The U.S. government estimates the population at 1.4 million (July 2018 estimate).  Of the total population, citizens number 677,000, according to the local government 2017 statistics, its most recent available estimate.  According to 2017 U.S. estimates, Muslims make up 73.7 percent of the total population, Christians 9.3 percent, Jews 0.1 percent, and others 16.9 percent (Hindus, Baha’is, Sikhs, and Buddhists).

According to the government, the citizen population comprises approximately 45 percent of the total population.  The government does not publish statistics regarding the sectarian breakdown between Shia and Sunni Muslims.  Most estimates from NGOs state Shia constitute a majority (55 to 60 percent) of the citizen population.  Local sources estimate 99 percent of citizens are Muslim, while Christians, Hindus, Baha’is, and Jews together constitute the remaining 1 percent.  According to Jewish community members, there are approximately 36 Jewish citizens, from six families, in the country.

Most of the foreign residents are migrant workers from South Asia, Southeast Asia, Africa, and Arab countries.  Local government estimates report approximately 51 percent of foreign residents are Muslim, 31 percent Hindus, Buddhists, Baha’is, and Sikhs, 17 percent Christians (primarily Roman Catholic, Protestant, Syrian Orthodox, and Mar Thoma from South India), and less than 1 percent Jewish.

Legal Framework

According to the constitution, Islam is the official religion and the state safeguards the country’s Islamic heritage.  The constitution provides for freedom of conscience, the inviolability of places of worship, the freedom to perform religious rites, and the freedom to hold religious parades and religious gatherings, “in accordance with the customs observed in the country.”  The constitution provides for the freedom to form associations as long as these do not infringe on the official religion or public order, and it prohibits discrimination based on religion or creed.  All citizens have equal rights by law.  According to the constitution, all persons are equal without discrimination on the grounds of gender, origin, language, or faith.  The labor law prohibits discrimination in the public sector on grounds of religion or faith.  The law also stipulates recourse through a complaint process to the Ministry of Labor and Social Development to legal bodies in the event of discrimination or dismissal in the work place on the basis of religion.

The constitution guarantees the right to express and publish opinions provided these do not infringe on the “fundamental beliefs of Islamic doctrine,” and do not prejudice the unity of the people, or arouse discord or sectarianism.

Parliament consists of an appointed upper house, the Shura (Consultative) Council, and the elected Council of Representatives (COR) lower house, each with 40 seats.  The country holds parliamentary elections every four years.  A 2012 constitutional amendment permits the king to dissolve the COR, but it requires that he first consult with the presidents of both of parliament’s upper and lower houses as well as the head of the Constitutional Court.  The king also has the power to amend the constitution and to propose, ratify, and promulgate laws.  The Shura Council has the power to overrule legislation by the lower house and the lower house has the authority to examine and pass legislation proposed by the king or cabinet.

The law prohibits anti-Islamic publications and broadcast media programs and mandates imprisonment of no less than six months for “exposing the state’s official religion to offense and criticism.”

Muslim religious groups must register with the Ministry of Justice and Islamic Affairs (MOJIA) to operate.  Sunni religious groups register with the ministry through the Sunni Waqf, while Shia religious groups register through the Jaafari (Shia) Waqf.  The waqfs are endowment boards, which supervise, fund the work of, and perform a variety of activities related to mosques and prayer halls.  Non-Muslim congregations and groups must register with the Ministry of Labor and Social Development (MOLSD) to operate.  In order to register, a group must submit an official letter requesting registration; copies of minutes from the founders’ committee meeting; a detailed list of founders, including names, ages, nationalities, occupations, and addresses; and other information such as the group’s bylaws and bank account information.  Religious groups also may need approval from the Ministry of Education (MOE), the Ministry of Information Affairs, or the Ministry of Interior (MOI), depending on the nature of the group’s intended activities.  If any religious group organizes functions outside of its designated physical space without approval, it may be subject to government prosecution and a fine.  The law prohibits activities falling outside of an organization’s charter.  The penal code does not specifically address the activities of unregistered religious groups, but provides for the closing of any unlicensed branch of an international organization plus imprisonment of up to six months and fines of up to 50 Bahraini dinars ($130) for the individuals responsible for setting up the branch.

According to the MOLSD’s official website, 19 non-Muslim religious groups are registered with the MOLSD:  the National Evangelical Church, Bahrain Malaylee Church of South India Parish, Word of Life International Church, St. Christopher’s Cathedral and Awali Anglican Church, Full Gospel Church of Philadelphia, St. Mary and Anba Rewis Church (St. Mary’s Indian Orthodox Cathedral), Jacobite Syrian Christian Association and St. Peter’s Prayer Group (St. Peter’s Jacobite Syrian Orthodox Church), St. Mary’s Orthodox Syrian Church, Sacred Heart Catholic Church, The Church of Jesus Christ of Latter-day Saints, Church of Christ, Greek Orthodox Church, Pentecostal Church, Baps Shri Swaminarayan Mandir Bahrain (Hindu Temple), Indian Religious and Social Group (Hindu Temple), Spiritual Sikh Cultural and Social Group, St. Thomas Church Evangelical Church of Bahrain, Marthoma Parish, and the Anglican and Episcopal Church in Bahrain.  Additionally, non-Muslim, nonregistered groups include the Baha’i, Buddhist, and Jewish communities.

The penal code calls for punishment of not more than one year’s imprisonment or a fine of no more than 100 dinars ($270) for offending one of the recognized religious groups or their practices, or for openly defaming a religious figure considered sacred to members of a particular group.

The law stipulates fines or imprisonment for insulting an institution, announcing false or malicious news, spreading rumors, encouraging others to show contempt for a different religious denomination or sect, illegally gathering, and advocating for a change of government, among other offenses.  The Office of the Ombudsman addresses the rights of prisoners, including the right to practice their religion.

The MOJIA oversees the activities of both the Sunni Waqf and the Jaafari Waqf.  The respective endowment boards supervise the activities of mosques and prayer halls, review and approve clerical appointments for religious sites under their purview, and fund expenses for the building and maintenance of religious sites.  According to the government, since August, MOJIA no longer funds endowment board members’ salaries.  Endowment boards, like the remainder of MOJIA employees, now fall under the Civil Service Bureau, whose oversight during the year was changed to the crown prince-led Civil Service Council.  Annually, the government allocates 2.7 million dinars ($7.16 million) to each endowment board.  Tithes, income from property rentals, and other private sources largely fund the remainder of the endowment boards’ operations.  The endowment boards may pay flat commissions and bonuses to preachers and other religious figures.

The Supreme Council for Islamic Affairs (SCIA) oversees general religious activities taking place within the country, and reviews the parliament’s draft legislation as well as the publication of Islamic studies school curricula and official religious texts.  The council comprises a chairman, a deputy chairman, and 16 prominent religious scholars, eight Sunni and eight Shia, most of them prominent preachers or sharia judges.  The king appoints council members for a four-year term.  Independent from other government scholarship programs, the council offers university scholarships for advanced Islamic studies for low-income students.  The SCIA reviews all legislation proposed by the parliament to ensure the draft law’s compliance with sharia.  The council also consults with other government entities before issuing permits to new Islamic societies or centers.  The council is responsible for reviewing the content of Islamic programs aired or broadcast on official government media, such as the official television station and official radio programs.  The council also organizes interfaith conferences and workshops.

The king has sole legal authority to allocate public land, including for religious purposes, although he may delegate this authority to government officials, including the prime minister.  By law, construction of places of worship requires approvals from appropriate national and municipal authorities.  The law permits non-Muslim houses of worship to display crosses or other religious symbols on the outside of their premises.  Government entities involved in allocating building permits include the MOJIA for non-Islamic religious sites, either the Sunni Waqf or the Shia Waqf under the MOJIA for Islamic sites, the Survey and Restoration Directorate, and the Survey Department.  The construction of a new mosque, whether Shia or Sunni, is based on a government determination of the need for a new mosque in the area.

The law regulates Islamic religious instruction at all levels of the educational system.  The government funds public schools for grades 1-12; Islamic studies are mandatory for all Muslim students, and are optional for non-Muslims.  Private schools must be registered with the government and, with a few exceptions (for example, a foreign-funded and foreign-operated school), are also required to provide Islamic religious education for Muslim students.  Private schools wishing to provide non-Islamic religious education to non-Muslims must receive permission from the MOE.  Outside of school hours, both Muslim and non-Muslim students engage in religious studies as their parents deem fit.

According to the MOE, no particular school of jurisprudence forms the basis of the Islamic studies portion of the public school curriculum.  According to the MOE, in coordination with the SCIA, a team of experts routinely reviews and develops the Islamic studies public school curriculum to emphasize shared Islamic values between different Sunni and Shia schools of thought, reject extremism, and promote tolerance and coexistence.  According to the government, the SCIA provides financial assistance to the six registered hawzas (Shia seminaries); other hawzas choose to be privately funded.  The government does not permit foreign donors to contribute to privately funded hawzas.  There are no restrictions on religious studies abroad.  The government also permits non-Muslim groups to offer religious instruction to their adherents.

According to the constitution, sharia forms a principal basis for legislation, although civil and criminal matters are governed by a civil code.  With regard to family and personal status matters, the constitution states inheritance is a guaranteed right governed by sharia.  It also guarantees the duties and status of women and their equality with men, according to sharia.  The personal status law states either the Sunni or Shia interpretation of sharia with regard to family matters, including inheritance, child custody, marriage, and divorce, shall govern depending on the religious affiliation of the party.  Mixed Sunni-Shia families may choose which court system will hear their case.  The provisions of the law on personal status apply to both Shia and Sunni women, requiring a woman’s consent for marriage and permitting women to include conditions in the marriage contract.  Non-Muslims may marry in civil or religious ceremonies, and civil courts make decisions for them on matters such as divorce and child custody.

The government does not designate religious affiliation on national identity documents, including birth certificates.  Applications for birth certificates and national identity documents, however, record a child’s religion (either Muslim, Christian, Jewish, or Other), but not denomination.  Hospital admission forms and school registration forms may also request information on an individual’s religion.

The constitution says the state shall strive to strengthen ties with Islamic countries.  It specifies the succession to the position of king is hereditary, passing from eldest son to eldest son.  The royal family is Sunni.

The law prohibits individuals from being members of political societies or becoming involved in political activities while serving in a clerical role at a religious institution, including on a voluntary basis.

In June the king signed into law amendments to the Exercising Political Rights Law of 2002, which prohibits the candidacies of leaders and members of political societies dissolved by a final court order.  The law excludes former members of predominantly Shia Wifaq political society as well as other parties, whose membership is not predominantly Shia, including the Wa’ad political society.  The new law also prohibits felons and anyone previously convicted and sentenced to more than six months in prison from running for office.  On July 3, the king signed an amendment to the Law on Associations, Social and Cultural Clubs, Private Bodies Working in the Field of Youth and Sports, and Private Institutions that prevents members of dissolved opposition groups, such as Wifaq and Wa’ad, from serving on the board of directors of nongovernmental and civil society organizations, stipulating that an NGO board member must be able to continue to enjoy “the entirety of his civil and political rights.”

By law, the government regulates and monitors the collection of money by religious and other organizations.  Organizations wishing to collect money must first obtain authorization from the MOJIA.

The law guarantees inmates of correctional facilities the right to attend burials and receive condolences outside of prison.

The country is party to the ICCPR with reservations stating it interprets the covenant’s provisions relating to freedom of religion, family rights, and equality between men and women before the law as “not affecting in any way ” the prescriptions of sharia.

Government Practices

Because religion and politics are often closely linked, it was difficult to categorize many incidents as being solely based on religious identity.  The government continued to question, detain, and arrest Shia clerics and community members.  The government continued to monitor and provide general guidance for the content of sermons and to bring charges against clerics who repeatedly spoke on unapproved topics.  Authorities arrested Shia cleric Isa Al Mo’min on February 4 for “inciting hatred against the government” during a Friday sermon and sentenced him to three months in prison.  International and local NGOs reported the police summoned more than 25 individuals, including clerics, in the lead-up to, as well as after, the September 20-21 Ashura commemoration, the most significant day of the Shia religious calendar.  Based on reports it received, AI said that many of those detained were reportedly under investigation for inciting hatred against the regime and more than 15 clerics and lay assistants among them were “interrogated for the content of their sermons.”  The police held many individuals overnight; others were detained and released thereafter.  According to local reports, of those summoned, authorities detained nine for varying periods ranging from one day to over a month pending investigation.  As of October 30, none remained in custody.

AI stated that prior to the November parliamentary elections, security forces carried out a series of arbitrary detentions of activists and religious figures suspected of supporting political opposition to the monarchy.  On October 12, AI received reports that authorities detained approximately a dozen protestors in the village of Karrana and held them for approximately one month for unlawful assembly.  On November 4, security forces entered approximately 10 private homes in the Shia majority town of Karbabad and detained 16 individuals, seven of them minors.  In November AI received reports of the re-establishment of police checkpoints in the majority Shia village of Arad, the neighborhoods of al-Dair and Samahij, which have notable Shia concentrations, and the religiously mixed locality of Hamad Town.  Several internal checkpoints and roadblocks remained in place in the mostly Shia town of Sanabis.  On July 11, the government removed concrete barriers, barbed wire, and police checkpoints that had previously restricted entry into the predominantly Shia neighborhood of Diraz.  Local Shia continued to state that authorities prevented nonresidents, including Shia clerics, from entering to attend or lead prayers at mosques in Diraz.

On November 4, an appeals court sentenced Ali Salman, former leader of Wifaq, and two associates to life in prison for conspiring with Qatar to undermine the government in 2011.  The appeals court reversed a previous June criminal court acquittal following an appeal by the Office of the Public Prosecutor.  Authorities had already imprisoned Salman on another charge of inciting hatred; he was due to be released in December after completion of his original four-year sentence.  The government tried Salman’s two co-defendants, former Wifaq MPs Hasan Ali Juma Sultan and Ali Mahdi Ali Al Aswad, in absentia.

According to local press, NGO, and social media reports, on November 13, authorities detained former Wifaq MP Ali Al Asheeri for a social media post in which he announced his intention to boycott the elections, saying, “I am a Bahraini citizen deprived of my political and civil rights so I and my family will boycott the elections.”  He was released from detention November 27, and charges were still pending at year’s end.  The Public Prosecution stated authorities were investigating Al-Asheeri for “incitement of non-participation in the elections.”

On April 18, a court sentenced former MP Mohamed Khalid to three months in prison for a posting on social media that “defamed” a religious symbol revered by Shia.

In January Shia cleric Hussain al-Qassab lost his appeal of a suspended one-year sentence and a 100,000 dinar ($265,000) fine for money laundering and collecting funds without a government license.  In 2017, the High Criminal Court convicted prominent Shia cleric Isa Qassim, who employed Qassab, on the same charges, but he did not appeal them.  Media identified Qassim as the leading Shia cleric in the country and his supporters reported his office had collected the money and spent the funds in accordance with Shia customs and obligations, and said the government had targeted him due to his prominent status in the Shia community.  Although Qassim had been under de facto house arrest since June 2016 and had his citizenship revoked, the government facilitated Qassim’s travel to London for medical treatment.  At year’s end Qassim was still undergoing treatment in London.

On October 29, the Supreme Court of Appeals upheld the 2017 sentence imposed by the Lower Criminal Court on former Wifaq MP Hasan Isa to 10 years in prison and a fine of 100,000 dinars ($265,000) for helping to finance a terrorist bomb attack in July 2015 that killed two police officers.  Isa denied involvement in the bombing, saying he had not given money to terrorists, but had distributed funds to poor families in his role as a religious leader of his neighborhood.

Several Shia clerics arrested in 2011 remained in prison at year’s end.  They had been associated with the political opposition and given sentences ranging from 15 years to life imprisonment on charges related to terrorist activity or inciting hatred.  Some human rights NGOs considered them to be political prisoners.

On November 6, the MOJIA issued a notice to imams, muezzins, and preachers that candidates in the upcoming parliamentary elections were prohibited from holding any campaign-related activities in houses of worship or religious centers.  On November 15, both the government-sponsored Sunni and Jaafari Waqf endowment boards called on citizens to participate in the upcoming municipal and parliamentary elections.

In November the UNHRC released its concluding observations on the country and its compliance with its ICCPR obligations.  The government provided input to the UNHRC in February, indicating that the constitution guarantees freedom of conscience and of religious belief, that no law or custom discriminates against any group or religion, and the constitution “envisages freedom of worship and access to such places, without discrimination in favour of one group or religion over another.”  The UNHRC, in its report, stated its concern about reports that “members of the Shia community have been subjected to restrictions of their rights to worship and profess their religious beliefs ….”  The committee also expressed concern about “reports that the Shia population is underrepresented in political and public life, including in the National Assembly.”  On freedom of religion, the committee was “concerned about the existence of practices that adversely affect the exercise of the right to freedom of religion or belief enshrined in article 18 of the Covenant” and suggested the government “should decriminalize blasphemy and guarantee that all people within their territory can fully enjoy the right to freedom of conscience, religion or belief,” including efforts to ensure the Shia population is fairly represented in public and political spheres and protected from discrimination.

In a submission prepared in June for the UNHRC review, a U.S.-based NGO stated that “the government has “intensified restrictions on Shia religious and cultural rights since 2011.”  The submission also stated that “security forces routinely employ violence to suppress the Shia community’s rights to free assembly, free association, free speech, and free cultural or religious expression.”

In December the king appointed Shia citizens to senior leadership positions, including cabinet members and members of the Shura council.  Official statistics on the religious affiliation or sect of public employees, members of parliament, or ministers are not maintained by the government.  However, according to informal estimates, the 40-member Shura Council included 18 Shia members, one Jewish member, and one Christian member, while the remaining 20 members were Sunni.  Following the parliamentary elections in November and December, sources suggested that of 40 seats in the Council of Representatives, 25 were won by members identified as Sunnis and 15 identified as Shia.  None of the current members of parliament ran on an explicitly sectarian platform.  Five of the 24 cabinet members, including one of the five deputy prime ministers, were Shia.

According to local activists and social media reports, the government’s amendments to the Exercising Political Rights Law of 2002, prevented at least five individuals from registering as candidates in the parliamentary and municipal elections in October due their prior affiliation with Wifaq, the largely Shia political society that was dissolved in 2016, a government decision that was upheld by the court in 2017.  Although the government stated it viewed the amendments as necessary to prevent lawbreakers from participating in elections, many members of the Shia community stated they viewed the law as an attempt to limit participation of opposition-oriented Shia politicians.  AI pointed out that since members of Wifaq, which it described as the largest Shia opposition group in the country, were prohibited from participating in elections, the new law “will have a de facto discriminatory effect on Shias’ political participation.”  According to Human Rights Watch (HRW), this legislation effectively disqualified opposition candidates from participating in the elections.  After the elections, an NGO noted that “the [historic] gerrymandering of electoral districts … has diluted the influence of … [the] Shia majority.”

According to the government, it generally permitted prisoners to practice their religion, but there were reports from Shia activists that authorities sometimes denied prisoners access to religious services and prayer time.  The Office of the Ombudsman, which was criticized by at least one NGO for failing to fulfill its mandate, reported it had not received any complaints or requests for assistance on the rights of prisoners to practice their religion during the year.  According to MOI, 10 inmates were permitted to attend funerals outside of the prison during the year.  The government continued not to provide regular statistics on detainees.  Based on reports it received, AI said Shia prisoners were vulnerable to intimidation, harassment, and ill treatment from prison guards, and denied access to needed medical care, because of their religion.  Government officials continued to state the MOI, which supervised detention facilities, only prohibited practices when they violated prison safety rules, such as waving religious banners or organizing large-scale gatherings for religious ceremonies.  The government reported that special rooms were available to prisoners for worship and prayer regardless of religious affiliation.  The National Institute for Human Rights (NIHR), a government human rights organization, which has been criticized by a U.S.-based NGO for what it said was its lack of independence, stated that it had not received any cases of prisoners being subject to harassment or ill-treatment by prison guards due to their religious affiliation during the year.

In September, according to reports received by HRW, three female prisoners said prison officials assaulted them after they complained authorities denied them the right to participate in religious commemorations of Ashura.  According to one of the women’s relatives, prison authorities later restricted the inmates’ access to family visits, phone calls, and time spent outside their cells.  Following a prison visit, meetings with the detainees, and reviews of prison files, the NIHR issued a statement on October 1 that the claims of interference in religious practice were “incorrect and contrary to reality.”  On October 4, the Bahrain Institute for Rights and Democracy, an NGO based in the United Kingdom, said the detainees contacted them to dispute the NIHR’s statement.

The government reported no change from 2017 in the 452 licensed Sunni mosques and 91 Sunni community centers, and the number of licensed Shia places of worship remained at 608 mosques and 618 ma’atams (Shia prayer houses, sometimes called husseiniyas in other countries).  The government reported it granted five permits during the year to build Sunni mosques and eight permits to build Shia mosques and ma’atams.  The government stated that determining whether a mosque would be Sunni or Shia in new housing developments depended on the needs and demographics of the new residents.

The MOJIA continued to monitor clerics’ adherence to a pledge of ethics it had created for individuals engaged in religious discourse.  Preachers who diverged from the pledge were subject to censure or removal by authorities on the grounds their actions jeopardized national security.  The MOJIA reported reviewing sermons submitted to the government on a weekly basis by preachers.  The MOJIA reported regularly visiting mosques to ensure preacher’s sermons were “moderate,” avoided discussing controversial topics, did not incite violence, and did not use religious discourse to serve political purposes.  The MOJIA also continued to announce how much money an adult should give on a voluntary basis to the poor on religious feast days.  According to Shia community representatives, during Ashura, police again summoned some Shia chanters and preachers and had them sign pledges that they would avoid discussing politics from the pulpit.

The government continued to permit Shia groups to hold processions to commemorate Ashura and Arbaeen throughout the country, with the largest procession organized by a Shia community-led organization, the Manama Public Processions Commission.  During the annual two-day public holiday for Ashura, most public schools and government offices were closed.  Local press estimated the largest procession attracted 150,000-200,000 attendees in downtown Manama.  The government permitted public reenactments of the martyrdom of Hussein and public marches in commemoration of Ashura.  As in previous years, the MOI provided security for the processions, but again removed some Ashura flags, banners, and decorations from streets and private property in Shia villages but not at the large procession in Manama, according to Shia leaders.  The government stated MOI personnel had removed the banners because they violated zoning restrictions or because they contained political messages.

The government continued to permit both registered and unregistered non-Muslim communities to maintain identifiable places of worship, hold religious gatherings, and display religious symbols.  The MOI continued to provide security for large events held by religious communities, including non-Muslim ones.  Security forces stated they continued to monitor sermons, religious gatherings, and funerals to maintain peace and security.

Adherents of minority religious groups reported they were able to produce religious media and publications and distribute them in bookstores and churches, although the government did not permit publications that were perceived to criticize Islam.  According to non-Muslim religious groups, the government did not interfere with religious observances and encouraged tolerance for minority religious beliefs and traditions.

There was no progress reported on the construction of a Coptic Orthodox church in Manama following the announcement in 2016 by the king that he would permit the construction of the church.  In June government officials, diplomats, and religious leaders attended the ground breaking for the construction of a Catholic cathedral on land previously donated by the king.  The cathedral, intended to serve as headquarters for the Catholic Apostolic Vicariate of Northern Arabia, was scheduled to be completed by mid-2021.  The Bahrain-based head of the Catholic Church’s Northern Vicariate Bishop Camillo Ballin has resided in the country since 2011.

In March the MOJIA reported that it had concluded reconstruction to the extent feasible of 27 of the 30 mosques it had destroyed or damaged in 2011, in compliance with an independent fact-finding commission.  Of the three remaining mosques, the government reported that one, in Salmabad, was reconstructed by local residents without a permit on an “illegal” site, despite the government’s offer for an alternative site in the same neighborhood.  According to the government, the second remaining mosque, in Hawrat Sanad, remained under evaluation because nine other Shia mosques already existed within close proximity.  The government stated the third mosque, in Madinat Hamad, would likely be relocated.  Some Shia stated they remained dissatisfied with three of the 27 reconstructed mosques because they had been rebuilt in different locations.

NGOs stated the government continued its disparate treatment of Shia versus Sunni individuals and stated this different treatment fueled perceptions among the Shia community of a justice system that was biased against them.

In contrast to previous years, there were no reports during the year of Sunnis or Shia accused of crimes having their names or pictures featured in local press prior to a conviction and often that information was omitted even after sentencing.

The government-run television station continued to air Friday sermons from the country’s largest Sunni mosque, Al Fateh Mosque, but not any sermons from Shia mosques.

According to the law, Arab applicants with 15 years’ residence and non-Arab applicants with 25 years’ residence are eligible to apply for citizenship.  The government stated that foreign residents applying for citizenship were not required to report their religious affiliation.  Shia politicians and community activists, however, continued to say the government’s naturalization and citizenship process favored Sunni over Shia applicants.  They said the government continued to recruit Sunnis from other countries to join the security forces, granted them expedited naturalization, and provided them with public housing while excluding Shia citizens from those forces.  According to Shia community activists, this continued recruitment and expedited naturalization of Sunnis represented an ongoing attempt to alter the demographic balance among the country’s citizens.

According to Shia leaders and community activists, the government continued to provide Sunni citizens preference for government positions, including as teachers, and especially in the managerial ranks of the civil service and military.  They also said Sunnis received preference for other government-related employment, especially in the managerial ranks of state-owned businesses.  They continued to report few Shia citizens served in significant posts in the defense and internal security forces.  According to Shia community members, senior civil service recruitment and promotion processes continued to favor Sunni candidates.  Other community members complained educational, social, and municipal services in most Shia neighborhoods remained inferior to those in Sunni communities.  The government stated it made efforts to support public schools in Shia and Sunni neighborhoods equally.  The government repeated public assurances affirming a policy of nondiscrimination in employment, promotions, and the provision of social and educational services.  The MOLSD reported it organized expositions, job fairs, professional guidance, and assistance to needy families in predominately Shia neighborhoods.  The MOLSD, which has a supervisory role in implementing labor law in the civil sector, again said there were no reported cases of religious or sectarian discrimination during the year.  Shia community activists again responded that they lacked confidence in the effectiveness of government institutions to address discrimination, so they did not utilize them.

Two public schools provided more in-depth religious instruction for students from elementary school through high school; the remainder of their curricula being consistent with the nonreligious curriculum in other public schools.  The Jaafari Institute provided religious instruction in Shia Islam.  The Religious Institute provided education in Sunni Islam.

The University of Bahrain continued to offer degree programs in religious studies and Islamic jurisprudence for Shia and Sunni students.  There were five registered institutes, publicly funded and overseen by the Sunni Waqf, offering religious education for Sunnis.  There were several dozen hawzas, six of them registered and authorized by the SCIA.

Human rights activists reported discrimination against Shia in education continued.  Activists said interview panels for university scholarships continued to ask about students’ political views and family background.  The government said its scholarships remained competitive.  Rights activists said many top scoring Shia applicants continued to receive scholarship offers in less lucrative or less prestigious fields.  The government reported students were offered funding in particular fields based on the student’s grade point average.  The government reported the flagship Crown Prince International Scholarship Program (CPISP) continued to have both Shia and Sunni representation, but it did not provide a statistical breakdown.  A list of scholarship recipients’ names, fields of study, and schools was published on the CPISP website.  Some Shia business leaders reported that government officials had overturned decisions to deny scholarships to Shia students over concerns that the decisions had been biased and did not reflect student merit.  There were continued reports of the MOE refusing to recognize the foreign degrees of some students, primarily those who pursued studies in China.  Some activists said these refusals disproportionately affected Shia students.

On March 14, the government announced a fine ranging from 50 dinars ($130) to 400 dinars ($1,100) for defacing the country’s passports.  It stated that writing, tearing, or stamping a passport was illegal unless done by authorized immigration officials in Bahrain or overseas.  The NIHR stated that the ban included any alterations done by ministries, embassies, hotels, banks, or tourism agencies.  Often tourism agencies, hotels, and other individuals at overseas religious sites placed stickers or wrote on the passports.  Former Shia MP Ali Al Ateesh said the law targeted citizens for visiting [Shia] religious sites in Iran and Iraq, while those with unofficial markings from other destinations were not held accountable.  Other MPs said the new rule did not target sects, religious tours, individuals or countries.

NGOs reported the government continued to monitor closely the collection of funds by religious organizations, including charity donations.  The NGOs said religious leaders and organizations not authorized to collect money, or whom the government believed handled the money in improper ways, were potentially subject to legal action.

On July 26, at the Ministerial to Advance Religious Freedom hosted by the Secretary of State in Washington, Minister of Foreign Affairs Khalid bin Ahmed Al Khalifa delivered remarks highlighting that “religious violence, incitement to hatred, and sectarianism have no place in Bahraini society.”  He announced the government planned to create a position of Ambassador at Large for Peace Coexistence and Religious Freedom to advocate for religious harmony and coexistence across the Middle East.  The government had not filled the position at year’s end.

Press editorials and statements from government and religious leaders emphasized the importance of religious tolerance.  In March the crown prince and foreign minister met with the president of the World Jewish Congress to discuss interfaith and religious tolerance in the country.  In June the government inaugurated the King Hamad Center for Peaceful Coexistence, led by a Board of Trustees comprised of representatives of the country’s Sunni, Shia, Christian, Catholic, Baha’i, Hindu, and Buddhist communities.  In November the Bahrain News Agency reported the minister of education inaugurated the King Hamad Chair in Interfaith Dialogue and Peaceful Co-Existence at Sapienza University in Rome, which according to local Bahraini reports would allow the university students to conduct scientific research and studies in the fields of tolerance and religious science.  Local press featured photos of senior government officials visiting the Diwali festivities of several prominent Hindu families throughout the country.

The U.S. government estimates the total population at 2.9 million (July 2018 estimate).  The Public Authority for Civil Information (PACI), a local government agency, reports there are 1.4 million citizens and 3.3 million noncitizens.  The national census does not distinguish between Shia and Sunni Muslims.  The PACI estimates approximately 70 percent of citizens are Sunni Muslims, while the remaining 30 percent are Shia Muslims (including Ahmadi and Ismaili Muslims, whom the government counts as Shia).  Community leaders have indicated there are 290 Christian citizens and a handful of Baha’i citizens.  There are no known Jewish citizens.

In June the PACI released statistics indicating 64 percent of expatriates are Muslim, 26 percent Christian, and 10 percent from non-Abrahamic faiths.  Sources in various expatriate communities also said approximately 5 percent of the expatriate Muslims are Shia, while Buddhists and Hindus account for half of the non-Abrahamic faith population.  Informal estimates by members of different faiths indicate there are approximately 250,000 Hindus, 25,000 Bohra Muslims, 10,000-12,000 Sikhs, 7,000 Druze, and 400 Baha’is.

While some geographic areas have higher concentrations of either Sunnis or Shia, the two groups are distributed relatively uniformly throughout most of the country.

Legal Framework

The constitution declares Islam to be the religion of the state and the freedom of belief to be “absolute.”  It provides for state protection of the freedom to practice all religions, provided such practice is “in accordance with established customs, and does not conflict with public policy or morals.”

The constitution declares sharia to be a main source of legislation and all individuals to be equal before the law regardless of religion.  It declares the emir shall be Muslim (the emir and ruling family are Sunni) and the state shall safeguard the heritage of Islam.  The Higher Advisory Committee on Completion of the Application of Islamic Sharia Provisions in the Amiri Diwan (office of the emir) makes recommendations to the emir on ways to bring laws into better conformity with sharia.  The committee is an eight-member advisory body to the Amiri Diwan, led by the president of the committee.  The Council of Ministers appoints members to three-year terms.  Traditionally, five of the members are religious scholars (jurisprudence and sharia experts) and two specialize in economics and law.  The committee functions in an advisory role and has no authority to implement or enforce its recommendations.

The law states apostates lose certain legal rights, including the right to inherit property from Muslim relatives or spouses, but it does not specify any criminal penalty.  If a Muslim man married to a Muslim woman converts from Islam, his existing marriage is annulled.  If he is married to a non-Muslim woman and converts from Islam, then the marriage is still valid.  If a Muslim woman married to a Muslim man converts to another Abrahamic faith (Christianity or Judaism), then the marriage is not automatically annulled, but the Muslim husband may request an annulment.  If a Muslim woman married to a Muslim man converts to a non-Abrahamic faith, then the marriage is automatically annulled.

The law prohibits the defamation of the Abrahamic religions and denigration of Islamic and Judeo-Christian religious figures within accepted Islamic orthodoxy (e.g., prophets mentioned in the Quran or companions of Muhammad), and prescribes a punishment of up to 10 years in prison for each offense.

A national unity law prohibits “stirring sectarian strife,” promoting the supremacy of one religious group, instigating acts of violence based on the supremacy of one group, or promoting hatred or contempt of any group.  Violations of this law by individuals are punishable by up to seven years’ imprisonment and/or a fine of 10,000 to 100,000 Kuwaiti dinars ($33,000 to $330,000).  Repeated crimes carry double penalties.  If a group or an organization violates the law, it could have its license to operate revoked temporarily or permanently, and it could be fined up to 200,000 dinars ($660,000).

The law allows citizens to file criminal charges against anyone they believe has defamed any of the three recognized Abrahamic religions or harmed public morals.

The law criminalizes publishing and broadcasting content, including on social media, which the government deems offensive to religious “sects” or groups, providing for fines ranging from 10,000 to 200,000 dinars ($33,000 to $660,000) and up to seven years’ imprisonment.  Noncitizens convicted under this law are also subject to deportation.

There is no promulgated process outlining what religious groups need to submit to register with the government.  In practice, groups navigate the process without much guidance from government offices.  Although all religious groups must apply in writing for a license from their municipality to establish an official place of worship and to gain the full benefits of being a registered religion with the central government, there are no transparent criteria that must be met for a registration application to be approved.  To obtain an official license, groups must first register with the MAIA.  If the registration application is granted, further approvals are required by the Ministry of Social Affairs (MOSA) and the Ministry of Interior (MOI).  Once these three ministries approve the registration application, the municipality must grant the final approval/license, which requires the community leaders to obtain written permission from all the immediate neighbors occupying the properties around the proposed place of worship.  In practice, the government often provides applicants with no information about the status of their pending registration, or if they have been rejected at any point.  There is no recourse to appeal the decision, as it is considered a “sovereign act” that cannot be challenged in court.

There are seven officially registered and licensed Christian churches:  National Evangelical Church of Kuwait (NECK) (Protestant); Roman Catholic; Greek Catholic (Melkite); Coptic Orthodox; Armenian Orthodox; Greek Orthodox; and Anglican.  There are no officially recognized synagogues, and according to the MAIA, no application has ever been submitted for one.  The government does not recognize any non-Abrahamic religions.  Nonrecognized religious groups include Hindus, Sikhs, Druze, Bohra Muslims and Baha’is.

A religious group with a license to establish a place of worship may hire its own staff, sponsor visitors to the country, open bank accounts, and import texts needed for its congregation.  Nonregistered religious groups do not have these abilities (although some registered religious groups have agreed to assist nonregistered groups in these matters).  Additionally, nonregistered groups may not purchase property or sponsor workers and must rely on volunteers from within their community for resources.

The law prohibits practices the government deems inconsistent with Islamic law, including anything the government deems to be sorcery or black magic, which under the penal code constitutes “fraud and deception” and carries a maximum penalty of three years’ imprisonment, a fine, or both.

The law does not specifically prohibit proselytizing, but individuals promoting proselytism may be prosecuted under laws criminalizing contempt of religion.

The law prohibits eating, drinking, and smoking in public between sunrise and sunset during Ramadan, including for non-Muslims, with a prescribed maximum penalty of up to 100 dinars ($330) and/or one month’s imprisonment.

It is illegal to possess or import pork products and alcohol.  Importing alcohol carries a penalty of up to 10 years’ imprisonment; consuming alcohol may result in a fine of up to 1,000 dinars ($3,300).

Islamic religious instruction is mandatory at all levels for all Muslim students in public schools and in private schools with one or more Muslim students enrolled, regardless of whether the student is a citizen.  Non-Muslim students are not required to attend these classes, and there is no penalty for not doing so.  The law prohibits organized religious education in public high schools for faiths other than Islam.  All Islamic education courses are based on Sunni Islam.

Religious courts administer personal status law dealing with issues of marriage, divorce, inheritance, and child custody.  For non-Muslims, courts apply Sunni sharia in matters of personal status and family law.  Expatriates of non-Abrahamic religions are also subject to sharia if family matters are taken to court.  According to the law, sharia governs inheritance for all residents regardless of their religious affiliation if the case is brought to court.

The law forbids and does not recognize marriage between Muslim women and non-Muslim men, but Muslim men may marry women of other Abrahamic faiths.  The law requires the raising of children of such marriages in their father’s faith, and the father’s religion governs the settlement of marital disputes.  Muslim marriage cases are heard in Sunni or Shia religious courts, depending on whether the marriage certificate is Sunni or Shia.  A Shia notary must authenticate a Shia marriage certificate.  Non-Muslim divorce and child custody cases are heard in Sunni religious courts.  Christian couples who are part of a registered church may marry and divorce as per their religious customs, and local authorities and courts recognize their religious documents.  Except for Hindus and Sikhs of Indian nationality, who may marry at the Embassy of India, members of non-Abrahamic faiths and nonregistered churches may not marry in the country, but may have their foreign wedding certificates recognized.  Citizens of the Baha’i Faith may marry abroad and petition the court to recognize their marriage.

Courts may follow Shia jurisprudence in matters of personal status and family law for Shia at the first instance and appellate levels.  If the case proceeds beyond the appellate level to the Court of Cassation, the case is adjudicated via Sunni personal status law.  An independent Shia waqf (trust) administers Shia religious endowments.  Cases are assigned to either Sunni or Shia judges based on the religious affiliation of the man.  If a man is married to a non-Muslim woman, the husband’s religious practice is followed.  If a couple is from one of the registered churches, the settlement offered by the church may be taken into consideration; however, if the dispute is not settled, Sunni sharia is applied.

If a religious group wishes to purchase land, a citizen must be the primary buyer, and must submit a request for approval to the local municipal council, which allocates land at its discretion.  Citizens may also rent or donate land to religious groups.

The law prohibits the naturalization of non-Muslims but allows male citizens of any religion to transmit citizenship to their descendants.  Female citizens, regardless of religion, are unable to transmit nationality to their offspring.

An individual’s religion is not included on passports or national identity documents, with the exception of birth and marriage certificates, on which it is mandatory.  On birth certificates issued to Muslims, there is no distinction between Sunni and Shia.  Members of non-Abrahamic faiths are not able to list their religion on their birth certificate and a dash (-) is denoted in place of their religion.

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

Government Practices

Media reported that in January the Criminal Court sentenced Fouad Al-Rifai, a self-proclaimed preacher and owner of the NGO “Wathakker Centre,” to eight years in prison with labor for posting a video inciting violence against Shia citizens and for contempt of Shia Islam through Twitter posts that contained abusive phrases against Shia Islam.  Media reported subsequently that the government ordered his center, which was registered under the Ministry of Commerce, be closed for one year.

The government pursued several cases against individuals for allegedly insulting Shia doctrine.  In March the Court of Appeals overturned the acquittal verdict of Salafist cleric Othman Al-Khamees on a case dating back to 2015 related to charges of violating the national unity law, insulting Shia Islam by calling it “deviant doctrine,” and stirring up sectarianism through YouTube posts.  The court also fined him 20,000 dinars ($66,000).  In September the Court of Cassation fined MP Mohammed Hayf 2,000 dinars ($6,600) for insulting Shia MP Saleh Ashour and defaming Shia Islam via Twitter posts in which he described Ashour as representing the “Takfiri school of Shia doctrine” (meaning Hayf accused Ashour of being a Shia extremist who called other Muslims non-believers).

According to press reports, in June the Court of Appeals reduced by four months the sentence of journalist and secular activist Abdul Aziz Abdullah al-Qenaei.  In 2017, a court of misdemeanors had convicted al-Qenaei in a blasphemy case for “contempt of Islam” and “slander of sharia” for comments he made on a program aired by the Qatar-based television channel Al-Jazeera.  During the program, he stated freedom did not exist in Islam and that sharia involved “criminal acts” and promoted extremism and terrorism.  Many individuals reacted to his comments by posting on social media that those who insulted Islam and sharia in this way were “atheists.”  He was originally sentenced to six months imprisonment with labor, but his sentence was suspended pending the appeal process.

Although the law does not prohibit apostasy, the government continued its policy of not issuing new official documents for recording a change in religion unless the conversion was from another religion to Islam.  As in previous years, some religious leaders from non-Muslim religious groups said they had not heard of any case of a Muslim desiring to change religion, while others said they would not convert a Muslim in Kuwait.  All religious leaders, regardless of faith, continued to state that their sole mission was to take care of their existing community.  A few leaders refused to speak about conversion.

Media sources reported MAIA continued to caution imams to ensure their sermons were consistent with MAIA guidelines to refrain from discussing political issues and insulting other religions in their sermons or at any other time while in the country.

In accordance with MAIA policy, the government continued to vet and appoint all new Sunni imams.  Media sources quoted senior MAIA officials as saying the government vetted every Sunni imam to ensure compliance with the government’s view of moderate and tolerant religious preaching.  The Shia community continued to select its own clerics without government oversight.

The government continued to provide the full basic text for weekly sermons preached at Sunni mosques and to monitor these sermons.  Sunni imams could add content to the sermons but needed to ensure the text adhered to the laws on political speech and avoided stoking sectarianism.  MAIA required Sunni imams to send a recorded audio of their sermons to MAIA for review.  MAIA also relied on reports of worshipers and others who might be unsatisfied if the imam discussed politics or insulted other faiths.  Shia sources and government authorities said the government did not officially monitor Shia clerics, who were free to write their own sermons as long as they did not violate existing laws or instigate sectarianism.  If a questionable video appeared on social media or a worshipper reported a cleric, the government investigated.  Some sources, however, believed the government unofficially monitored Shia clerics.  According to officials at MAIA and members of the Shia community, MAIA did not monitor sermons or other activities at the husseiniyas (Shia halls for religious commemorations) or at private gatherings.

During the year, MAIA organized several courses for Sunni imams to make their messages more effectively promote tolerance and counter radicalization.  MAIA also established an annual award for imams for “creativity and excellence in countering radicalization.”

In January MAIA announced it would increase efforts to promote national unity and strengthen religious tolerance and promote moderate interpretations of Islam.  MAIA did not announce any specific results by year’s end.

Media reported that in December MAIA suspended Sheikh Fahad al-Kandari, who was preaching at the Hisham ibn Amer Mosque in Kuwait City, for “publicly exaggerating the praise of the Prophet and asking Allah to shower mercy and forgiveness on Amina bint Wahab, the mother of the Prophet,” who had died before Islam.  According to media reports, al-Kandari said MAIA suspended him without first questioning him and he would file a grievance and a lawsuit.

The government funded Sunni religious institutions, including mosques, and paid the salaries of all Sunni imams.  The Shia community generally did not receive funding from the state for religious institutions and mosques.  The government paid the salaries of some Shia imams; some Shia mosques requested government assistance and received funds to pay for salaries and maintenance of their facilities.

According to the government, during the year MAIA investigated nine imams it considered to have made provocative statements that violated laws against harming national unity or insulting other religious groups.  MAIA warned four imams, reprimanded two, and suspended two permanently.  One imam’s case remained under investigation at year’s end.

In May the Court of Cassation fined a blogger 10,000 dinars ($33,000) for violating the national unity law, showing contempt for Shia Islam, and inciting hatred and sectarianism.

According to representatives of The Church of Jesus Christ of Latter-day Saints, in December the Church submitted an application to be officially registered with MAIA.

Representatives of registered churches continued to state the government was generally tolerant and respectful of their faiths.  Members of non-Abrahamic faiths and nonregistered churches continued to state they remained free to practice their religion in private but faced harassment and potential prosecution if they disturbed their neighbors or violated laws regarding assembly and proselytizing.  They also continued to say they avoided conflict with authorities by not proselytizing or disparaging the government or other faiths.  Many of these groups said they did not publicly advertise religious events or gatherings to avoid bringing unwanted attention to their organizations both from the public and from government authorities.

Members of non-Abrahamic faiths and nonregistered churches continued to say they experienced hardships in commemorating major life events.  Almost uniformly across these communities, members said they lacked sufficient religious facilities and religious leaders or clerics to lead prayers, bless births and marriages, and conduct appropriate death rituals.

In many cases, members of these religious groups stated they resolved conflict internally within their communities rather than take legal action in the courts where they would be subject to sharia.

The government continued to require religious groups to obtain licenses from their respective municipalities for commemorations.  Municipal governments retained the right to withdraw the license of any husseiniya not complying with the municipality’s rules.  Minority religious communities continued to state they tried to keep a low profile and did not request permission for public celebrations from authorities, which they presumed would be rejected if they applied for it.

The MOI provided security and protection for licensed places of worship.  Religious leaders of Abrahamic faiths continued to report that the government, citing security concerns, kept in place the ban on outdoor religious observances, instituted following an ISIS bombing of a Shia mosque in 2015 that killed 27 persons.  The government continued to require the Shia community to conduct Ashura activities inside closed structures rather than at outdoor locations.  The government did not permit public reenactments of the martyrdom of Hussein or public marches in commemoration of Ashura.  The government continued to station security forces outside some Sunni mosques and all Shia and Christian religious venues during times of worship throughout the year as a deterrent to possible attacks.  The government also continued to provide security to Shia neighborhoods during Muharram and Ashura.  Members of the various faiths said they were grateful for the added security.

Authorities continued the government’s long-standing practice of prohibiting churches from displaying exterior signs, such as a cross or the congregation’s name.

No public shops could legally import, display, or sell non-Islamic religious literature.  Church leaders continued to report the government permitted registered Christian churches to import religious materials for use by their congregations under the condition that none of the content insulted Islam.  Registered churches reported they were able to import religious materials in any language.  Members of non-Abrahamic faiths and nonregistered churches continued to state they could import religious materials for their congregations as long as they brought in the materials as personal items when entering the country and did not try to sell them in public stores.  Minority religious communities said they continued to be selective in the religious materials they imported and even more selective in giving access to the materials.  They said they did not allow the circulation of these materials outside their congregations.

The Ministry of Foreign Affairs and the municipality of Kuwait handled building permits and land issues for non-Abrahamic faiths and nonregistered churches.  The government continued to prohibit non-Abrahamic religions and nonregistered churches from having public places of worship.  The government said it received no applications for construction of new churches from religious groups during the year.

Some religious groups without a licensed place of worship stated they could conduct worship services without government interference provided they did not disturb their neighbors or violate laws regarding assembly and proselytizing.  The government continued to allow such groups to operate in rented villas, private homes, or the facilities of registered churches.

Shia community members reported a continued lack of facilities for worship and difficulties obtaining permission to construct new facilities, caused by the government’s delay in approving repairs to existing mosques or constructing new ones.  MAIA reported there were 1,601 mosques in the country, including 40 mosques opened during the year.  According to the government, of the 1,601 mosques, 51 were Shia, with five new Shia mosques receiving permission to be built during the year.  There were also 20-30 husseiniyas registered with MOI and thousands of smaller Shia gatherings that took place in private homes.

Citing security concerns, authorities stated they continued to take action against unlicensed mosques.  The government tasked MAIA, MOI, the municipality of Kuwait, and other agencies with finding solutions to end the use of illegal mosques.  During the year, the government continued to raid makeshift mosques in remote areas and close them for operating without proper licenses.  MAIA also received a mandate from the Council of Ministers to demolish 115 unregistered mosques, stating that some of those mosques served as platforms of extremism.  The demolition of these mosques began during the year.  Authorities said new unlicensed mosques continued to open, however.

The Ministry of Education continued to ban or censor instructional materials, including fiction and nonfiction books and textbooks, referring to the Holocaust or Israel.  The ministry permitted public schools to teach and celebrate only Islamic holidays.  Members of non-Islamic faiths largely said the government did not interfere with religious instruction inside private homes and on church compounds.

According to church leaders, although most churches provided faith-based instruction for children, none of them had government-accredited church-based schools.  Accreditation for church-based schools would enable students to receive religious education while fulfilling government requirements and allow school graduates to move on to higher education.  The NECK repeatedly requested accreditation for its church-based school for many years, most recently in 2017, but authorities had not responded by year’s end.  The Armenian Church and the Bohra Muslim community operated accredited community schools in lieu of seeking accreditation as religious schools.  Other groups continued to report they conducted religious studies in their places of worship.

The government continued its practice of not responding to requests to establish Shia religious training institutions.  Shia Muslims had to seek religious training and education abroad.  The College of Islamic Law at Kuwait University, the country’s only imam training institution, provided some Shia jurisprudence courses but did not permit Shia professors on its faculty.

Shia leaders continued to report that the lack of Shia imams limited their ability to staff Shia courts, causing a backlog of personal status and family cases.  To address the backlog and shortage of staff, an ad hoc council the government created many years ago under the regular marital issues court to apply Shia jurisprudence continued to function.  Shia leaders said the establishment of a Shia Court of Cassation, approved in 2003, remained delayed because the government had not approved the establishment of Shia religious training institutions.

According to press reports, in July two parliamentarians submitted a request to the prime minister to have the MOJ stop enforcing a 1966 ministry decision that prohibits registration of local marriages between persons of the Baha’i Faith.  The prime minister referred the request to the MOJ for action.  The issue remained pending at year’s end.

Even though Shia make up an estimated 30 percent of the population, they remained underrepresented at all levels of government:  six of 50 members in parliament, one of 16 cabinet members, one of six Amiri Diwan advisors, and disproportionately few senior officers in the military and police force.  Shia community leaders continued to say there was a “glass ceiling” in promotions and difficulties in obtaining government jobs.

Some Shia leaders said discrimination continued to prevent Shia from obtaining training for clerical positions and leadership positions in public sector organizations, including the police force and the military/security apparatus.  In July MP Saleh Ashour commented on Twitter that the new group of public prosecutor recruits included 94 Sunnis and just three Shia.  He added that there was only one Shia graduate student among the top 10 highest achievers at Kuwait University’s law school and he was excluded from the 2018 public prosecution recruiting class.  Some Shia leaders said authorities made decisions about employment in a nontransparent manner and did not treat Shia fairly or give them equal opportunities.

MOSA issued visas for clergy and other staff to work at licensed places of worship.  The government continued to impose quotas on the number of clergy and staff of licensed religious groups entering the country but granted additional slots upon request.  The government continued to require foreign leaders of unregistered religious groups to enter the country as nonreligious workers.  Leaders of non-Abrahamic faiths continued to report their religious leaders could only lead their religious communities outside the regular hours of their nonreligious employment.

Media coverage included news on events and celebrations held by various Christian denominations in the country such as Christmas Mass celebrations and church inauguration anniversaries attended by high-level government officials.  On January 7, Deputy State Minister for Amiri Diwan Affairs Sheikh Ali al-Jarrah and other public officials attended the Egyptian Coptic Church’s Christmas Mass in Hawally.  On November 16, representatives of the emir attended the 70th anniversary of the inauguration of St. Paul’s Church in Ahmadi.

The U.S. government estimates the total population at 4.6 million (July 2018 estimate).  Citizens constitute 55 percent of the population.  The government did not publish statistics on the percentages of Omani citizens who practice Ibadhi, Sunni, and Shia forms of Islam.  Estimates from academic and religious community sources of the percentage of citizens who are Ibadhi Muslims (Ibadhi Islam is the historically dominant religious group in the country and distinct from Shia and Sunni Islam) range between 45 percent, according to many sources, and 75 percent, according to government estimates.  Academic sources estimate Shia Muslims comprise 5 percent of citizens and live mainly in the capital area and along the northern coast, while another 5 percent are Hindus and Christians, mainly extended families of naturalized citizens of South Asian origin.  According to academic sources, the remainder of the citizen population is Sunni Muslim.

Academic sources state the majority of non-Muslims are foreign workers from South Asia.  Noncitizen religious groups include Hindus, Muslims, Buddhists, Sikhs, Baha’is, and Christians.  Christians are centered in the major urban areas of Muscat, Sohar, and Salalah and include Roman Catholics, Eastern Orthodox, members of the Church of Jesus Christ, and Protestants.

Legal Framework

The Basic Law declares Islam to be the state religion and declares that sharia is the basis for legislation.  It protects the right of individuals to practice other religions as long as doing so does not “disrupt public order or contradict morals.”  The Basic Law prohibits discrimination based on religion.  According to the Basic Law, the sultan must be a Muslim.

There is no provision of the law specifically addressing apostasy, conversion, or renunciation of religious belief.

In January the government passed a new penal code, which increases the maximum prison sentence for “insulting the Quran” and “offending Islam or any [Abrahamic] religion” from three to 10 years.  The law also penalizes anyone who, without obtaining prior permission, “forms, funds, [or] organizes a group…with the aim of undermining Islam…or advocating other religions” with up to seven years’ imprisonment.  “Holding a meeting” outside government-approved locations to promote another religion is also criminalized with a maximum sentence of three years’ imprisonment.  Under the new code, Abrahamic religions are protected from blasphemy, but the new code does not mention non-Abrahamic faiths in this context.  Using the internet in a way that “might prejudice public order or religious values” is also a crime, with a penalty of between one month and one year in prison and a fine of not less than 1,000 Omani rials ($2,600).

All religious organizations must register with the government.  The law does not specify rules, regulations, or criteria for gaining ministerial approval.  Groups seeking registration must request meeting and worship space from one of the sponsor organizations recognized by the MERA.  New non-Muslim religious groups unaffiliated with a previously recognized sponsor must gain approval from the MERA before they can register.  Muslim groups must register, but the government – as benefactor of the country’s mosques – serves as their sponsor.  For non-Muslim groups, the ministry recognizes the Protestant Church of Oman (a partnership between the Reformed Church of America and the Anglican Church), Catholic Church in Oman, Al-Amana Center (an interdenominational organization affiliated with the Reformed Church of America that promotes Muslim-Christian understanding), Hindu Mahajan Temple, and Anwar Al-Ghubaira Trading Company in Muscat (Sikh) as official sponsors.  The sponsors are responsible for recording and submitting to the ministry the group’s religious beliefs and the names of its leaders.  The MERA must also grant its approval for new Muslim groups to form.

All individuals who deliver sermons in recognized religious groups must register with the MERA.  The licensing process for imams prohibits unlicensed lay members from preaching sermons in mosques, and licensed imams must follow government-approved sermons.  Lay members of non-Muslim groups may lead prayers if they are specified as leaders in their group’s registration application.

The law restricts collective worship by non-Muslim groups to houses of worship on land specifically donated by the sultan for the purpose of collective worship.

The law prohibits public proselytizing by all religious groups, although the government authorizes certain “Islamic propagation centers.”

The law states the government must approve construction and/or leasing of buildings by religious groups.  In addition, new mosques must be built at least one kilometer (0.6 miles) from existing mosques.

Islamic studies are mandatory for Muslim students in public schools from kindergarten through 12th grade.  Non-Muslim students are exempt from this requirement if they notify school administrators they do not wish to attend such instruction.  The classes take a historical perspective on the evolution of Islamic religious thinking, and teachers are prohibited from proselytizing or favoring one Islamic group over another.  Many private schools provide alternative religious studies courses.

Civil courts adjudicate cases according to the nonsectarian civil code.  The law states Shia Muslims may resolve family and personal status cases according to Shia jurisprudence outside the courts, and they retain the right to transfer their cases to civil courts if they cannot find a resolution within the Shia religious tradition.  The law allows non-Muslims to seek adjudication of matters pertaining to family or personal status under the religious laws of their faith or under civil law.

Citizens may sue the government for violations of their right to practice religious rites that do not disrupt public order; there have been no known cases of anyone pursuing this course in court.

Birth certificates issued by the government record an individual’s religion.  Other official identity documents do not do so.

Foreigners on tourist visas who are not clergy may not preach, teach, or lead worship.  Visa regulations permit foreign clergy to enter the country to teach or lead worship under the sponsorship of registered religious groups, which must apply to the MERA for approval before the visiting clergy member’s entry.

The country is not a party to the International Covenant on Civil and Political Rights.

Hasan Al-Basham, a former diplomat who had been sentenced to three years’ imprisonment in 2016 for what NGOs based outside the country reported were charges of “using the internet in what might be prejudicial to religious values” in his comments on social media, died in prison in April.  NGOs based outside the country had previously reported he had won an appeal on medical grounds to commute his sentence, but, according to the NGOs, in November 2017, a court reinstated the original verdict and authorities took Al-Basham back into custody.  The semigovernmental Oman Human Rights Commission, which followed the case closely, stated he lost his appeal and was subsequently imprisoned in accordance with the law.

According to international human rights advocacy organizations, on June 13, in connection with Sultan Qaboos bin Said’s Eid al-Fitr amnesty, authorities released writer and online activist Abdullah Habib.  He had served three months of a six-month sentence for violating the Information Technology Crimes Act by “using internet technology … to prejudice public order or religious values” and the penal code for “insulting an Abrahamic religion.”  In April the Muscat Appeals Court suspended the remaining two and one-half years of his sentence but prohibited him from traveling outside the country during that time.  According to the media advocacy group PEN America, during his imprisonment, authorities denied Habib regular access to his medication.

According to religious leaders, the MERA continued to monitor sermons at mosques to ensure imams did not discuss political topics.  Imams were required to preach sermons within politically and socially acceptable parameters, which the government distributed monthly, with outlines of acceptable topics along with standardized and approved Friday sermons for Ibadhi and Sunni imams.  Mosques under the purview of the Diwan (Royal Court), such as the Grand Mosque in Muscat, were not subject to this monitoring.  The government-appointed grand mufti, the senior Ibadhi cleric in the country, remained the only imam able to speak publicly outside of the designated government parameters.

Religious groups continued to report issues with opaque processes and unclear guidelines for registration.  While no published rules, regulations, or criteria existed for new religious groups to receive ministerial approval, the MERA reportedly considered a group’s size, theology, belief system, and availability of other worship opportunities before granting registration, and reportedly employed the same criteria whether the group was Muslim or non-Muslim.  Observers said the precise process remained vague, although there were reports the MERA consulted with existing religious communities before ruling on the application of a new religious group.  According to the MERA, there was no limit on the number of religious groups it could register.

The Church of Jesus Christ remained without a registration sponsor or a permanent place of worship, but church leaders said the government was working with the group to reach a solution.  Other religious minority groups reported they did not have permanent independent places of worship as recognized groups, despite representing a significant population in Oman, primarily of expatriate workers.

Non-Muslims who worshipped in private homes continued to say the government did not interfere with Christian, Buddhist, Hindu, and other religious groups in their regular private worship services despite continuing legal prohibitions on worship outside of government-approved locations.  Non-Muslim minority groups continued to report overcrowding at their places of worship.  According to some religious leaders, space limitations also caused overcrowding at some private homes used for non-Islamic worship.

The MERA approved major religious celebrations for non-Muslim groups in commercial or public areas on a case-by-case basis.  For example, several Hindu groups held large religious celebrations in indoor and outdoor venues throughout the country.  According to the media, in May during Ramadan, the MERA organized an event entitled “The Quran speaks to you” to inform non-Muslims about Islam.

Religious groups said that, consistent with the government’s censorship policy mandating prior review of any published material, religious groups continued to need MERA approval to publish texts in the country or disseminate religious publications outside their membership.  Religious groups did not attempt, however, to share material with members of the public outside their places of worship.  The government also continued to require religious groups to notify the MERA before importing religious materials and to submit a copy to the MERA.  Religious minority leaders said that in practice the ministry did not review all imported religious material for approval and that non-Muslims were often able to import literature without government scrutiny.

The government provided land for all religious sites in the country.

Although the Basic Law states sharia is the basis for legislation, in practice the civil code continued to have precedence over sharia, consistent with the replacement of sharia courts by civil courts in 1999 with passage of the Judicial Authority Law.  Under this law, judicial outcomes reached under sharia jurisprudence could not contradict civil statutes.

The government continued to fund the salaries of some Ibadhi and Sunni imams, but Shia or non-Muslim religious leaders were privately funded.

There is no law stating religious affiliation is tied to custody, but according to legal contacts, judges often considered the religiosity of a Muslim parent during custody hearings.

The government, through the MERA, continued to publish Al-Tafahum (Understanding), an annual periodical whose purpose, according to the government, was to broaden dialogue within Islam and promote respectful discussion with other faiths.

According to religious minority leaders, the Royal Oman Police collected religious affiliation information from expatriates applying for work visas.

Government Practices

Hasan Al-Basham, a former diplomat who had been sentenced to three years’ imprisonment in 2016 for what NGOs based outside the country reported were charges of “using the internet in what might be prejudicial to religious values” in his comments on social media, died in prison in April.  NGOs based outside the country had previously reported he had won an appeal on medical grounds to commute his sentence, but, according to the NGOs, in November 2017, a court reinstated the original verdict and authorities took Al-Basham back into custody.  The semigovernmental Oman Human Rights Commission, which followed the case closely, stated he lost his appeal and was subsequently imprisoned in accordance with the law.

According to international human rights advocacy organizations, on June 13, in connection with Sultan Qaboos bin Said’s Eid al-Fitr amnesty, authorities released writer and online activist Abdullah Habib.  He had served three months of a six-month sentence for violating the Information Technology Crimes Act by “using internet technology … to prejudice public order or religious values” and the penal code for “insulting an Abrahamic religion.”  In April the Muscat Appeals Court suspended the remaining two and one-half years of his sentence but prohibited him from traveling outside the country during that time.  According to the media advocacy group PEN America, during his imprisonment, authorities denied Habib regular access to his medication.

According to religious leaders, the MERA continued to monitor sermons at mosques to ensure imams did not discuss political topics.  Imams were required to preach sermons within politically and socially acceptable parameters, which the government distributed monthly, with outlines of acceptable topics along with standardized and approved Friday sermons for Ibadhi and Sunni imams.  Mosques under the purview of the Diwan (Royal Court), such as the Grand Mosque in Muscat, were not subject to this monitoring.  The government-appointed grand mufti, the senior Ibadhi cleric in the country, remained the only imam able to speak publicly outside of the designated government parameters.

Religious groups continued to report issues with opaque processes and unclear guidelines for registration.  While no published rules, regulations, or criteria existed for new religious groups to receive ministerial approval, the MERA reportedly considered a group’s size, theology, belief system, and availability of other worship opportunities before granting registration, and reportedly employed the same criteria whether the group was Muslim or non-Muslim.  Observers said the precise process remained vague, although there were reports the MERA consulted with existing religious communities before ruling on the application of a new religious group.  According to the MERA, there was no limit on the number of religious groups it could register.

The Church of Jesus Christ remained without a registration sponsor or a permanent place of worship, but church leaders said the government was working with the group to reach a solution.  Other religious minority groups reported they did not have permanent independent places of worship as recognized groups, despite representing a significant population in Oman, primarily of expatriate workers.

Non-Muslims who worshipped in private homes continued to say the government did not interfere with Christian, Buddhist, Hindu, and other religious groups in their regular private worship services despite continuing legal prohibitions on worship outside of government-approved locations.  Non-Muslim minority groups continued to report overcrowding at their places of worship.  According to some religious leaders, space limitations also caused overcrowding at some private homes used for non-Islamic worship.

The MERA approved major religious celebrations for non-Muslim groups in commercial or public areas on a case-by-case basis.  For example, several Hindu groups held large religious celebrations in indoor and outdoor venues throughout the country.  According to the media, in May during Ramadan, the MERA organized an event entitled “The Quran speaks to you” to inform non-Muslims about Islam.

Religious groups said that, consistent with the government’s censorship policy mandating prior review of any published material, religious groups continued to need MERA approval to publish texts in the country or disseminate religious publications outside their membership.  Religious groups did not attempt, however, to share material with members of the public outside their places of worship.  The government also continued to require religious groups to notify the MERA before importing religious materials and to submit a copy to the MERA.  Religious minority leaders said that in practice the ministry did not review all imported religious material for approval and that non-Muslims were often able to import literature without government scrutiny.

The government provided land for all religious sites in the country.

Although the Basic Law states sharia is the basis for legislation, in practice the civil code continued to have precedence over sharia, consistent with the replacement of sharia courts by civil courts in 1999 with passage of the Judicial Authority Law.  Under this law, judicial outcomes reached under sharia jurisprudence could not contradict civil statutes.

The government continued to fund the salaries of some Ibadhi and Sunni imams, but Shia or non-Muslim religious leaders were privately funded.

There is no law stating religious affiliation is tied to custody, but according to legal contacts, judges often considered the religiosity of a Muslim parent during custody hearings.

The government, through the MERA, continued to publish Al-Tafahum (Understanding), an annual periodical whose purpose, according to the government, was to broaden dialogue within Islam and promote respectful discussion with other faiths.

According to religious minority leaders, the Royal Oman Police collected religious affiliation information from expatriates applying for work visas.

The U.S. government estimates the total population as 2.4 million (July 2018 estimate).  Citizens make up approximately 12 percent of the population, while noncitizens account for approximately 88 percent.  Most citizens are Sunni Muslims, and almost all of the remaining citizens are Shia Muslims.  Reliable figures are unavailable, but estimates based solely on the religious composition of expatriate source countries suggest Muslims, while they are the largest religious group, likely make up less than half of the total population.  .  The breakdown of the noncitizen population between Sunni, Shia, and other Muslim groups is not available.

Other religious groups in descending order of size include Hindus, almost exclusively from India and Nepal; Roman Catholics, primarily from the Philippines, Europe, and India; and Buddhists, largely from South, Southeast, and East Asia.  Smaller groups include Anglicans and Protestant denominations, Egyptian Copts, Baha’is, and Greek and other Eastern Orthodox.

Legal Framework

The constitution declares Islam to be the state religion and states sharia shall be “a main source” of legislation.  The constitution guarantees the “freedom to practice religious rites” to all persons “in accordance with the law and the requirements of the maintenance of public order and morality.”  It prohibits discrimination on the basis of religion.  According to the constitution, the emir must be Muslim.

Conversion to another religion from Islam is defined by the law as apostasy and illegal, although there have been no recorded punishments for apostasy since the country’s independence in 1971.

The law provides for a prison sentence of up to seven years for defaming, desecrating, or committing blasphemy against Islam, Christianity, or Judaism.  The law stipulates a seven-year prison term for producing or circulating material containing slogans, images, or symbols defaming these three religions.  The law also prohibits publication of texts provoking social discord or religious strife, with punishment if convicted of up to six months in prison.

To obtain an official presence in the country, non-Muslim religious groups must apply to register with the MFA.  The only registered religious groups are Sunni and Shia Muslims and eight Christian denominations.  Protestant denominations other than the registered eight denominations, including nondenominational house churches, may be registered with the government with the support of the CCSC – an umbrella organization consisting of representatives of the eight already registered denominations.  The eight registered Christian denominations are the Roman Catholic, Anglican, Greek Orthodox, Syrian Orthodox, Coptic, Maronite, evangelical Protestant, and the Inter-Denominational Christian Churches.  In practice, nearly all of the remaining denominations are registered under the aegis of the Anglican Church.

Non-Christian groups must apply for registration through the MFA.  Registered groups may hold bank accounts in the organization’s name, apply for property to build worship space (or have already built structures such as private villas recognized as worship spaces to avoid problems with authorities), import religious texts, and publish religious newsletters or flyers for internal distribution, whereas unregistered entities are unable to open accounts, solicit funds, worship in private spaces legally, acquire religious texts from outside the country, publish religious-themed newsletters or pamphlets, or legally hire staff.

According to the law, unregistered religious groups (i.e., those not registered or under the patronage of one of the registered groups) that engage in worship activities are illegal, and members of those groups are subject to deportation.

The law restricts public worship for non-Islamic faiths.  It prohibits non-Muslim religious groups from displaying religious symbols, which includes banning Christian congregations from advertising religious services or placing crosses outdoors where they are visible to the public.  The law criminalizes proselytizing on behalf of an organization, society, or foundation of any religion other than Islam and provides for punishment of up to 10 years in prison.  Proselytizing on one’s own accord for any religion other than Islam can result in a sentence of up to five years’ imprisonment.  The law calls for two years’ imprisonment and a fine of 10,000 riyals ($2,700) for possession of written or recorded materials or items that support or promote missionary activity.  The law allows importation of religious holy books, such as Bibles.

The government regulates the publication, importation, and distribution of all religious books and materials.  The government reviews, censors, or bans foreign newspapers, magazines, films, and books for objectionable sexual, religious, and political content.  Religious groups may publish newsletters without government censorship but may only distribute them internally within their respective communities.  To import religious materials, groups must submit one copy to the Ministry of Culture and Sports and receive written approval before making large orders or risk having the entire shipment confiscated.

The only religions registered to have their own places of worship are Islam and Christianity.  All mosques and Islamic institutions in the country must be registered with the MEIA.  The law designates the MEIA minister as the final authority for approving Islamic religious centers.  The MFA approves non-Islamic houses of worship in coordination with the private office of the emir.

While a non-Muslim woman is not required by law to convert to Islam when marrying a Muslim, the law considers offspring of such a marriage to be Muslim.  A non-Muslim man marrying a Muslim woman must convert to Islam.

Islamic instruction is compulsory for Muslim and non-Muslim students attending state-sponsored schools.  Non-Muslims may provide private religious instruction for their children at home or in their faith services.  All children may attend secular and coeducational private schools.  These schools must offer optional Islamic instruction; non-Islamic religious education is prohibited.

A unified civil court system, incorporating sharia and secular law, has jurisdiction over both Muslims and non-Muslims.  The unified court system applies sharia in family law cases, including those related to inheritance, marriage, divorce, and child custody.  For Shia Muslims, a judicial panel decides cases regarding marriage, divorce, inheritance, and other family matters utilizing Shia interpretations of religious law.  In other religious matters, the country’s family law applies across all branches of Islam.  Non-Muslims are subject to sharia in cases of child custody, but civil law covers other personal status cases, including those related to divorce and inheritance.

Criminal law is based on the principles of sharia.  The type of crime determines whether those convicted receive a sharia-based sentence.  There are certain criminal charges, such as alcohol consumption and extramarital sex, for which Muslims are punished according to sharia principles, including court-ordered flogging.  Sharia-based punishments may also apply to non-Muslims in these cases.  The government often commutes harsher punishments mandated by sharia.  Muslim convicts may earn a sentence reduction of a few months by memorizing the Quran while imprisoned.  Secular law covers dispute resolution for financial service companies.  The law approves implementing the Shia interpretation of sharia upon the agreement and request of the parties involved in the dispute.

The government submitted documents to the United Nations on May 21, following cabinet approval on March 14, to accede to the ICCPR, with a formal statement in its treaty accession document that the government shall interpret Article 18, paragraph 2, of the ICCPR (“No one shall be subject to coercion which would impair his freedom to have or to adopt a religion or belief of his choice”) “based on the understanding that it does not contravene the Islamic Sharia” and that the government would reserve the right to implement paragraph 2 in accordance with its understanding of sharia.  The government also formally stated in its accession document that it would interpret several other provisions of the ICCPR in line with sharia, including Article 27 (regarding the rights of minorities “to profess and practice their own religion”).  The government made a formal reservation against being bound by gender equality provisions in Article 3 and Article 23.4 regarding family law and inheritance.

Government Practices

The government continued to state it would consider requests from nonregistered religious groups to acquire a place of worship if they applied to register but, as in previous years, said none had done so.  The government continued to permit adherents of unregistered religious groups, such as Hinduism, Buddhism, and the Baha’i Faith, and unregistered small Christian congregations, to worship privately in rented villas, their homes, workplaces, and with others, although they lacked authorized facilities in which to practice their faiths.

The Office of the Secretary General of the MFA was responsible for handling church affairs, replacing the Department of Consular Affairs within the MFA.  It worked in coordination with the director of the Human Rights Department within the MFA.  This new leadership worked to engage with Christian leaders and reported direct contact and dialogue with the CCSC to develop channels of communication for addressing concerns such as the impact of security restrictions.  In August the assistant office director for services affairs of the Office of the Secretary General met with church leaders at the Mesaymeer Religious Complex also known as “Church City” and located on government-owned land, to discuss challenges faced by the Christian community.  In October the head of the MFA’s Human Rights Department led a delegation of the National Committee for Human Rights in an official visit to the complex.  Church leaders stated both visits were positive, being the first of their kind by high-ranking officials.

The MEIA reported it continued to hire clerics and assign them to specific mosques.  The ministry continued to provide on an ad hoc basis thematic guidance for Friday sermons, focusing mainly on Islamic rituals and social values, with clear restrictions from using the pulpits to express political views or attack other faiths.  The ministry reviewed content but did not require clerics to obtain prior approval of their sermons.  The government reserved the right to take judicial action against individuals who did not follow the guidance.

The MEIA continued to remind the public during Ramadan of its view of the correct way for Muslims to perform their religious duties.  The penal code stipulates that individuals seen eating or drinking during daylight hours are subject to a fine of 3,000 riyals ($820), three months’ imprisonment, or both.  There were no reports of arrests or fines during the year for violation of this stipulation of the code.  All restaurants not located in hotels were required to close in daylight hours during Ramadan.

The government discouraged citizens and residents from taking part in the Umrah or Hajj due to the ongoing dispute with Saudi Arabia that started in mid-2017.  Officials at the MEIA stated the decision was made because of concerns for pilgrims’ security, due to the lack of diplomatic representation or coordination with Saudi religious and security authorities.

In its report on the government’s accession to the ICCPR, Human Rights Watch stated that the government rejected the ICCPR’s gender equality provisions in marriage, divorce, child custody, and inheritance on grounds that they contravened sharia.  The government also declared it would interpret several provisions of the ICCPR in line with sharia, including those defining cruel, inhuman, or degrading punishment; bans on capital and corporal punishment; minimum marriage ages; and freedom of religion.

Although the law prohibited Christian groups from advertising religious services, Christian churches continued to post hours of services and other information on publicly accessible websites; however, they were not permitted to publish such information in local newspapers or on public bulletin boards.

The government maintained its policy of reviewing, censoring, or banning newspapers, magazines, books, and social media for “objectionable” religious content, such as an attack on Islamic values or depictions of the Prophet Muhammad.  More commonly, journalists and publishers reportedly practiced self-censorship regarding material the government might consider contrary to Islam.

In April the ADL reported that in the past year the “government has actually continued to use its prominent platforms to promote strident anti-Semitic preachers…”  The ADL cited imams, including Abdullah al-Naama and Mohammed Hassan al-Muraikhi, who had delivered anti-Semitic sermons at the state-controlled Grand Mosque in Doha.  The minister of the MEIA stated that the ministry did not condone anti-Semitic language and would investigate the matter.  Earlier in the year, the Education City Mosque in Doha, which serves learning institutions on the Education City campus, including branches of several U.S. universities, hosted four Friday sermons by Shaqer al-Shahwani, whose sermons were promoted at government-controlled mosques.  Al-Shahwani had previously stated on Twitter that “the Jews” are “behind every immorality and vice” in the world.  In July the ADL reprinted an article that a member of its staff had written for the online blog, The Long War Journal, stating that al-Naama and al-Muraikhi continued to deliver regular Friday sermons at the Grand Mosque that demonized the Jewish people and told fellow Muslims that Jews and Christians were their natural enemies, according to sermon transcripts on the Grand Mosque’s website.  The report said state television awarded each imam with a series of Ramadan specials during the year.

According to the ADL, the government also demonstrated support during Ramadan for at least five other preachers with hateful messages through the MEIA, using its Twitter account to promote their lectures during the month at prominent locations, including the Grand Mosque, the mosque in Katara cultural village, and the Education City Mosque.  These preachers included Thabit al-Qahtani, who through his Twitter account called upon God to “destroy the Jews”; Mowafi Azab, who declared (on a government website for fatwas called IslamWeb) that “the Jews” used pornographic movies to “destroy the world and control it”; and Ahmed al-Farjabi, who issued rulings on that same website calling the Jewish people “our enemy.”

According to an August 10 article in The Hill newspaper, written by the CEO of the ADL and reprinted on the organization’s website, the government-owned al-Jazeera media network continued “to be a major exporter of hateful content against the Jewish people…”  The report cited a May 23 news story carried by the network that cast doubt on the Nazi genocide of Jews, referring to “the alleged Holocaust.”  In July al-Jazeera broadcast a speech by a Hamas official calling for “the cleansing of Palestine of the filth of the Jews” and called for the establishment of a caliphate “after the [Muslim] nation has been healed of its cancer, the Jews.”  A blog post published on the network’s website accused the Jewish people of “killing the Prophets” and asserted that the historical existence of a Jewish temple in Jerusalem was a fabrication.  A separate article on its Arabic news webpage decried the “control of the Jews over the pornography industry.”

The Mesaymeer Religious Complex continued to provide worship space for the eight registered Christian denominations, with clear government instructions that Christian symbols such as crosses, steeples, and statues, were not permitted on the exterior of church buildings.  The government allowed unregistered churches to worship there as well, but only under the patronage of one of the eight recognized denominations.  The Anglican Center within the Mesaymeer Religious Complex housed a number of other smaller denominations and offered space to 88 congregations of different denominations and languages.  In addition to the primary buildings, the churches were allowed to erect additional tent structures during Easter and Christmas outside of the primary complex to house surge volumes of congregants.

In April the Maronite Patriarch laid the foundation stone at the Mesaymeer Religious Complex for the Saint Charbel Maronite Church, which would be the first Maronite church in the Gulf region.  During the year, the Maronites continued to worship at the Roman Catholic Church building but intended to move to the new church once completed.  Land was designated and fund raising began for a new Ethiopian church.

The CCSC reported that Christian clergy were allowed to visit members of their congregations when they were hospitalized and have monthly trips to both male and female prisons to meet with incarcerated Christians.

The government continued to enforce strict security measures at the Mesaymeer Religious Complex, including closing parking lots, setting a curfew on church access, and using metal detectors.

The government prohibited the slaughter of animals outside of licensed facilities – a measure it said was intended to ensure hygienic conditions.  In practice, individuals were able to conduct ritual slaughter in private.

Church leaders and religious groups continued to state that individuals practiced self-censorship when expressing religious views online and relied mostly on word of mouth, church websites, social media platforms, and email newsletters to distribute information about religious groups’ activities.

Church leaders stated their ability to collect and distribute funds for charity continued to be limited by the government’s restrictions on the number and type of bank accounts churches could hold, as well as reporting requirements on donors and on contractors doing business with churches.  Some smaller unregistered churches continued to use the personal accounts of religious leaders for church activities.

Leaders of the Evangelical Church Alliance in Qatar (ECAQ) stated that the government, represented by the MOI, retained the possession of a plot of land after it had been allocated to the alliance, saying the plot of land would be used as a police station.  The government promised to provide ECAQ leaders with an alternative plot of land, but as of the end of the year, had not done so.  The ECAQ leaders stated the government’s decision caused the alliance to sustain financial damage because it had already laid a foundation for the building and paid contractors for the work.

The MOI allowed more than 100 house churches to operate throughout the country, including 90 that were allocated to members of the ECAQ.

In December the ADL criticized the government-sponsored Doha International Book Fair for including anti-Semitic books.  The book titles included Lies Spread by the Jews; Talmud of Secrets: Facts Exposing the Jewish Schemes to Control the World; The History of the Al-Aqsa Mosque, the History of the Corruption of the Jews, and the Demise of their Entity; Awakening to Jewish Influence in the United States of America by David Duke; The Al-Aqsa Mosque and the Purported Temple; and The Myth of the Nazi Gas Chambers.

On November 29, the government-funded al-Jazeera News Channel broadcast a conference held in Gaza marking the UN-declared International Day of Solidarity with the Palestinian People, during which a Palestinian youth recited a poem entitled “Rifle” that included references to Jewish people as “apes” and “pigs.”

The Ministry of Culture and Sports approved the staging of a major two-day Christian musical conference in Doha in November that was attended by 18,000 persons.

The government-funded DICID, which operated independently, hosted discussions on the freedom to worship within one’s home, and on how seminars and roundtable discussions on religious tolerance could be used to resolve intercommunal strife.  The center also hosted discussions on difficulties faced by non-Muslim groups.  In November the DICIC held its eighth interfaith roundtable, inviting Christian church leaders and Muslim scholars to the event.

In December the Lebanese Maronite Patriarch consecrated a church in Lebanon that was funded by a donation from the emir.  The country’s ambassador to Lebanon, attending the ceremony, stated the emir was a “fervent supporter” of Islamic-Christian dialogue.

The U.S. government estimates the country’s total population at 33 million (July 2018 estimate), including more than 12 million foreign residents.  Between 85 and 90 percent of the approximately 20 million citizens are Sunni Muslims.

Shia Muslims constitute 10 to 12 percent of the citizen population.  Approximately 80 percent of Shia are “Twelvers” (Shiites who recognize 12 imams) and are primarily located in the Eastern Province.  Nakhawala, or “Medina Shia,” are also Twelvers and reside in small numbers in the western Hejaz region.  Estimates place their numbers at approximately 1,000.  Twelver Shia adhere to the Ja’afari School of jurisprudence.  Most of the remaining Shia are Sulaimani Ismailis, also known as “Seveners” (those who branched off from the Twelvers to follow Isma’il ibn Ja’afar as the Seventh Imam).  Seveners number approximately 500,000 and reside primarily in Najran Province, where they constitute the majority of the province’s inhabitants.  Another branch of Sevener Shia, the Bohra Ismailis, number approximately 2,000, most of whom are of Yemeni or South Asian origin.  Pockets of Zaydis, members of another branch of Shia Islam, numbering a total of approximately 20,000, reside primarily in the provinces of Jizan and Najran along the border with Yemen.

Foreign embassies indicate the foreign population in the country, including many undocumented migrants, is mostly Muslim.  According to a 2010 survey by the Pew Research Center, of the country’s total population (including foreigners), there were approximately 25.5 million Muslims, 1.2 million Christians (including Eastern Orthodox, Protestants, and Roman Catholics); 310,000 Hindus; 180,000 religiously unaffiliated (including atheists, agnostics, and individuals who did not identify with any particular religion); 90,000 Buddhists; 70,000 followers of folk religions; and 70,000 adherents of other religions.

Legal Framework

The Basic Law of Governance establishes the country as a sovereign Arab Islamic state in which Islam is the official religion.  The Basic Law says sharia is the “foundation of the Kingdom” and states the country’s constitution is the Quran and the Sunna.  The Basic Law contains no legal recognition or protection of freedom of religion.  Conversion from Islam to another religion is grounds for the charge of apostasy, which is legally punishable by death, although courts have not carried out a death sentence for apostasy in recent years.

Blasphemy against Islam may also be legally punishable by death, but courts have not sentenced individuals to death for blasphemy in recent years.  Punishments for blasphemy may include lengthy prison sentences and lashings.  Criticism of Islam, including expression deemed offensive to Muslims, is forbidden on the grounds of preserving social stability.

The 2017 counterterrorism law criminalizes “anyone who challenges, either directly or indirectly, the religion or justice of the King or Crown Prince.”  By year’s end, authorities had not yet issued new implementation regulations, and the implementation regulations of the 2014 counterterrorism law remained in effect.  Those regulations criminalize “calling for atheist thought in any form, or calling into question the fundamentals of the Islamic religion.”  The right to access legal representation for those accused of violating the counterterrorism law is limited; according to the law, “the Public Prosecutor may, at the investigative stage, restrict this right whenever the interests of the investigation so require.”  There is no right to access government-held evidence.

The Basic Law states the duty of every citizen is to defend Islam, society, and the homeland.  Non-Muslims must convert to Islam before they are eligible to naturalize.  The law requires applicants for citizenship to attest to being Muslim and to obtain a certificate documenting their religious affiliation endorsed by a Muslim religious authority.  Children born to Muslim fathers are deemed Muslim by law.

The country is the home of Mecca and Medina, Islam’s two holiest sites.  The government prohibits non-Muslims from entering central Mecca or religious sites in Medina.  Muslims visit the cities on the annual Hajj pilgrimage and on the Umrah pilgrimage.  The government has stated that caring for the holy cities of Mecca and Medina is a sacred trust exercised on behalf of all Muslims.  The country’s sovereign employs the official title of “Custodian of the Two Holy Mosques,” in reference to the two cities.  The government also establishes national quotas for foreigners and issues permits to Muslim residents (including its own nationals) to participate in the Hajj.

Clerics are vetted and employed by the MOIA.  Only government-employed clerics are permitted to deliver sermons, which must be vetted by MOIA in advance.

Since 2016 Saudi-based clerics traveling abroad for proselytization activities must first obtain the permission of MOIA.  The stated purpose of the regulation is to limit the ability of religious scholars to travel, particularly those the government regards as having questionable credentials, and to prevent the appearance of interference, or actual interference, by Saudi-based clerics in the domestic affairs of other states.

Public school students at all levels receive mandatory religious instruction based on Sunni Islam according to the Hanbali School of jurisprudence.  Private schools are not permitted to deviate from the official, government-approved religious curriculum.  Private international schools are required to teach Saudi students and Muslim students of other nationalities an Islamic studies course, while non-Muslim, non-Saudi students sometimes receive a course on Islamic civilization, or else “free time” in place of the curriculum designed for Saudi students; both courses amount to one hour of instruction per week.  Private international schools may also teach courses on other religions or civilizations.

The CPVPV is a semiautonomous government agency with authority to monitor social behavior and report violations of moral standards consistent with the government’s policy and in coordination with law enforcement authorities.  A 2016 decree limited the CPVPV’s activities to only providing counseling and reporting individuals suspected of violating the law to the police.  CPVPV field officers do not wear uniforms, but are required to wear identification badges and legally may only act in their official capacity when accompanied by regular police.  The CPVPV’s purview includes discouraging and reporting public and private contact between unrelated men and women (gender mixing); practicing or displaying emblems of non-Islamic faiths or failing to respect Islam; “immodest” dress, especially for women; displaying or selling media contrary to Islam, including pornography; producing, distributing, or consuming alcohol; venerating places or celebrating events inconsistent with approved Islamic practices; practicing “sorcery” or “black magic”; and committing, facilitating, or promoting acts, publications, or thoughts considered lewd or morally degenerate, including adultery, homosexuality, and gambling.  The CPVPV reports to the king through the Council of Ministers, and the Ministry of Interior (MOI) oversees its operations on the king’s behalf.

The judicial system is based on laws largely derived from the Quran and the Sunna, developed by fatwas issued by the 21-person Council of Senior Scholars (CSS) that reports to the king, and other royal laws and ordinances.  The Basic Law states governance is based on justice, shura (consultation), and equality according to sharia and further identifies the Quran and the Sunna as the sources for fatwas.  The law specifies a hierarchical organization and composition of the CSS, the Permanent Committee for Scholarly Research and Religious Rulings (ifta), and the Office of the Mufti, together with their functions.  The Basic Law recognizes the CSS, supported by the Permanent Committee for Scholarly Research and Religious Rulings, as the supreme authority on religious matters.  The CSS is headed by the grand mufti and is composed of Sunni religious scholars and jurists, 18 of whom are from the Hanbali school of jurisprudence, with one representative of each of the other Sunni schools (Malaki, Hanafi, and Shafi’i).  There are no Shia members.  Scholars are chosen at the king’s discretion and serve renewable four-year terms, with many serving for life.

The country’s legal architecture does not derive from a common law system, and judges are not bound by legal precedent.  In the absence of a comprehensive criminal code, rulings and sentences can diverge widely.  Criminal appeals may be made to the appellate and Supreme courts, although appellate decisions sometimes result in a harsher sentence than the original court decision.  Government universities provide training in all four Sunni schools of jurisprudence, but with a focus on the Hanbali school.

In legal cases involving accidental death or injury, compensation differs according to the religious affiliation of the plaintiff.  In the event a court renders a judgment in favor of a plaintiff who is a Jewish or Christian male, the plaintiff is entitled to receive 50 percent of the compensation a Muslim male would receive; other non-Muslims may only receive one-sixteenth the amount a male Muslim would receive.

Judges have been observed to discount the testimony of Muslims whom they deemed deficient in their knowledge of Islam, and to favor the testimony of Muslims over the testimony of non-Muslims.  Under the government’s interpretation of the Quran, judges may place the value of a woman’s testimony at half that of a man’s in certain cases.

The Basic Law requires the state to protect human rights in accordance with sharia.  The Human Rights Commission (HRC), a government entity, is tasked with protecting, enhancing, and ensuring implementation of international human rights standards “in light of the provisions of sharia,” and regularly follows up on citizen complaints.  There are no formal requirements regarding the composition of the HRC; during the year, the commission had approximately 28 members from various parts of the country, including two Shia members.

The country is not a party to the International Covenant on Civil and Political Rights.

Government Practices

There were reports of prison authorities abusing Shia prisoners, including one incident leading to death.  Online media and NGOs reported in March that Ahmed Attia, a Shia activist deported to the country from Bahrain in January, reportedly suffered memory loss as a result of physical abuse while in detention in Dammam prison.  Shia Rights Watch (SRW) also reported the March 13 death of 61-year-old Haj Ali Jassim Nazia as a result of physical abuse in prison.

Some human rights organizations stated convictions of Shia on security charges, including several carrying the death penalty, stemming from 2017-18 clashes were motivated by sectarianism, while the government stated the individuals were investigated, prosecuted, and sentenced as a result of security-related crimes and in accordance with the law.  On March 15, UN experts said 15 individuals convicted of spying for Iran and financing terrorism were facing imminent execution after their sentences were referred to the Royal Court for ratification by the king.  The Specialized Criminal Court in Riyadh sentenced the 15 individuals, all of whom were Shia, to death in December 2016 and further court rulings in July and December 2017 upheld the sentences.  Human rights organizations widely decried the legal process as not heeding international standards for fair trial guarantees and transparency.  At the end of the year, the government had not carried out the sentences.

International NGOs stated they were unable to obtain any information on the status of Ahmad al-Shammari, who had reportedly been sentenced to death for charges related to apostasy in April 2017, and was believed still to be incarcerated.  It was unknown whether any appeals in his case remained pending.

On January 4, the SCC sentenced prominent Shia cleric Sheikh Mohammed al-Habib to seven years in prison after the Public Prosecution’s objection to his 2017 acquittal.  The ruling overturned a previous verdict issued by the SCC in July 2017, acquitting al-Habib of the charges of inciting sedition and sectarianism, incitement against the rulers, and defaming religious scholars.  According to human rights groups, authorities detained al-Habib in response to his public statements urging the government to address anti-Shia sectarianism, including in the educational curriculum, and criticizing government clerics who had espoused anti-Shia views.

In August the public prosecutor announced charges against six Shia activists, including female activist Israa al-Ghomgham, from the Eastern Province arrested between September 2015 and April 2016 based on the Islamic law principle of ta’zir, in which the judge has discretion over the definition of what constitutes a crime and over the sentence.  The charges include “instigating riotous gatherings” in Qatif, “joining a terrorist organization linked to an enemy state,” “chanting anti-government slogans,” and “providing moral support for those rioting and instigating sectarian strife.”  According to HRW, the SCC in the Qatif region was the venue for the defendants’ trial.  There were no updates on the case at year’s end.

Up to 34 individuals, all believed to be Shia, faced the possibility of execution as they awaited implementation orders for death sentences already confirmed by the Supreme Court for their roles in protests in the Qatif area of the Eastern Province in 2011 and 2012, according to human rights organizations.  Up to nine of these persons – including Ali al-Nimr (the nephew of Nimr al-Nimr, who was executed in 2016), Dawood al-Marhoon, Abdullah al-Zaher, Abdulkareem al-Hawaj, and Mujtaba al-Sweikat – may have been minors at the time they committed the acts for which they were convicted; however, the government disputed these claims, noting the courts and sharia system use the hijri (lunar/Islamic) calendar for age computations.  Human rights organizations said many of the convictions were based on confessions extracted through prolonged solitary confinement and torture.  Many of these individuals alleged authorities tortured them during pretrial detention and interrogation.  Local Shia activists and international human rights groups questioned the competence, independence, and impartiality of the judiciary, and noted that the underlying charges were inconsistent with international principles of freedom of assembly, expression, and association.

The government continued to imprison individuals accused of apostasy and blasphemy, violating Islamic values and moral standards, insulting Islam, black magic, and sorcery.

On June 7, police arrested Vishnu Dev Radhakrishnan, an Indian national and employee of the Saudi Arabian Oil Company (also known as Saudi Aramco) for “cybercrime pertaining to blasphemy and spreading messages against the Kingdom through social media.”  Radhakrishnan allegedly sent messages on Twitter criticizing the Prophet Mohammed.  On September 13, a court sentenced him to five years’ imprisonment and a 150,000 riyal ($40,000) fine.

Raif Badawi remained in prison at the end of the year based on his 2013 conviction for violating Islamic values, violating sharia, committing blasphemy, and mocking religious symbols on the internet.  Originally sentenced to seven years in prison and 600 lashes in 2013, a court increased Badawi’s sentence on appeal to a 10-year prison term and 1,000 lashes.  By year’s end, the government had not carried out the remaining 950 lashes.

At year’s end, the status of Ahmad al-Shammari’s appeal of his death sentence following his 2017 conviction on charges related to apostasy was unknown.  According to media reports, Shammari allegedly posted videos to social media accounts in which he renounced Islam and the Prophet Muhammad.

In September the SCC opened trials against some clerics, academics, and members of the media for alleged association with the MB.  The accused included prominent Muslim scholars Salman al-Odah, Awad al-Qarni, and Ali al-Omari.  The three were arrested in September 2017.  The public prosecutor reportedly sought the death penalty against them.  The public prosecutor leveled 37 charges against al-Odah, the vast majority of which were connected to his alleged ties with the MB and Qatari government, and his public support for imprisoned dissidents.  In reviewing some of the specific charges, HRW noted, “The initial charges are mostly related to his alleged ties to the MB and other organizations supposedly connected to it.”  None referred to specific acts of violence or incitement to acts of violence, according to a HRW statement on September 12.  The 30 charges against al-Omari included “forming a youth organization to carry out the objectives of a terrorist group inside the Kingdom.”  The government continued to regard the MB as a terrorist organization.

Authorities are reported to have arrested cleric Abdelaziz al-Fawzan in July after he spoke out against the arrests of other religious leaders in the country, according to the website Middle Eastern Eye.  The Prisoners of Conscience Twitter account reported that Fawzan, a professor of comparative religious law at the Saudi Higher Institute of Justice, had been arrested over a tweet in which he had “expressed his opinion against the suppression of sheikhs and preachers.”

According to Reuters, the government detained influential religious scholar Safar al-Hawali and three of his sons in July, widening an apparent crackdown against clerics, intellectuals, and rights campaigners.  Al-Hawali, often linked to the MB, rose to prominence 25 years ago as a leader of the Sahwa [Awakening] movement, which agitated to bring democracy to the country and criticized the ruling family for corruption, social liberalization, and working with the West.  Authorities reportedly transferred al-Hawali to a hospital in September after his health deteriorated.

In August multiple media outlets reported that the government detained Saleh al-Talib, an imam and preacher at the Grand Mosque in Mecca, after he reportedly delivered a sermon on the duty in Islam to speak out against the spread of vice.

In September social media and activist websites reported on the suspension or detention of Mecca Grand Mosque imams.  Khalid bin Ali al-Ghamdi was reportedly suspended and ordered to refrain from preaching or engaging in Islamic da’wa (religious outreach).  No reason was announced for the suspension.  Sheikh Faisal bin Jameel al-Ghazawi was reportedly suspended from his position at the Mecca Grand Mosque.  Al-Ghazawi was reportedly also barred from all preaching and da’wa activities.  A third Mecca Grand Mosque imam, Sheikh Bandar Abdulaziz Balila, was reportedly detained by security forces for four days for unknown reasons.

In October the Public Prosecutor’s Office charged cleric Hassan Farhan al-Maliki with calling into question the fundamentals of Islam by casting doubt on prophetic Sunna and hadith (the record of the traditions or sayings of the Prophet Mohammad), propagating deviant beliefs, holding an impure (takfiri) ideology, insulting the rulers and CSS and labelling them as extremists, glorifying the Khomeini-led revolution in Iran, and supporting Hizballah and ISIS, among other charges.  He remained in detention waiting a second trial at year’s end.

On July 2, authorities detained Zuhair Hussein Bu Saleh to implement a prior sentence of two months imprisonment and 60 lashes for practicing congregational prayers at his house due to the lack of Shia mosques in the Eastern Province, according to the international NGO European Saudi Organization for Human Rights.  Bu Saleh was previously arrested in 2015 for “calling for unauthorized gatherings,” and the government closed the prayer hall he supervised.

In August authorities referred cleric Ali Al-Rabieei for prosecution for allegedly tweeting sectarian and anti-Shia content, according to media reports.  Al-Rabieei subsequently apologized for this tweet and reportedly fled abroad.

In August the public prosecutor ordered the arrest of a man who appeared in a video carrying machine guns and threatening to kill Shia citizens in Najran, in the southern part of the country.

According to Shia groups that track arrests and convictions of Shia, more than 300 persons remained in detention in prisons throughout the Eastern Province and additional individuals remained subject to travel bans.  Authorities had arrested more than 1,000 Eastern Province Shia since 2011 in connection with public protests demanding greater rights for Shia, including acts of violence, according to NGO reports.  Most were held on charges involving nonviolent offenses, including participating in or publicizing protests on social media, inciting unrest in the country, and insulting the king.

SRW reported in April government forces raided a Shia prayer hall in Qatif, arresting three men.  According to SRW, the forces also surrounded multiple neighborhoods in Qatif, setting up checkpoints and restricting entry to and departure from the areas.  SRW also reported that authorities arrested a teenage female Shia activist, Nour Said Al-Musallam, for tweets critical of the government.

The UK newspaper The Independent reported that social media users who posted or shared satire attacking religion faced imprisonment for up to five years under strict new laws introduced in the country.  Those found guilty of distributing content online deemed to disrupt public order or disturb religious values would also be subject to a fine of three million riyals ($800,000), the country’s public prosecutor’s office said in a statement on Twitter:  “Producing and distributing content that ridicules, mocks, provokes and disturbs public order, religious values and public morals through social media will be considered a cybercrime.”

A December report by the UN special rapporteur on the promotion and protection of human rights and fundamental freedoms while countering terrorism, issued after a visit to the country in April and May, stated “The special rapporteur is further concerned at the pattern of systematic repression in the country’s Eastern Province, where the majority Shi’a population resides.  The Special Rapporteur has received credible allegations that many individuals protesting against repression of the Shia have been detained.  Their cases are currently making their way through the Specialized Criminal Court (SCC).  Many of these individuals were reportedly peaceful protesters, simply asking for increased religious freedoms, equal rights for the Shi’a community and political reform.  Some have been convicted for the expression of their political views; some for coordinating protests through social media; and some even for providing first aid to protesters.  In this process, a number of individuals who were under the age of criminal responsibility at the time they committed the alleged offences have now been sentenced to death.  Others have already been executed.”

Human rights organizations and legal experts continued to criticize antiterrorism laws for using overly broad and vague language, making them susceptible to politicization and other abuse.

The government continued to prohibit the public practice of any non-Islamic religions.  According to civil society sources and media reports, non-Muslims and many foreign and local Muslims whose religious practices differed from the form of Sunni Islam promoted by the government could only practice their religion in private and remained vulnerable to discrimination, harassment, detention, and, for noncitizens, deportation.

The MOIA maintained active oversight of the country’s religious establishment and provided guidance on the substance of Friday sermons and restricted the inclusion of content in those sermons it considered sectarian or political, promoting hatred or racism, or including commentary on foreign policy.  Mosques continued to be the only legally permissible public places of worship.  The government continued to address ideology it deemed extremist by scrutinizing clerics and teachers closely and dismissing those found promoting views it deemed intolerant, extreme, or advocating violence abroad, including in Syria and Iraq.  The MOIA continued to use ministry inspectors, regional branch inspectors, field teams, citizen feedback, and the media to monitor and address any violations of the ministry’s instructions and regulations in mosques.  MOIA oversight of mosques in less populated areas was not always as strict as it was in urban areas.  In July the MOIA created a hotline for individuals to call in and report on statements by imams that observers considered objectionable.  In August Minister of Islamic Affairs Abdul Latif Al-Sheikh announced the ministry was developing a mobile phone app which would monitor sermons and allow mosque-goers to rate their preacher on a number of aspects of their work content and length.  According to a BBC report in August, the government was engaged in deliberations on the reform of religious teachings and in a debate on unifying the content of sermons to steer people away from “foreign, partisan, or Muslim Brotherhood” thought.

Practices diverging from the government’s official interpretation of Islam, such as public celebrations of Mawlid al-Nabi (the birthday of the Prophet Muhammad) and visits to the tombs of renowned Muslims, remained forbidden.

While authorities indicated they considered members of the Ahmadiyya Muslim Community to be Muslims, the group’s legal status remained unclear, and the mainly foreign resident Ahmadi Muslims reportedly hid their faith to avoid scrutiny, arrest, or deportation.

In March MOIA official Hashem bin Mohammed al-Barzanji referred to Shia as “rejectionists” in a tweet.

Since 2016, authorities permitted large-scale public commemorations of Ashura and other Shia holidays in Qatif, Eastern Province, home to the largest Shia population in the country.  As a result of several 2015 ISIS-inspired or directed attacks on Shia gathering places in the Eastern Province, there was again a significant deployment of government security personnel in the Qatif area during the Ashura commemoration in September.  According to community members, processions and gatherings appeared to increase over previous years due to decreased political tensions and greater coordination between the Shia community and authorities.

According to members of the expatriate community, some Christian congregations were able to conduct large Christian worship services discreetly and regularly without substantial interference from the CPVPV or other government authorities.

The government stated that individuals who experienced infringements on their ability to worship privately could address their grievances to the MOI, HRC, the National Society for Human Rights (a quasi-governmental organization), and, when appropriate, the MFA.  Religious groups reported, however, that officials typically charged those arrested during private worship services with gender-mixing, playing music, or other infractions not explicitly related to religious observance.  There were again no known reports of individuals contacting these or other governmental agencies for redress when their ability to worship privately was infringed.

According to government policy, non-Muslims were prohibited from being buried in the country.  There was, however, at least one public, non-Islamic cemetery in Jeddah, although the government did not support it financially.  The only other known non-Muslim cemetery was private and only available to Saudi Aramco employees.  Diplomatic missions reported most non-Muslims opted to repatriate their deceased to their home countries whenever financially possible.

Authorities generally required Shia mosques to use the Sunni call to prayer, including in mixed neighborhoods of both Sunni and Shia residents.  In some predominantly Shia areas of al-Ahsa Governorate in the Eastern Province, authorities allowed Shia mosques to use the Shia call to prayer.  In smaller Shia villages where there was virtually no CPVPV presence, reports indicated it was common for Shia businesses to close for three prayer times (not five times per Sunnis practice), or not at all.

The government continued to set policy aimed at enforcing Islamic norms; for example, the government threatened to expel foreigners who did not refrain from eating, drinking, or smoking in public during Ramadan.  According to media reports, it prohibited parents from giving their children any of 50 listed names deemed blasphemous, non-Arabic, or non-Islamic.

The CPVPV continued to monitor social behavior and promote official standards of morality, although instances of CPVPV interactions with individuals reportedly decreased significantly in most urban areas, such as Riyadh, Jeddah, and Dammam.

The government did not recognize certificates of educational attainment for graduates of some Shia religious centers of instruction or provide them employment benefits, which the government provided to graduates of Sunni religious training institutions.

The government continued a multi-year project, begun in 2007, to revise textbooks, curricula, and teaching methods with the stated aim of removing content disparaging religions other than Islam.  The project continued as part of the government’s Vision 2030 development and reform plan announced in April 2016.  The government continued to distribute revised textbooks, although intolerant material remained in circulation, including older versions of textbooks, particularly at the high school level, that contained language disparaging Christians and Jews.  Content included statements justifying the execution of “sorcerers” and social exclusion of non-Muslims, as well as statements that Jews, Christians, Shia Muslims, and Sufi Muslims did not properly adhere to monotheism.  In September Human Rights Watch reported some school textbooks continued to employ biased, anti-Semitic, and anti-Shia language.  Some teachers reportedly continued to express intolerance of other faiths and of alternative viewpoints regarding Islam.

The Anti-Defamation League (ADL) issued a report on textbooks in November, entitled “Teaching Hate and Violence:  Problematic Passages from Saudi State Textbooks for the 2018-19 School Year.”  The report found that school textbooks for the 2018-19 academic year contained “dozens of troubling passages that clearly propagate incitement to hatred or violence against Jews, Christians, Shi’ite Muslims, women, homosexual men, and anybody who mocks or converts away from Islam.”  In its press release announcing the report, the ADL stated “The Saudi curriculum is replete with intolerant passages about Jews and Judaism; some passages even urge violence against Jews.  Others retread classic anti-Semitic stereotypes and assert conspiracy theories about alleged Jewish and Israeli plots to attack the al-Aqsa Mosque in Jerusalem.”

Some travelers entering the country reported they were able to import a Bible for personal use, but the government regularly exercised its ability to inspect and confiscate personal non-Islamic religious materials.

Some academic experts reported the government continued to exclude perspectives at variance with the Salafi tradition within Sunni Islam from its extensive government-owned religious media and broadcast programming.

The CPVPV, in coordination with the Information and Communication Technologies Authority, continued to block certain websites as part of a broader policy of censoring online content that reportedly contained “objectionable” content and “ill-informed” views of religion.  The CPVPV shut down or blocked Twitter accounts for users “committing religious and ethical violations,” and authorities arrested an undisclosed number of social media users in accordance with the anticybercrimes law.  The government also reportedly located and shut down websites used to recruit jihadis or inspire violence.  In 2017 authorities announced they unblocked the calling features of certain private messenger apps, including Viber, FaceTime, and Facebook Messenger.  Some users reported that the calling features of WhatsApp and Skype still remained blocked, however.

The government financially supported approximately 70 percent of Sunni mosques, while the remaining 30 percent were at private residences or were built and endowed by private persons.  The construction of any new mosque required the permission of the MOIA, the local municipality, and the provincial government, which allocated space and issued building permits.  The MOIA supervised and financed the construction and maintenance of most Sunni mosques, including the hiring of clerical workers.

Shia Muslims managed their own mosques under the supervision of Shia scholars.  Most existing Shia mosques in the Eastern Province did not seek official operating licenses, as doing so would require asking the government to extend its explicit endorsement of these mosques, according to some NGO reports.  The government did not finance the construction or maintenance of Shia mosques.  Authorities prohibited Shia Muslims outside of the Eastern Province from building Shia-specific mosques.  Construction of Shia mosques required government approval, and Shia communities were required to receive permission from their neighbors to start construction on mosques.  Two Shia mosques in Dammam remained licensed by the government and served approximately 750,000 worshippers.  According to NGO reports, construction of Shia mosques was not approved outside Shia enclave areas.  There continued to be no licensed Shia mosques in major urban centers such as Jeddah, Riyadh, or al-Khobar.  Shia in those areas were therefore forced to hold prayers in private homes and community centers, where some Shia said they were subject to police harassment.  Expatriate Shia reported threats of arrest and deportation if they gathered privately in large groups to worship and were detected by authorities.

Following ISIS attacks against Shia mosques and gathering places in 2015, security services continued to provide protection for many Shia mosques and gathering places in the Eastern Province.  Additionally, media and other sources reported coordination between Shia volunteers and government security services to ensure security outside mosques and other gathering places during Friday sermons or other large public events.

Multiple reports from Shia groups cited discrimination in the judicial system as the catalyst for lengthy prison sentences handed down to Shia Muslims for engaging in political expression or organizing peaceful demonstrations.  The government permitted Shia judges in the Eastern Province to use the Ja’afari School of Islamic jurisprudence to adjudicate cases in family law, inheritance, and endowment management.  There were five Shia judges, all government-appointed, located in the Eastern Province cities of Qatif and al-Ahsa, where the majority of Twelver Shia live.  According to a Human Rights Watch report issued in September “the Saudi judicial system…often subjects Saudi Shia to discriminatory treatment or arbitrary criminalization of Shia religious practices.”

Reported instances of prejudice and discrimination against Shia Muslims continued to occur with respect to educational and public sector employment opportunities.  Shia stated they experienced systemic government discrimination in hiring.  There was no formal policy concerning the hiring and promotion of Shia in the private sector, but some Shia stated that public universities and employers discriminated against them, occasionally by identifying an applicant for education or employment as Shia simply by inquiring about the applicant’s hometown.  Many Shia reportedly stated that openly identifying as Shia would negatively affect career advancement.

Although Shia constituted approximately 10 to 12 percent of the total citizen population and at least one-quarter of the Eastern Province’s population, representation of Shia Muslims in senior government positions continued to be well below their proportion of the population, including in national security-related positions in the Ministry of Defense, the National Guard, and the MOI.  In contrast with previous years, the 35-member cabinet contained one Shia minister.  There were no Shia governors, deputy governors, or ministry branch directors in the Eastern Province.  There were five Shia members of the 150-member Shura Council.  A very small number of Shia occupied high-level positions in government-owned companies and government agencies.

Multiple municipal councils in the Eastern Province, where most Shia were concentrated, had large proportions of Shia as members, including in the two major Shia population centers of Qatif and al-Ahsa, where five of the 12 government-appointed municipal council members were Shia, and Shia held 16 of the 30 elected seats on the municipal councils.  Eastern Province Shia judges dealing with intra-Shia personal status and family laws operated specialized courts.  Shia were significantly underrepresented in national security-related positions, including the Ministries of Defense and Interior and the National Guard.  According to an article published in September by both Foreign Policy magazine and HRW, “Shiite students are generally kept out of military and security academies, and they rarely find jobs within the security force.”  In predominantly Shia areas, there was some Shia representation in the ranks of the traffic police, municipal government, and public schools.  Shiites are regularly denied access to justice, are arbitrarily arrested, and face discriminatory verdicts.  Scores of them have described the … religiously motivated charges they face in court, including the standard charges of “cursing God, the Prophet, or his companions.”

Shia were reportedly not represented in proportion to their percentage of the population in academic positions in primary, secondary, and higher education, and virtually all public school principals remained Sunni, while some teachers were Shia.  Along with Sunni students, Shia students received government scholarships to study in universities abroad under the Custodian of the Two Holy Mosques Program for Foreign Scholarship.

There were continued media reports however, that some Sunni clerics, who received government stipends, used anti-Semitic, religiously intolerant language in their sermons.  Cases of government-employed clerics using anti-Semitic language in their sermons, including some instances at Friday prayers in Mecca, were rare and occurred without authorization by government authorities.  During the year, the ministry issued periodic circulars to clerics and imams in mosques directing them to include messages on the principles of justice, equality, and tolerance and to encourage rejection of bigotry and all forms of racial discrimination in their sermons.  According to the ministry, during the year, similar to the previous year, no clerics publicly espoused intolerant views warranting dismissal.  Unlicensed imams, however, continued to employ intolerant views in internet postings or unsanctioned sermons in areas without government monitoring.

The government’s stated policy remained for its diplomatic and consular missions abroad to inform foreign workers applying for visas that they had the right to worship privately and to possess personal religious materials.  The government also provided the names of offices where grievances could be filed.

The government required noncitizen legal residents to carry an identity card containing a religious designation of “Muslim” or “non-Muslim.”  Some residency cards, including some issued during the year, indicated other religious designations such as “Christian.”

The government did not formally permit most non-Muslim clergy to enter the country for the purpose of conducting religious services.  Entry restrictions made it difficult for non-Muslims to maintain regular contact with resident clergy, according to non-Muslim religious groups in neighboring countries.  This was reportedly particularly problematic for Catholic and Orthodox Christians, whose religious traditions require they receive sacraments from a priest on a regular basis.  Multiple press outlets reported that visiting Bishop Anba Morkos of Shoubra el-Kheima held the first Coptic Orthodox Mass in the country in December, in a private residence.

The country’s crown prince told The Atlantic in an April interview that he recognized the right of the Jewish people to have a nation-state of their own next to a Palestinian state.  According to the magazine, no Arab leader has ever acknowledged such a right.  In the interview, he also said that the Shia “are living normally” in the country.

According to NGO reports, Umm al-Qura University’s Department of Islamic Studies continued to teach a course on Judaism saying that Jews rely on three texts:  “The Torah, The Talmud, The Protocols of Zion.” (The Protocols of the Elders of Zion is an anti-Semitic tract originally disseminated by the Czarist secret police alleging a Jewish plot aimed at world domination.)  In addition, the reports characterized the university’s course curriculum as heavily anti-Semitic, speaking of the “evil traits” of the Jewish people.

According to the ADL, state television hosted several   hour-long programs   during Ramadan featuring Saad al-Ateeq, a preacher who called   for God to “destroy  ” the Christians, Shia, Alawites, and Jews.  State television also featured Saleh al-Fawzan, who remained   a member of the CSS and was visited   in April by the crown prince, according to al-Arabiya.  The Economist previously reported that Fawzan claimed   ISIS was actually a creation of Jews, Christians, and Shia.  According to Human Rights Watch, he characterized Shia Muslims as “the brothers of Satan.”  According to the ADL, the government gave the honor   of delivering the Eid al-Fitr sermon in June at the Grand Mosque in Mecca to Saleh bin Humaid, who holds a seat   on the CSS.  Bin Humaid previously claimed   it was in Jews’ “nature” to “plot against the peoples of the world.”

According to the Simon Wiesenthal Center, anti-Semitic books including Mein Kampf were offered for sale at the Riyadh Book Fair.

During the year, some Qatari nationals reported being unable to perform the annual Hajj pilgrimage due to logistical obstacles stemming from the border closures and restrictions imposed by Saudi Arabia, the United Arab Emirates, Bahrain, and Egypt on Qatar in 2017.  The government offered Qatari pilgrims internet registration and visa issuance on arrival in Jeddah.  Qatari nationals were purportedly also able to register for Hajj through third country governments.

Al-Monitor, a website covering news from the Middle East, reported in November that the government halted visa issuances to people who held temporary passports and no national identification.  This prevented Palestinians living in Jerusalem and the West Bank, Egypt, Lebanon, Jordan, and elsewhere from traveling to perform religious rites, particularly the Hajj and Umrah.

In April, in the first visit to the country by a senior Catholic official, Chairman of the Pontifical Council for Interfaith Dialogue Cardinal Jean-Louis Tauran met with King Salman and Crown Prince Mohammed bin Salman in Riyadh to discuss the role of followers of religions and cultures in renouncing violence, extremism, and terrorism and achieving worldwide security and stability.  On March 4, the crown prince met publicly with Coptic Pope Tawadros II in Cairo’s largest Coptic cathedral.

On November 1, the crown prince met with U.S. evangelical Christian figures in Riyadh.  Following the meeting, the group met with the government-sponsored Muslim World League’s (MWL) Secretary-General Mohammed al-Issa to discuss ways both parties could counter extremism and exchanged ideas on possible initiatives and programs to increase mutual respect at the grass roots level.  Al-Issa stated the meeting was an exchange to advance understanding and the message of a “moderate and tolerant Islam.”  On January 28, al-Issa wrote a public letter to the U.S. Holocaust Memorial Museum, calling the Holocaust “an incident that shook humanity to the core, and created an event whose horrors could not be denied or underrated by any fair-minded or peace-loving person.”  In October MWL representatives discussed religious cooperation with several non-Muslim religious community leaders including a prominent U.S. Jewish leader at the MWL-sponsored Cultural Rapprochement Between the US and the Muslim World conference in New York.

The U.S. government estimates the total population at 9.7 million (July 2018 estimate).  Approximately 11 percent of the population are citizens, of whom more than 85 percent are Sunni Muslims, according to media reports.  The vast majority of the remainder are Shia Muslims, who are concentrated in the Emirates of Dubai and Sharjah.

Of the estimated 89 percent of residents who are noncitizens, the majority come from South and Southeast Asia.  Although no official statistics are available for what percentage of the noncitizen population is Muslim or the breakdown between Sunni and Shia Muslims among noncitizen residents, media estimates suggest less than 20 percent of the noncitizen Muslim population is Shia.

Of the total population (both citizen and noncitizen), the 2005 census, the most recent, found 76 percent to be Muslim, 9 percent Christian, and 15 percent from other religious groups comprising mainly Hindus and Buddhists, and also including Parsis, Baha’is, Druze, Sikhs, and Jews.  Ahmadi Muslims, Ismaili Muslims, and Dawoodi Bohra Muslims together constitute less than 5 percent of the total population and are almost entirely noncitizens.  The Pew Research Center estimated that in 2010, 76.9 percent of the total population was Muslim, 12.6 percent Christian, 6.6 percent Hindu, 2 percent Buddhist, with the remaining belonging to other faith traditions.

Legal Framework

The constitution designates Islam as the official religion.  It guarantees freedom of religious worship “in accordance with established customs,” provided this “does not conflict with public policy or violate public morals.”  The constitution states all citizens are equal before the law, and prohibits discrimination on grounds of religious belief.

The law prohibits black magic, sorcery, and incantations, which are punishable by a prison term ranging from six months to three years, and deportation for noncitizens.

The law does not directly prohibit Muslims from converting to other religions; however, the penal code defers to sharia on matters defined as crimes in Islamic doctrine, which in many interpretations prohibits apostasy.

The law provides for imprisonment of up to five years for preaching against Islam or proselytizing to Muslims.  The law also prohibits “abusing” a holy shrine or ritual of any religion, insulting any religion, inciting someone to commit sin or contravene national values, labeling someone an infidel or unbeliever, and forming groups or holding meetings with the purpose of provoking religious hatred.  Offenders are subject to fines up to two million dirhams ($545,000) and imprisonment generally ranging from five to 10 or more years.

The law prohibits blasphemy, defined as any act insulting God, religions, prophets, messengers, holy books, or houses of worship.  Offenders are subject to imprisonment for five or more years and fines from 250,000 dirhams ($68,100) to two million dirhams ($545,000); noncitizens may be deported.

The law does not require religious organizations to register; however, the formation of a legal entity, which requires some form of registration, is necessary for operational functions such as opening a bank account or renting space.  Each emirate oversees registration of non-Muslim religious organizations and the process differs by emirate, organization, and circumstance.  Currently, there is no consistent legal framework across the seven emirates for registering non-Muslim religious organizations and, as a result, different religious organizations register under different ministries.  In Dubai, religious organizations are required to obtain a license from the Community Development Authority (CDA).  The government has also granted some religious organizations land in free trade zones, where they legally registered by applying for a trade license, which allows them some operational functions.

The law requires Muslims and non-Muslims to refrain from eating, drinking, and smoking in public during fasting hours during the month of Ramadan.

The law prohibits churches from erecting bell towers or displaying crosses or other religious symbols on the outside of their premises, although they may place signs on their properties indicating they are churches.

Islamic studies are mandatory for all students in public schools and for Muslim students in private schools.  The government does not provide instruction in any religion other than Islam in public schools.  In private schools, non-Muslim students are not required to attend Islamic study classes.  All students, however, are required to take national social studies classes, which include some teaching on Islam.  The government permits Christian-affiliated schools to provide instruction tailored to the religious background of the student, for example, Islamic studies for Muslim students, Christian instruction for Christian students, and ethics or comparative religions for others.

Private schools deemed to be teaching material offensive to Islam, defamatory of any religion, or contravening the country’s ethics and beliefs face potential penalties, including closure.  All private schools, regardless of religious affiliation, must register with the government.  Private schools are required to have a license from the federal Ministry of Education and their curriculum must be consistent with a plan of operation submitted to and approved by the ministry.  Administrative oversight of the schools is a responsibility of each emirate’s government.

The law prohibits the distribution of religious literature the government determines is contradictory to Islam, as well as literature it deems blasphemous or offensive towards religions.

Land ownership by non-citizens is restricted to designated freehold areas.  Outside of special economic zones and designated freehold areas, the law restricts the majority company ownership to citizens.  This restriction is an impediment to most minority religious communities (which consist of noncitizens) from purchasing property to build houses of worship.

The law prohibits multiple forms of discrimination, including religious discrimination, and criminalizes acts the government interprets as provoking religious hatred or insulting religion through any form of expression.  It also criminalizes the broadcasting, publication, and transmission of such material by any means, including audio/visual or print media, or via the internet, and prohibits conferences or meetings the government deems promote discrimination, discord, or hatred.

According to the constitution, sharia is the principal source of legislation, although the judicial system applies two types of law, depending on the case.  Sharia forms the basis for judicial decisions in most family law matters for Muslims, such as marriage and divorce, and inheritance for both Muslims and non-Muslims; however, in the case of noncitizens, the parties may petition the court to have the laws of their home country apply, rather than sharia.  Sharia also applies in some criminal matters.  Civil law provides the basis for decisions on all other matters.  Shia Muslims in Dubai may pursue Shia family law cases through a special Shia council rather than through the regular judicial system.  When sharia courts try non-Muslims for criminal offenses, judges have the discretion to impose civil or sharia penalties.  Higher courts may overturn or modify sharia penalties.

Under the law, Muslim men may marry non-Muslim women who are “people of the book” (Christian or Jewish).  Muslim women may not marry non-Muslim men.  Non-Muslim men and Muslim women who marry are subject to arrest, trial, and imprisonment on grounds of engaging in extramarital sex, which carries a minimum sentence of one year in jail, as the marriage is considered invalid; any extramarital sex between persons of any religion is subject to the same penalties.

In the event of a divorce between a Muslim father and non-Muslim mother, sharia law will usually apply.  Strict interpretation of sharia – which oftentimes favors the father – does not apply to child custody cases.  The father, deemed the guardian, provides for the child financially, while the mother, the custodian, provides day-to-day care of the child.  Non-Muslim wives of citizens are ineligible for naturalization.  There is no automatic spousal inheritance provision for wives under the law if the husband is Muslim and the wife is non-Muslim.  Such wives may not inherit their husband’s property unless named as a beneficiary in their husband’s will.

Abu Dhabi’s judicial department permits Christian leaders to legally mediate divorces for Christians and agnostics if the bride and groom are both residents of the emirate.  The government permits church officials to officiate at weddings for non-Muslims, but the couple must also obtain the marriage certificate from the Abu Dhabi Justice Department.  In both cases of marriage and divorce, the church official must be registered with the Ministry of Justice as officially recognized to perform these acts.

Noncitizens may register wills in the emirate in which they live.  In the absence of a will filed with the government, the assets of foreigners who die are subject to sharia.  Non-Muslims are able to register their wills with the Abu Dhabi judicial system as a way to safeguard their assets and preserve their children’s inheritance rights.  In Dubai, foreigners may file wills at the Dubai International Financial Center (DIFC) Court Wills and Probate Registry and include their own choice of law clause.  The DIFC Wills Service Center allows non-Muslim business owners and shareholders to designate an heir.  Dubai wills not filed in the DIFC Court are subject to sharia.  The DIFC’s jurisdiction extends to the Emirate of Ras al Khaimah.  There are courts for Personal Status and for Inheritance for non-Muslims in the Abu Dhabi Court of First Instance.

The law prohibits activities the government deems supportive of political or extremist interpretations of Islam.  These include the use of the internet or any other electronic means to promote views the government believes insult religions, promote sectarianism, damage national unity or the reputation of the state, or harm public order and public morals.  Punishments include imprisonment and fines from 500,000 dirhams ($136,000) to one million dirhams ($272,000).  In August the government increased the penalties for electronic violations of the law, including raising the maximum fine to four million dirhams ($1.09 million).  The law prohibits membership in groups the government designates as terrorist organizations, with penalties up to life imprisonment and capital punishment.

In May the president issued a federal law declaring that local authorities concerned with mosque affairs are responsible for naming mosques, providing and supervising the needs of mosques and prayer spaces, determining the timing of the second call to prayer, organizing religious lectures, and preparing sermons.  The law also defined acts prohibited in mosques, prayer spaces, and Eid Musallas (open prayer spaces outside of mosques or prayer halls smaller than mosques) without a license, such as giving lectures or sermons, holding Quran memorization circles, fundraising, and distributing written and visual material.  The law further stipulates that citizen applicants must be given first consideration for vacant positions at mosques.  The law prohibits those working in mosques from belonging to any illegal group or from carrying out any political or organizational activities.

The law restricts charitable fundraising activities, including by religious organizations, by prohibiting the collection of donations or advertising fundraising campaigns without prior approval from authorities.

In May the president approved a federal law on charitable endowments, clarifying circumstances under which fundraising was permissible.  The law classifies charitable endowments into three categories:  where proceeds are designated for the founder’s offspring; where proceeds are designated for charitable endeavors supporting the underprivileged; and where the proceeds are designed for both offspring and the general public.

The Dubai CDA is the official body mandated to oversee all civil institutions and nonprofits in the emirate, including non-Muslim religious groups.  The CDA issues operating licenses and permits for events, and monitors fundraising activities.  The law also states that civil institutions may only collect donations or launch fundraising campaigns after obtaining the CDA’s written approval.  Fines for noncompliance range from 500 dirhams ($140) to 100,000 dirhams ($27,200).

The country is not a party to the International Covenant on Civil and Political Rights.

Government Practices

According to press, in July the criminal court of Ajman sentenced “an Arab man” to seven years of imprisonment, deportation upon completion of jail time, and a fine of 500,000 dirhams ($136,000) on blasphemy charges for an allegedly offensive voice mail that, according to media reports, contained offensive words and insulted God.

In January a court sentenced a Dominican woman and her child’s Yemeni biological father to a suspended one-month jail term and deportation for violating the country’s interpretation of sharia by engaging in extramarital sex.

Police and courts continued to enforce laws against sorcery.  In February the Federal Supreme Court upheld an 18-month jail term against someone identified in the press as “an Arab man” for charges of witchcraft, fraud, and trying to coerce sex from a woman.

There were reports of government actions targeting the Muslim Brotherhood, designated by the government as a terrorist organization, and individuals associated with the group.

Within prisons, the authorities required Muslims to attend weekly Islamic services.  In Abu Dhabi, some Christian clergy reported difficulties visiting Christian prisoners and raised concerns about lack of worship space for incarcerated Christians.  They reported that when they were granted prison access, they were permitted to take Bibles to the prisoners.

The country’s two primary internet service providers, both majority-owned by the government, continued to block certain web sites critical of Islam or supportive of religious views the government considered extremist, including Islamic sites.  The service providers continued to block other sites on religion-related topics, including some with information on Judaism, Christianity, atheism, and testimonies of former Muslims who converted to Christianity.

In June the cabinet approved the formation of the UAE Fatwa Council, headed by President of the Forum for Promoting Peace in Muslim Societies Sheikh Abdallah bin Bayyah.  The cabinet tasked the council with presenting a clear image of Islam, including issuing general fatwas and licensing individuals to issue fatwas, train muftis, and conduct research in coordination with the Awqaf.  In a July statement to the official Emirates news agency, Sheikh bin Bayyah declared, “Unofficial and rogue fatwas are the first gateway to extremist ideologies, and now is the time to demolish the misuse of this platform and end the distortion of fatwas to serve terrorism, murder, and destruction, both in Muslim countries and among Muslim minorities in different countries of the world.”

The Awqaf continued to vet and appoint Sunni imams, except in Dubai, based on their gender, educational background and knowledge of Islam, along with security checks.  According to the federal Awqaf, the government continued to fund Sunni mosques, with the exception of those considered private, and retained all Sunni imams as government employees.

The federal Awqaf continued to oversee the administration of Sunni mosques, except in Dubai, where they were administered by the IACAD.  On its website, the Awqaf stated its goals included offering “religious guidance in the UAE to instill the principle of moderation in Islam.”  It continued to distribute weekly guidance to Sunni imams regarding subject matter, themes, and content of Friday Islamic sermons; published a Friday sermon script every week; and posted the guidance on its website.  The Awqaf applied a three-tier system in which junior imams followed the Awqaf Friday sermon script closely; midlevel imams prepared sermons according to the topic or subject matter selected by Awqaf authorities; and senior imams had the flexibility to choose their own subject and content for their Friday sermons.  Some Shia sheikhs (religious leaders) chose to follow Awqaf-approved weekly addresses, while others wrote their own sermons.  In June the Awqaf launched the first English-language Friday sermons in Ras Al Khaimah.  In September the Awqaf launched an initiative to translate Friday sermons for reading and listening into English and Urdu on its website and mobile application.

Dubai’s IACAD controlled the appointment of Sunni clergy and their conduct during worship in Dubai mosques.  All of the imams in Dubai’s more than 2,000 Sunni mosques were government employees and included both citizens and noncitizens.  Qualification requirements were more stringent for expatriate imams than for local imams, and starting salaries much lower.

The Jaafari Affairs Council, located in Dubai, managed Shia affairs for all of the country, including overseeing mosques and community activities, managing financial affairs, and hiring preachers.  The council complied with the weekly guidance from IACAD and issued additional instructions on sermons to Shia mosques.  In May, acting on an initiative of Prime Minister and Ruler of Dubai Sheikh Mohammed bin Rashid Al Maktoum, emirate officials inaugurated the Imam Al Sadiq Center in Dubai for Shia religious and community activities.  The site is intended to hold 2,400 people.

The government did not appoint sheikhs for Shia mosques.  Shia adherents worshiped in and maintained their own mosques.  The government considered all Shia mosques to be private; however, they were eligible to receive some funds from the government upon request.

The Awqaf operated official toll-free call centers and a text messaging service for fatwas in three languages (Arabic, English, and Urdu).  Fatwa categories included belief and worship, business transactions, family issues, women’s issues, and other Islamic legal issues.  Callers explained their question directly to an official mufti, who then issued a fatwa.  Both female (muftiya) and male (mufti) religious scholars worked the phones at the fatwa hotline.

The government permitted Shia Muslims to observe Ashura in private, but not in public.  There were no public processions in Dubai or the northern emirates.

Representatives of non-Islamic faiths said registration procedures and requirements for minority religious groups remained unclear in all emirates other than Dubai.  The government did not require non-Muslim religious groups to register, but according to some observers, the lack of a clear legal designation continued to result in an ambiguous legal status for many groups and created difficulties in carrying out certain administrative functions, including banking or signing leases.  For example, the government required religious groups to register as a precondition for establishing formal places of worship, such as temples, mosques, or churches, or for holding religious services in rented spaces such as hotels or convention centers.  Community sources indicated that the government permitted unregistered religious organizations to rent spaces at hotels in some circumstances.  The government permitted groups that chose not to register to practice in private homes, as long as this activity did not disturb neighbors through excessive noise or vehicle congestion.

The government required all conference organizers, including religious groups, to register conferences and events, including disclosing speaker topics.

In Dubai, there were reports of delays in obtaining permits to worship in spaces outside of government-designated religious compounds from the CDA, tasked with implementing a new oversight structure for civil institutions and nonprofits and with regulating non-Muslim faith communities in the emirate.  There were also reports of additional restrictions on holding some religious services in hotels, due to confusion and uncertainty regarding CDA policies, and last-minute event cancellations affecting religious groups.

Immigration authorities continued to ask foreigners applying for residence permits to declare their religious affiliation on residence applications.  School applications also asked for family religious affiliation.  Applicants were required to list a religious affiliation, creating potential legal issues for atheists and agnostics.  According to Ministry of Interior officials, the government collected this information for demographic statistical analysis only.

Individuals belonging to non-Islamic faiths, including Christianity, Hinduism, Sikhism, Buddhism, and Judaism, said they generally could worship and practice without government interference within designated compounds or buildings, or in private facilities or homes.  While the government did not generally allow non-Muslims to worship, preach, or conduct prayers in public, there were reports of government-sanctioned exceptions, such as the annual Easter celebrations held on a beach.

The government continued to provide land for non-Islamic cemeteries.  There were cremation facilities and associated cemeteries for the large Hindu community.  The Al Ain municipality in Abu Dhabi Emirate also ran a cremation facility.  Non-Muslim groups said the capacity in crematoriums and cemeteries was sufficient to meet demand.  The government required residents and nonresidents to obtain a permit to use cremation facilities, and authorities routinely granted such permits.  The government allowed people from all religious groups except Islam to use the cremation facilities.

In November the Abu Dhabi International Airport opened a multi-faith prayer room for use by the general public.

Some religious groups, particularly Christians and Hindus, advertised religious functions in the press or online, including holiday celebrations, memorial services, religious conventions, and choral concerts, without government objection.  The government also allowed businesses to advertise, sell merchandise, and host events for non-Islamic religious holidays such as Christmas, Easter, and Diwali.  The government allowed local media to report on non-Islamic religious holiday celebrations, including service times and related community-safety reminders.

In spite of legal prohibitions on eating during daytime hours of Ramadan, in Dubai and several northern emirates, non-Muslims were exempt from these laws in hotels and most malls; non-Muslims could eat at some stand-alone restaurants and most hotels in Abu Dhabi as well.  In Dubai and several northern emirates, the emirate governments permitted most licensed restaurants to offer alcohol during Ramadan.

The government did not always enforce the law against bell towers and crosses on churches, and some churches in Abu Dhabi and Dubai displayed crosses on their buildings or had ornamental bell towers; none of them used the towers to ring or chime bells.

Customs authorities continued to review the content of religious materials imported into the country and occasionally confiscated some materials, such as books.  Additionally, sometimes customs authorities denied or delayed entry to passengers carrying items deemed intended for sorcery, black magic, or witchcraft.  Specific items airport inspectors reportedly confiscated included amulets, animal bones, spells, knives, and containers of blood.

Officials from the Awqaf’s Department of Research and Censorship reviewed religious materials such as books and DVDs published at home and abroad.  The department’s Religious Publications Monitoring Section continued to limit the publication and distribution of religious literature to those it considered consistent with moderate interpretations of Islam and placed restrictions on non-Islamic religious publications, such as material that could be considered proselytizing or promoting another religion over Islam.  The section issued permits to print the Quran and reviewed literature on Quranic interpretation.  The government continued to prohibit the publication and distribution of literature it believed promoted extremist Islam and overtly political Islam.  The Religious Publications Monitoring Section inspected mosques to ensure prohibited publications were not present.

The Anti-Defamation League noted that despite the central government’s policy of promoting religious tolerance, the Dubai emirate sponsored three speakers with a history of anti-Semitic comments at an emirate-sponsored Ramadan event, a ceremony for the Dubai Holy Quran Award.  Omar Abdel Kafi, also spoke at the opening session of the May 2018 “Tolerance and Diversity of Cultures” conference in Abu Dhabi, held at the Emirates Center for Strategic Studies and Research.  Another of the speakers identified in the report, Saleh al-Maghemsy, spoke at the April “Al-Quds – Location and Status” conference in Abu Dhabi, under the patronage of the Minister of Tolerance Sheikh Nahyan bin Mubarak al Nahyan.

The government continued to grant permission to build houses of worship on a case-by-case basis.  Minority religious groups said, however, the construction of new houses of worship had not kept up with demand from the country’s large noncitizen population.  Many existing churches continued to face overcrowding and many congregations lacked their own space.  In Dubai, overcrowding of the emirate’s two church compounds was especially pronounced, and routinely led to congestion and traffic.  Media reports highlighted that holiday services often attract tens of thousands of worshippers to Dubai’s church compounds.  Some smaller congregations met in private locations, or shared space with other churches to which rulers had given land.  Noncitizen groups with land grants did not pay rent on the property.  Several emirates also continued to provide free utilities for religious buildings.

Noncitizens, who make up the membership of most minority religious groups, relied on grants and permission from local rulers to build houses of worship.  For these groups, land titles remained in the respective ruler’s name.  There were approximately 42 Christian churches, built on land donated by the ruling families of the emirates in which they were located.  Ajman and Umm Al Quwain were the only emirates without dedicated land for Christian churches, although congregations gathered in other spaces, such as hotels.

There are two Hindu temples and one Sikh temple in Dubai.  Abu Dhabi Crown Prince Mohammed bin Zayed allocated land in Al-Wathba, Abu Dhabi, for the construction of a privately funded Hindu temple, scheduled to be completed by 2020.  In January the minister of tolerance and the Greek Orthodox Patriarch of Antioch and All the East inaugurated Saint Elias Greek Orthodox Cathedral in Abu Dhabi.  There were no Buddhist temples; some Buddhist groups met in private facilities.  There were no synagogues for the expatriate resident Jewish population, but regular communal worship took place on the Sabbath and holidays in a private villa in Dubai.  In December Bloomberg published an article about the Dubai Jewish community with the permission of its leaders, marking the first time the worship space had been publicly acknowledged.  Construction was underway on a new Anglican church in Abu Dhabi; the projected completion date is not clear.

Although the government permitted non-Muslim groups to raise money from their congregations and from abroad, some noncitizen religious groups were unable to open bank accounts because of the lack of a clear legal category to assign the organization.  Several religious minority leaders reported this ambiguity created practical barriers to renting space, paying salaries, collecting funds, and purchasing insurance, and made it difficult to maintain financial controls and accountability.

In Islamic court cases involving non-Muslim defendants, judges had the discretion to impose civil or sharia penalties, and sources said the judges generally imposed civil penalties.

Minister of Tolerance Sheikh Nahyan bin Mubarak Al Nahyan often spoke publicly in support of free practice of religion, including during a February address to a delegation from the Catholic University of Paris.  The minister continued to host the International Institute of Tolerance, which sponsored the Dubai-based World Tolerance Summit in November, which featured messaging on respect for religious pluralism.

The government engaged with religious minorities frequently.  In January the minister of tolerance hosted senior Christian leaders from across the Gulf Cooperation Council at his palace in Abu Dhabi and discussed interfaith relations and their ability to worship in the UAE.  In January Sheikh Mohammed bin Rashid Al Maktoum, prime minister and ruler of Dubai, hosted Aga Khan IV, imam of the Shia Ismaili Muslims, as part of the Aga Khan’s diamond jubilee tour as spiritual leader and to promote the Aga Khan Foundation.

In October Abu Dhabi Crown Prince and Deputy Supreme Commander of the Armed Forces Mohammed bin Zayed and numerous other officials hosted a visiting evangelical Christian delegation from the United States to discuss promotion of tolerance and religious pluralism.

During the St. Anthony’s Coptic Orthodox Cathedral’s Christmas celebration, Minister of Tolerance Sheikh Nahyan bin Mubarak Al Nahyan addressed the congregation and condemned the terrorist attack against the Church of Mar Mina in Cairo and affirmed the country’s commitment to religious tolerance and interfaith understanding.

In June Minister of Foreign Affairs and International Cooperation Sheikh Abdullah bin Zayed Al Nahyan met with Pope Francis and other senior Vatican officials in Rome.  Local media reports noted that the discussions included promoting interfaith dialogue and increased bilateral cooperation.

Some Muslim and non-Muslim groups reported their ability to engage in nonreligious charitable activities, such as providing meals or social services, was limited because of government restrictions.  For example, the government required groups to obtain permission prior to any fundraising activities.  Religious groups reported official permission was required for any activities held outside of their place of worship, including charitable activities, and this permission was sometimes difficult to obtain.

In Dubai, representatives of the CDA attended interfaith iftars and suhoors (predawn meals during Ramadan) hosted by several Christian congregations, the Sikh Gurudwara, and the Ismaili Center.  Dubai’s Al Manara Islamic Center hosted an interfaith iftar, and invited attendees to share their thoughts on the themes of tolerance and happiness.  The iftar was broadcast live on the center’s website.  Dubai’s grand mufti addressed the diverse group of minority religious leaders and diplomats in attendance.

In June 2018 Minister of Foreign Affairs and International Cooperation Sheikh Abdullah bin Zayed Al Nahyan visited the Akshardham Hindu temple in New Delhi, India, as part of an official visit.

Prominent government figures and social media influencers routinely acknowledged minority religious holidays using various platforms.  For example, Sheikh Mohammed bin Rashid Al Maktoum, Prime Minister and ruler of Dubai, tweeted wishes for a happy Diwali and encouraged observers to use social media to share pictures of Diwali celebrations around the country.