Legal framework on freedom of religion and actual application
The 2008 Bhutanese Constitution recognises Buddhism as the spiritual heritage of Bhutan, while mandating that religious institutions promote this heritage and ensure separation from politics (Article 3). The constitution states: “Religious institutions and personalities shall remain above politics.”[1] This effectively prohibits Buddhist monks and Hindu clergy from participating in electoral processes, including both voting and standing for public office.
The constitution guarantees Bhutanese citizens the right to freedom of thought, conscience, and religion, prohibiting coercion or inducement to belong to another faith (Article 7).[2] This reflects an ongoing effort to balance religious freedom with the country’s traditional Buddhist values.
Concerns about the need to maintain Bhutan’s cultural and Buddhist religious identity resulted in two citizenship laws (1977 and 1985), which effectively stripped the Lhotshampa, an ethnic Nepali community, of their right to live in the country.[3] The community, which migrated to Bhutan in the 19th century, is predominantly Hindu, but includes some Buddhists and animists. The 1985 Act excluded Lhotsahampa from becoming naturalised citizens,[4] and individuals who protested were detained and imprisoned.[5] Furthermore, thousands of Hindu ethnic Nepalis were forced to leave the country.[6]
The Election Commission of Bhutan has upheld the principle of separation between religion and politics to maintain the neutrality of religious institutions as laid out in the Religious Organisations Act of 2007 (Article 13).[7] Proselytising remains forbidden, and religious groups must obtain licences and register with the Commission for Religious Organisations (CRO). As of 2022, 139 religious groups were registered (137 Buddhist and two Hindu).[8] The Dharma Samudaya, one of the two recognised Hindu groups, reports strong support for its activities within Bhutan.[9] Groups that have not been able to register, including Christian ones, cannot own property or organise public events. While unregistered religious groups may meet in private homes[10], any gathering of Christians outside of such homes[11] is technically illegal.[12]
The government continues to recognise major Buddhist and Hindu religious holidays as public holidays, while no Christian holidays receive similar recognition.[13]
Incidents and developments
Bhutan has been criticised for the harassment of non-Buddhists,[14] and for denying Christians the right to buy burial plots. Relatives reportedly put pressure on converts to Christianity to revert to their original religion.[15]
Finding a place to worship remains difficult for many non-Buddhists, especially as there are no officially recognised Churches. Christians continue to gather discreetly in private homes, and at the time of writing, no Church has received formal recognition from the Commission for Religious Organisations (CRO).[16]
On 15 October 2024, municipal authorities in Damphu, Tsirang district, suspended the supply of drinking water, and later power, to a private building following a directive from the Dzongda (district governor). The action was in response to unauthorised religious gatherings being held in a karaoke venue located in the basement of the building. Prior to the interruption of supply, the Dzongda had issued a formal warning to the property owner, Rajen Tamang, cautioning that continued public assemblies could result in the withdrawal of essential services, including water and electricity. Although the official notice did not describe the nature of the gatherings, Tamang later clarified that they were weekly religious meetings held every Sunday. In a written response dated 11 October, he argued that the gatherings were private, peaceful, and consistent with local religious customs, thereby falling under the protection of Article 7, Section 4 of the constitution, which guarantees freedom of religion.[17] In December 2024, a high court rejected Tamang’s constitutional arguments and ruled that there could be no appeal, since the basement was specifically licenced for karaoke.[18]
Another challenge faced by Christians in Bhutan is access to religious materials. The possession of Bibles and Christian literature, CDs and DVDs may be construed as promoting Christianity - an unrecognised religion - or as an attempt at proselytism, which is prohibited by law. Discovery of such materials by family members, local authorities, or neighbours can lead to harassment, interrogation, and the seizure of personal property.[19]
The Catholic Church in Bhutan is under the jurisdiction of the Diocese of Darjeeling, India. The country has witnessed a sustained Jesuit presence, particularly in the field of education. The Jesuit Province of Darjeeling designated a Bhutanese national priest as its full-time representative in Bhutan. He is tasked with providing spiritual care to the Catholic community, one of the oldest Christian groups in the country.[20] It comprises approximately 200 members, evenly divided between those from long-established Catholic families and recent converts. In addition to this Catholic presence, the country is home to growing Protestant and Pentecostal communities, whose numbers have significantly increased over the past two decades.[21]
In November 2023, two parties were voted to compete in parliamentary elections, which were held on 9 January 2024. This marked a significant turning point for Bhutan, reflecting its transition to democracy. With a turnout of over 65 percent[22] and no violence or disruption, the election was regarded by the international community as a positive development for the country.
On 28 January 2024, Tshering Tobgay, a practising Buddhist, was sworn in as Prime Minister of Bhutan, following the parliamentary elections in which his People’s Democratic Party (PDP) secured a majority. This marks Tobgay’s second term in office; he previously served from 2013 to 2018. While he continues to prioritise Gross National Happiness (GNH) and the promotion of Buddhist values, his re-election raises concerns regarding religious freedom.[23] The continuation of existing policies offers limited prospects for improvement, particularly with respect to the potential repatriation of the predominantly Hindu, Nepali-speaking Lhotshampa community still residing in refugee camps in Nepal.
Prospects for freedom of religion
While the 2008 constitution formally guarantees freedom of religion and upholds the separation of religion and State, the government’s emphasis on preserving the primacy of Buddhism continues to result in constraints on the religious practices of non-Buddhist communities. These include a prohibition of proselytism and a lack of official recognition for non-Buddhist places of worship.
The re-election of Prime Minister Tshering Tobgay - an advocate of Buddhist values and the Gross National Happiness philosophy - indicates that, despite ongoing democratic reforms, substantial barriers persist to the full realisation of religious freedom for minority groups. The prospects for religious freedom in Bhutan remain therefore largely unchanged.
Sources
Bhutan