Legal framework on freedom of religion and actual application
The Lao People’s Democratic Republic is a one-party communist state. Freedom of religion and belief are enshrined in its constitution and laws. The 1991 constitution, revised in 2015, describes the rights of the people in some detail, including freedom of religion (Article 9). In practice, however, the status of religious freedom in Laos is similar to that of its eastern neighbour, Vietnam, undoubtedly due to the communist ideology that has decisively shaped the recent history, culture, and political institutions of both countries.[1]
The legal framework for religion can be described as one of petitions and concessions, in which religious organisations seek permission from government authorities to carry out their activities, and the authorities, in turn, grant or deny their requests. For example, Article 43 of the constitution guarantees the “right and freedom to believe or not to believe in religions which are not contrary to the laws”. Yet Articles 8 and 9 contain vague limitations on this right, such as a ban on “all acts creating division and discrimination among ethnic groups” and “religions and classes of people”.[2] These provisions have been used to justify state interference with the activities of religious groups. At the heart of the Laotian legal framework governing religion is what could be called “governmental overreach,” in which public officials enjoy virtually unlimited authority to regulate religious matters.[3]
In addition to the constitution, a number of laws regulate religion in Laos. In 2002, Decree No. 92 on the Management and Protection of Religious Activities was adopted. This was replaced on 16 August 2016 by Decree No. 315.[4] Signed by Prime Minister Thongloun Sisoulith, the new order ostensibly has the potential to improve religious freedom if it is fully understood and implemented by local officials.[5]
Decree No. 315 introduced improvements over Decree No. 92, including giving all religions equal status in law, making governmental regulations more consistent and transparent, and more clearly defining the procedures whereby religious groups may secure official recognition. Nevertheless, both decrees presuppose that the State continues to control the country’s religious affairs. For example, Decree No. 315 gives sweeping powers to the Ministry of Home Affairs (MOHA) to regulate all aspects of religious life. Officially, it requires religious groups to seek prior MOHA approval for almost anything they wish to do, such as establishing congregations in new districts, modifying existing structures, constructing new worship facilities, and organising religious meetings. Even more invasive is the requirement that, at least once a year, religious groups submit to the MOHA their plans for all scheduled activities. Moreover, under Article 7, religious entities must submit the names of their leaders to both central and local MOHA offices for their “study, consideration, and approval,” as well as secure MOHA approval to operate in multiple provinces.[6] In addition, Article 5 (2) of Decree No. 315 gives the government comprehensive powers to supervise a religious organisation’s internal governance and doctrine since it is up to MOHA officials to determine whether religious groups are “consistent with the heart of the religion, its religious precepts, and its religious teachings”.[7]
Overall, Decree No. 315 gives the MOHA blanket permission “to restrict religious activities that they perceive to be at odds with local customs, national policies, national stability, the environment, or unity between religious and ethnic groups”.[8]
The Laotian government recognises four religious groups: Buddhists, Christians, Muslims, and Bahá'ís. Among Christian groups, the authorities have granted administrative recognition only to the Catholic Church, the Lao Evangelical Church, and the Seventh-day Adventist Church.[9]
Religious affiliation in Laos tends to follow ethnic lines. Approximately 54 percent of the population is ethnically Lao, the majority being Theravada Buddhists.[10] Buddhist cultural influence is such that, in practice, Buddhist monks and pagodas are not subject to the same restrictions as members and places of worship of other religions. The ruling Lao People’s Revolutionary Party has sought to coopt Buddhism to legitimise its power.[11] At the national level, the Sangharaja, the Supreme Patriarch of Buddhism in Laos, maintains intimate ties with the country’s political leaders.[12]
Christian communities, who make up less than two percent of the population, face the most serious challenges. The victimisation of evangelical Christian house churches occurs mostly in remote villages.[13] Conversion to Christianity can provoke hostile reactions from other Laotians, who label Christians as “guilty of betraying the Buddhist traditions of their community”.[14]
Given the ongoing vulnerability of Protestants to persecution, an encouraging contribution to the country’s legal framework is the central government’s enactment of the Law on the Evangelical Church on 19 December 2019. The law formally gives Evangelical Christians the right to conduct worship services, preach throughout the country, and maintain relationships and communications with fellow Christians outside Laos. Yet, in spite of the law, a local Christian commented that “the police always side with village authorities and other villagers too, so we have nowhere else to turn for help.”[15]
The Catholic community in Laos, though small and also facing numerous challenges, remains vibrant and dedicated despite the country’s predominantly Buddhist culture and communist regime. Catholics in Laos number around 60,000, and operate within a restrictive environment where missionaries are not allowed to stay permanently, and local vocations are crucial for sustaining the Church. Although the 1991 Constitution recognises religious freedom and acknowledges several religions, including Christianity, in practice this freedom is limited and often undermined by local officials and Buddhist villagers who view Christianity as foreign. Nevertheless, the Catholic Church in Laos has seen gradual improvements in its relationship with the government since its official recognition in 1979. While the Church’s activities are significantly restricted in the north, they are more robust in urban centres and the southern provinces. The limited number of priests and bishops, alongside ongoing discrimination, highlights the persistent difficulties faced by Catholics but also their resilience and commitment to fostering their faith in challenging circumstances.[16]
Incidents and developments
During the period under review, several attacks were carried out against Christian communities.
In 2023, the number of attacks on churches surged to 25, compared to just four the previous year, and 65 Christians were imprisoned, up from 18 in 2022. This trend continued into 2024, with reports of severe repression, including the destruction of church buildings and forced displacement of Christian communities.[17]
In early 2023, Christians faced severe persecution in northwest Laos, exemplified by the expulsion of 15 Christian families and their pastor from Mai, a village in Luang Namtha Province, by local ethnic Ahka. Authorities often exacerbate the situation, as seen in Luang Prabang, where officials confiscated Christian families’ documents and failed to resolve cases of violence against Christians, such as the torture and murder of an Evangelical pastor in Khammouane Province.[18]
In September 2023, local authorities in Khampou, a village in Assaphone District, Savannakhet Province, disrupted a house church service led by Pastor Sard Onmeunsee, attended by 17 Christians. The deputy village chief and security officials ordered the congregation to cease worship activities, threatening them with arrest and substantial fines if they continued.[19] A few days earlier, in Salavan Province, a Christian family of seven was forcibly expelled from Tabong village after refusing to renounce their faith. Their home was demolished, and the family members were subsequently detained by local authorities.[20]
On 4 October 2023, local authorities in Sa Mouay District, in coordination with village officials, forcibly expelled Lao families – approximately 60 individuals – from their homes due to their conversion to Christianity. The officials justified their actions by claiming that adopting Christianity violated the prevailing religious customs of the village, which are rooted in animism and traditional spirit worship. According to the authorities, those who abandon these traditional beliefs for Christianity forfeit their right to reside in the village and retain their property.[21]
In February 2024, a house church in Kaleum Vangke, Savannakhet Province, was violently attacked by village leaders and residents during a Sunday service. The assailants, including local authorities, destroyed the place of worship and burnt religious materials.[22] Earlier in the month, Radio Free Asia reported that villagers had allegedly “summoned six Christian families and asked them to stop practicing their faith and specifically ordered them to stop holding Sunday services”.
In June 2024, local authorities in the village of Tahae, Xaibouathong District, Khammouane Province, arrested a pastor and five other Christians while they were gathered for prayer in preparation for Sunday worship. The detained church leader, identified as Pastor Mum, and the other individuals were taken into custody by village officials. According to Sirikoon Prasertsee, director of Human Rights Watcher for Lao Religious Freedom (HRWLRF), the arrests occurred at the pastor’s residence, and the detainees were taken to Xaibouathong District prison.[23] The six were released six weeks later.[24]
On 2 July 2024, village chiefs and residents attacked a house church in Kaleum Vangke, Xonboury district (Savannakhet province). The faithful of the government-recognised Lao Evangelical Church were meeting for Sunday service at around 10:30 am when the mob attacked destroying bibles and torching the home. “The authorities, including the village chief, village security guards and senior members of the village attacked us suddenly and destroyed our place of worship,” explained an unnamed eyewitness. [25] Another witness stated that the previous month “prominent villagers summoned six local Christian families and told them to stop practising their religion, specifically, to stop holding Sunday services; otherwise, they would tear down their building”.[26]
On 22 July 2024, Thongkham Philavanh, a 40-year-old Christian pastor – a member of the Khmu ethnic group, most of whom live in northern Laos – was assassinated by two masked assailants. Philavanh was shot at his home in Vanghay, a village in Xai Province. The motives behind the attack remain unknown.[27]
Prospects for freedom of religion
Religious freedom in Laos is restricted, especially for Christians. Despite constitutional guarantees, repeated incidents during the reporting period reflect a broader pattern of Christian persecution, including attacks on churches, forced evictions, and arrests, primarily in rural areas. Overall, meaningful protection and respect for religious freedom is lacking, highlighting a need for legal and societal reforms. The outlook for religious freedom remains negative.
Laos