofficial 2017 estimate from the secretary general of the AhlouBayt Shia movement. Approximately 4.1 percent of the population is Christian. Christian groups include Catholics, Protestants, and groups combining Christian and indigenous beliefs.

Most Christians live in towns in the west and south.

Legal Framework

The constitution defines the country as a secular state and provides for the free practice of religious beliefs, provided public order is maintained, as well as self-governance by religious groups free from state interference. The constitution prohibits political parties from identifying with a specific religion. It states religious discrimination is punishable by law.

Muslims may choose either the civil family code or sharia to adjudicate family conflicts, such as marriage and inheritance disputes. Civil court judges preside over civil and customary law cases, but religious leaders informally settle many disputes among Muslims, particularly in rural areas.

By law, all faith-based organizations, including religious groups and NGOs representing religious groups, must register with the Ministry of Interior to acquire legal status as an association. To register, organizations must provide documentation showing they have been in existence for at least two years as an association. Organizations must also provide a mission statement; bylaws; a list of goals, objectives, activities, or projects implemented; and proof of previous and future funding. They must also pass a background check. Registration enables a group to conduct business, own property, establish a bank account, receive financial contributions from private sources, and receive applicable tax exemptions. There is no formal penalty for failure to register other than ineligibility to receive these benefits. Registered religious groups and nonprofit organizations are exempt from taxation on donations received.

The law requires associations, including religious groups and NGOs affiliated with them, to obtain authorization from the Ministry of Women, Family, and Gender in order to operate. This second registration requirement allows the government to monitor organizations operating in the field of social development and identify any interventions these organizations implement. Foreign NGOs, including those affiliated with religious groups, must also obtain an authorization from the Ministry of Foreign Affairs.

By law, religious education may be offered in public and private schools, and parents have the option to enroll their children in the program. The government permits up to four hours of voluntary religious education per week in public and private elementary schools. The government allows parents to choose either an Islamic or Christian curriculum. There is an opt-out available for parents who do not wish their children to attend.

The country is a party to the International Covenant on Civil and Political Rights.

Government Practices

As part of the government’s strategy to contain COVID-19, President Macky Sall in mid-March closed down mosques and churches, prompting at least one protest by hundreds of worshippers at a Dakar neighborhood mosque. The restrictions were eased in mid-May and houses of worship were allowed to reopen.

Some Muslim religious leaders continued to oppose child protection bill pending in the National Assembly since 2016. The pending bill calls for increased child protection services and measures to combat the trafficking of children, an abuse that the NGO Anti-Slavery stated occurred in some Quranic schools, or daaras. The government continued to work closely with Muslim religious leaders to gain support for the campaign and for other initiatives. A draft bill introduced by the government in 2018 to regulate the status of daaras also remained pending and was not introduced to the National Assembly. Civil society and children’s rights advocates continued to appeal to the government to pass new legislation to regulate daaras more effectively and to prosecute Quranic teachers who committed serious abuses against children, including forced begging and physical and sexual abuse.

The government continued to provide direct financial and material assistance to religious groups for use primarily in maintaining or rehabilitating places of worship or for underwriting special events. There continued to be no formal procedure for applying for assistance. All religious groups continued to have access to these funds and competed on an ad hoc basis to obtain them. President Macky Sall occasionally visited and supported beneficiaries of these funds.

The government did not ban the October Magal Muslim pilgrimage to the religious city of Touba. The leader of the Mourides Sufi brotherhood, Serigne Mountakha Mbacke, issued the call for pilgrims to attend despite the pandemic. Prior to the event, the government expressed approval of the event, noting the organizers would deploy 500 persons throughout the city to ensure compliance with pandemic mitigation efforts. Although the crowd was noticeably smaller than the millions that typically participate, tens of thousands of pilgrims gathered at the Great Mosque in Touba, including government ministers and dignitaries.

The Ministry of Education continued to provide partial funding to schools operated by religious groups that met national education standards. It provided the largest share of this funding to established Christian schools, which in general maintained strong academic reputations. The majority of students attending Christian schools continued to be Muslim. The Ministry of Education reported approximately 50 percent of primary school students again participated in religious education through the public elementary school system during the year. The government also continued to fund a number of Islamic schools, which officially enrolled approximately 60,000 students. There were 316 registered Catholic schools, accommodating approximately 120,000 students. Local experts noted that unregistered Islamic schools outnumbered Catholic schools, as many parents informally sent their children to these establishments to learn the Quran.

The Ministry of Interior and the Ministry of Women, Family, Gender, and Child Protection continued to monitor domestic associations, including religious groups and NGOs affiliated with them, to ensure they operated according to the terms of their registration. The Ministry of Foreign Affairs continued the same practice with foreign-based NGOs, including those affiliated with religious groups. Each association submitted an annual report, including a financial report, which the ministries used to track potential threats against national security.

In September, a group of Christians led by Ephrem Manga lodged a complaint in court against Imam Galadio Ka for defamatory and offensive rhetoric in a speech at a public religious conference in 2018. In his remarks, which circulated widely by video, Ka said, “The Christian minority in the country was responsible for legalizing alcohol, adultery, homosexuality, and usury.” In explaining his decision to seek justice in court, Manga said “…Galadio Ka’s words, beyond insulting our faith, [are seen] as an unbearable attack on the society of tolerance and cordial coexistence for which our country is famous.” The trial was set for late November.

Local and international NGOs continued to highlight abuses of students at some daaras, where young children sometimes resided to learn Quranic teachings. The government allocated 250 million CFA francs ($470,000) to a “Zero Children in the Street” project to raise awareness of and provide services to street children/forced child beggars with additional funding provided by others. As of year’s end, the program had sheltered more than 5,000 street children ages four to 17 throughout the country. The problem of forced begging remained widespread, according to several NGOs.

Local media and NGOs continued to report cases of physical and sexual abuse of daara students by some marabouts, or Quranic schoolteachers. For example, a 2019 Human Rights Watch report cited 16 deaths due to abuse or neglect, as well as dozens of cases of beatings, sexual abuse, and children chained or imprisoned in religious schools. In some communities, religious, NGO, and local government leaders sought to combat the problem. Local women’s groups also assisted in the care of children within daaras to prevent child begging.

The Ambassador and other embassy officers met with federal and local government officials to discuss conditions daara students faced, as well as the government’s efforts to combat forced child begging. Discussions also included the resilience of religious communities during the COVID-19 pandemic.

Embassy officials also met with religious leaders in Dakar and with local religious authorities in Ziguinchor, Touba, and Tivaouane to discuss forced child begging, daara conditions, and COVID-19-related issues.

The embassy sponsored the participation of 10 religious and educational leaders in a virtual discussion with U.S. officials on education, resilience, respect, and inclusion. It also sponsored two webinars with the Timbuktu Institute on combating violent religious extremism and promoting positive dialogue, understanding, and tolerance among youth in the Casamance region and Dakar.

The embassy supported several local women-led groups that helped care for children in daaras to prevent child begging, and supported efforts by local governments in Dakar to support and monitor daaras. Embassy officers visited a Quranic boarding school in Kaolack and discussed the issue of forced child begging. The Ambassador awarded the school’s director with the Ambassador’s Award for Excellence in Education.