The Ukrainian government’s policy in the sphere of religion in 2014-2021

Ключові слова: релігія, державне управління, релігійні організації, державна політика, міжконфесійні відносини.

Introduction

As a public institution, the church enjoys the essential trust among the Ukrainian population. The church has held this kind of leadership of popular trust for many years in a row, playing its role not only as an institution that meets the religious needs of believers but also as part of the civil society of Ukraine. In this regard, today's state religious policy should develop the state-church partnership to ensure the right to freedom of conscience and religion, promote interfaith relations, and prevent religious conflicts. The changes that have taken place in recent years in the religious sphere of Ukraine have required researchers to pay more attention to the study of the interfaith situation in the country and to make proposals for improving the mechanisms of public management of religious relations.

The analysis of the religious situation in Ukraine is the subject of research by many scholars, among whom are the works of V. Lutsenko (2016, 2017), V. Haniak (2017), V. Tytarenko and L. Filipovych (2019, 2020), M. Vasin (2021) and others. The authors of the article aimed to describe the changes that have taken place in the legal framework and institutional mechanism of state religious policy, the peculiarities of involvement of non-governmental organizations in public policy in the religious sphere, and the current state of religious relations in Ukraine.

Legal framework and institutional mechanisms of public administration in the religious sphere

Ukrainian researcher V. Lutsenko notes that the sphere of religion as a sphere of public life is a particular object of public policy because it is associated only with the practical aspects of religious relations, religious activities, and the creation of religious organizations (Lutsenko, 2017: 102). She has identified three main components in characterizing the model of public policy in the sphere field of religion: theoretical and ideological basis, legal framework, organizational and managerial structures (Lutsenko, 2016: 104).

The basis of Ukrainian legislation in the sphere of religion is the Constitution of Ukraine (Article 35) and the Law of Ukraine «On Freedom of Conscience and Religious Organizations» of April 23, 1991. These documents define the following fundamental rights and guarantees: the right to the world view and religious freedom, which includes «the freedom to profess any religion or not to profess any, to freely or individually or collectively perform religious cults and rituals, to conduct religious activities» (Constitution, 1996); the possibility of restricting this right by law only in the interests of public order's protection, health and morals of the population or security of the rights and freedoms of others people; equality of citizens regardless of their attitude to religion; equality of all religious organizations before the law; separation of church and religious organizations in Ukraine from the state; separation of a school from church; the impossibility of recognizing any religion in the state as required; replacement of military service by alternative (non-military) service if the execution contradicts the religious beliefs of the citizen.

The Law of Ukraine «On Freedom of Conscience and Religious Organizations» (1991) is regulated: the status of religious organizations in Ukraine (Section II); property status of religious organizations (Section III); the rights of religious organizations and citizens related to religious freedom (Section IV); labor activity in religious organizations and their enterprises (Section IV); regulation of relations between public agencies and religious organizations (Section V).

The modern legal framework in the sphere of religion concerns such issues as the introduction of military chaplaincy, organization of alternative service during the mobilization period, organization of pastoral care in penitentiary institutions, the initiative to simplify the religious organizations' registration, reform of religious education (recognition of documents on higher spiritual education, scientific degrees, and titles, permission to establish preschool, vocational and higher educational institutions), the introduction of a single legal mechanism governing peaceful public events, regulation of the order of change by a religious community of its subordination to one or another religious center, amendments to the tax code, regulation of the using ID-cards, photographing documents of religious organizations' representatives, amendments to the criminal code, etc. (Tytarenko & Fylypovych, 2019: 50).

The institutional mechanism of public administration for the implementation of the right to the world view and religious freedom, according to Article 29 of the Law of Ukraine «On Freedom of Conscience and Religious Organizations» (1991), includes central executive authority, which ensures the formation and implementation of state policy in the sphere of religion, other prominent executive bodies, prosecutor's offices, local executive bodies, and local self-government bodies.

From 2014 to 2021, there were significant changes in the institutional mechanism due to changing the central executive authority, which realizes state policy in the sphere of religion and ensures the implementation of state policy on religions and the church. In 2011 the Department for Religions and Nationalities was established within the structure of the Ministry of Culture of Ukraine. The Order of the Ministry of Culture of Ukraine, dated November 2, 2016, was adopted as a Statute that defined the Department's structure, tasks and functions, rights, and management. During the period of activity of the Department for Religions and Nationalities, headed by A. Yurash, many essential measures were taken: the activity of the Expert Council on Freedom of Conscience and the activity of religious organizations was resumed; interdepartmental Commissions on minimization of actual inter-confessional conflict and issues of observance of the legislation in the field of freedom of conscience were established; fifteen meetings, gatherings, meetings, etc. were held with the heads of all regional structures responsible for the implementation of policies regarding religious organizations and ethnonational communities; a significant amount of international meetings have been initiated; participated in the development of new laws and regulations, etc. (Galinfo, 2020).

On June 12, 2019, the State Service for Ethnic Policy and Freedom of Conscience (DESS) was established as a central executive authority, and the relevant Department terminated its powers. This decision was preceded by consultations between the Government and the Ukrainian Council of Churches and Religious Organizations. According to the legislation, the activities of the new central executive body are directed and coordinated by the Cabinet of Ministers of Ukraine through the Minister of Culture and Information Policy (MKIP).

DESS implements the state policy in the sphere of interethnic relations, religion, and protection of the rights of national minorities in Ukraine and submits to the MKIP proposals to form state policy in this area. In the field of religion, its functions are as follows: state control over compliance with legislation on freedom of conscience and religious organizations; participation in the development of projects of state target programs; study and analysis of problems of social processes development in the sphere of freedom of conscience and religion; interaction with central and local executive bodies and local self-government bodies; establishing contacts and coordination relations with the relevant authorities of foreign countries; ensuring the conduct of religious examination of the religious organizations' statutes with the participation of their representatives, representatives of scientific institutions, religious scholars and other specialists; registration of statutes of religious centers, administrations, monasteries, religious fraternities, missionary societies (missions) and spiritual (religious) educational institutions, as well as religious organizations as legal entities; collection and analysis of statistical information about the amount and type of religious organizations in Ukraine, religious buildings, structures and other property; official approval of the issue of the possibility of preaching or other canonical activities, the religious rites' performance; promoting the strengthening of mutual understanding between interreligious different religions organizations, their participation in international forums, business contacts with international religious centers and foreign religious organizations; taking measures within the competence to prevent manifestations of interreligious and interfaith conflicts and hostility; monitoring the activities of religious organizations, etc. (On approval of the Statute, 2019).

At present, only the central office of DESS operates, but regional offices should be established to implement state policy in the regions. Today the head of DESS is O. Bohdan. The activities of the new state body in 2020 to implement state policy in the sphere of religion included the following areas: ensuring dialogue with religious communities to identify problems and develop solutions in the freedom of conscience sphere; promoting interreligious and interfaith dialogue; providing registration services to religious organizations.

Analyzing the DESS report for 2020, we can highlight the following results of its activities in the religious sphere:

• prepared and submitted to the MKIP remarks and recommendations on the draft Law of Ukraine «On Military Chaplaincy in the Armed Forces of Ukraine» (Reg. № 4148 of 23.09.2020) and its discussion with authoritative military chaplains of churches who sent a significant amount of chaplains to the Armed Forces (including the Ukrainian Orthodox Church, the Ukrainian Greek Catholic Church and the All-Ukrainian Union of the Churches of Evangelical Christians-Baptists);

• meetings were organized with the Ukrainian Council of Churches and Religious Organizations (UCCRO) and with the Ukrainian Council of Religious Associations (UCRA), as well as a series of bilateral meetings (with the participation of 1-4 representatives of a particular religious community) to identify current issues and wishes toward DESS activity and state policy in the freedom of conscience sphere;

• the work of the Expert Council on Freedom of Conscience, which is an expert advisory body for consideration and study of problematic issues related to the formation and implementation of state policy in the field of state-confessional relations and ensuring freedom of conscience, has begun;

• MKIP and DESS, together with the leaders of the largest Christian Churches, have taken a common position on preserving public health, ensuring the right to freedom of conscience, and socially essential activities of religious organizations in the context of an exacerbation of the pandemic;

• carried out work to create interactive sites and the organization of interreligious and interfaith projects (in particular, in June 2020, DESS initiated a project to create a New Library of Sophia-Wisdom);

• a series of interfaith online seminars, «Sources of Wisdom and Unity in Diversity», was launched, the media partner of which is the Religious Information Service of Ukraine (RISU);

• took part in the organization and holding on August 26, 2020, a meeting with the participation of diplomats and representatives of several departments on the situation with the Crimean Diocese of the Ukrainian Orthodox Church (UOC);

• the DESS acts as a co-organizer of various projects (webinar «Sergei Crimean and cultural strategies», online discussion «Moral inflation of the day», XX International Theological Conference «Assumption readings», etc.);

• participation in the Expert Discussion «Religious Issues: Religious Freedom and Occupied Territories», organized by the Analytical Center of the Ukrainian Catholic University (offline and online formats), and in the international event of the World Council of Churches «Ecumenical Bilateral Dialogues: Yesterday and Today» (Report, 2021).

By its Statute, the DESS has begun to accept documents for registration of statutes of religious centers, administrations, monasteries, religious fraternities, missionary societies (missions), and spiritual (religious) educational institutions, as well as registration of religious organizations as legal entities following the Laws of Ukraine «On State Registration of Legal Entities, Individual Entrepreneurs and Public Associations» and «On Freedom of Conscience and Religious Organizations». The Ministry of Digital Information of Ukraine submitted proposals for the introduction in 2021 of a single national electronic system of canonical activities, which provides advanced search functions to analyze available information. It proposed to begin work on creating an electronic system with personal accounts for consideration and approval of statutes of religious organizations and changes to them. In cooperation with the Ministry of Digital Information of Ukraine, an analysis of the possibilities of reengineering the services provided by DESS and the need for appropriate changes to the current legislation of Ukraine has been launched.

Other authorities and local self-government play an essential role in the institutional mechanism of public administration of the religious sphere. As of 2019, eight consultative and advisory associations under the highest state authorities are working in Ukraine: Commission for Ensuring the Realization of the Religious Organizations' Rights under the Cabinet of Ministers of Ukraine; Public Council for Cooperation with Churches and Religious Organizations under the Ministry of Education and Science of Ukraine; Council for Pastoral Care at the Ministry of Defense of Ukraine; Public Council for Cooperation with the Ukrainian Council of Churches and Religious Organizations under the Ministry of Foreign Affairs of Ukraine; Public Council for Cooperation with the Ukrainian Council of Churches and Religious Organizations under the Ministry of Health of Ukraine; Pastoral Council of Religious Guardianship in the Penitentiary System; Commission on Religious Affairs of the Public Council at the Ministry of Culture of Ukraine; Expert Council in the field of freedom of conscience and religious organizations at the Ministry of Culture of Ukraine (Tytarenko & Fylypovych, 2019: 49). For example, the goals of the Public Council for Cooperation with Churches and Religious Organizations are creating adequate organizational and legal conditions for citizens to exercise the constitutional right to participate in public affairs, ensuring openness of the Ministry of Education and Science of Ukraine, taking into account public opinion in the preparation and implementation of its decisions, promoting complete freedom of conscience harmonization of state-confessional relations in the field of education, maintaining a constant dialogue with Churches and religious organizations, more effective use of their potential in the educational process.

The role of non-governmental organizations in establishing a state-public partnership in the religious sphere

In addition to public authorities, non-governmental organizations, the effectiveness of which affects the development of civil society in Ukraine, are of great importance in the system of public administration. The Ukrainian Council of Churches and Religious Organizations (UCCRO), the Ukrainian Council of Religious Associations (UCRA), and the Institute for Religious Freedom (IRF) have played a leading role in the religious sphere. Interfaith associations, whose activities are tangible in public policy, also include the following: All- Ukrainian Convocation; Meeting of representatives of Christian churches of Ukraine; Council of Evangelical Protestant Churches of Ukraine; Council of Muslim organizations.

UCCRO is an interfaith institution that works to unite the efforts of religions in the spiritual revival of Ukraine, coordinate interchurch dialogue both in Ukraine and abroad, and participate in the development of draft regulations on state-confessional relations and the implementation of comprehensive charitable events. In 2019, the UCCRO consisted of 16 churches and religious organizations and one interchurch organization, including Orthodox, Greek, Roman Catholic, Protestant, Evangelical churches, and Jewish and Muslim religious associations (UCCRO, 2021). The organization represents more than 90% of all religious organizations in Ukraine. The main tasks of the UCCRO are discussion of topical issues of religious life and preparation of mutually agreed proposals to improve the current legislation on freedom of conscience and religious organizations, uniting the efforts of religious organizations in charitable activities, promoting interfaith mutual understanding and harmony, intensification of the participation of religious organizations in the spiritual revival of Ukraine, strengthening the humanistic foundations of society, organization and holding of conferences, seminars, meetings, etc. on spirituality, application and observance of the legislation on freedom of conscience and religious organizations, promoting comprehensive coverage of religious life in Ukraine by the media (UCCRO, 2014). On November 22, 2017, the Strategy «Ukraine is our common home» for the participation of churches and religious organizations in the peacebuilding process was adopted (UCCRO, 2017). The strategy defines three main rules concerning those around us: «Hear each other! Understand each other! Act together!». The UCCRO actively participates in the country's public life, responding to public challenges with public statements, peacekeeping, and other events. A clear example of this is the role of the UCCRO in protecting the rights of citizens to peaceful protest during EuroMaidan. The Council of Churches pays special attention to the need to establish justice in society, ensure freedom of religion and other fundamental human rights, protect public morals, fight corruption, provide proper social protection for vulnerable and low-income groups, and hold fair and transparent elections.

The Ukrainian Council of Religious Associations (UCRA), established on January 26, 2017, is a representative interfaith advisory body that operates voluntarily. The founders of the Council were the Ukrainian Apostolic Orthodox Church, the Spiritual Administration of Muslims of Ukraine «Umma», the Spiritual Assembly of the Baha'i Faith, the Association of Progressive Judaism of Ukraine, the Association of Sons and Daughters of the Native National Ukrainian Faith, Krishna Consciousness Community Center in Ukraine, Ukrainian Association of Religious Studies. The format of the Council envisages wider involvement of all religious organizations registered in Ukraine to participate in the country's public life, as well as in the processes of changes in Ukrainian legislation in the field of freedom of conscience, organization of religious organizations' international cooperation. The UCRA is also designed to eliminate the current skew in the development of state-church relations when the format of work of most state ministries and departments with religious organizations is limited to cooperation with members of the UCCRO. According to the Statute, the Council was formed to unite the efforts of religious organizations in the process of Ukrainian national and spiritual revival, conducting and coordinating interfaith dialogue both in Ukraine and abroad, participation in the development of draft laws and other regulations on state-church relations and tolerance of interreligious life, implementation of collective charitable activities, etc. (UCRA, 2017).

The Institute for Religious Freedom (IRF) is a human rights non-governmental organization founded in 2001. The IRF has a non-profit status, operates through voluntary donations and cooperation agreements with other organizations, operates on a non-confessional and nonpartisanship basis. The organization's goals are to protect and promote religious freedom and other human rights, promote interfaith dialogue and cooperation, develop state-church interaction, and strengthen democratic principles and civil society in Ukraine. To achieve these goals, the IRS works in the following areas: independently monitors the religious situation in Ukraine, including in the temporarily occupied territories of Crimea and Donbas; prepares analytical materials and recommendations for churches and religious organizations, for representatives of national and local authorities; develops draft laws and participates in the legislative process; carries out advocacy activities in Ukraine and at the international level (IRF, 2021). The Institute for Religious Freedom is a member of the international human rights coalition Partnership for Religious Freedom.

The religious situation in Ukraine and problematic issues in the state religious policy

In general, the religious situation in Ukraine shows that everyone, regardless of religion, has the freedom to practice their religion or belief. Nowadays, the number of registered denominations exceeds 98, from as many as Orthodoxy to individual communities, such as Taoists or Buddhists. Such statistics are more than ten times higher than in the Soviet past, and the amount of religious organizations in Ukraine has almost tripled since its independence (Tytarenko & Fylypovych, 2019: 51). Sporadic violations of the right to freedom of conscience and religion often have a regional character and do not constitute a national policy of the Government. At the same time, the religious situation in the territories of the Autonomous Republic of Crimea and certain districts of the Donetsk and Luhansk regions occupied due to the Russian aggression is different from the situation of believers religious communities in the rest of Ukraine.

According to sociological agencies, from 2000 to 2016, the number of believers in Ukraine increased significantly - from 57.8% to 70.4%. In 2016, 64.7% of Ukrainians had considered themselves Orthodox. The largest amount of Orthodox Christians (39.5%) has identified themselves with the UOC-Kyiv Patriarchate. The second largest group (25.4%) has considered themselves «simply Orthodox», 23.3% have identified themselves with the UOC-Moscow Patriarchate, and another 4.8% of Orthodox - faithful to the UAOC, and 1.3% - directly have identified with the Russian Orthodox Church. Of all respondents, 8.2% have considered Greek Catholics, 1.2% Protestants, and 0.8% Roman Catholics. At the same time, 12.7% of respondents have identified themselves as «just Christians» (Vasin, 2017). Tensions between inter-Orthodox relations related to property disputes during the change of jurisdiction of Orthodox communities, in particular during the transition of parishes from the jurisdiction of Moscow to the Kyiv Patriarchate, remained noticeable during 2016. In general, such conflict situations accounted for less than 1% of the total number of Orthodox communities registered in Ukraine. Still, the tendency for participants in these disputes to express contempt and a public insult to their opponents is increasingly negative.

A significant legal achievement was the Constitutional Court of Ukraine Act (September 8, 2016) on the unconstitutionality of requirements for obtaining permits from local authorities to hold public religious and other peaceful events. In particular, the Court has declared unconstitutional Article 21 § 5 of the Law of Ukraine «On Freedom of Conscience and Religious Organizations», which required believers and religious organizations to obtain permission from local authorities to hold peaceful assemblies ten days before the desired date. Moreover, the Court has expanded the scope of consideration of the constitutional petition and declared unconstitutional also the Act of the Presidium of the Supreme Soviet of the USSR of 28.07.1988 № 9306 «On the organization and conduct of meetings, rallies, street marches and demonstrations in the USSR», which, not surprisingly, this time had been used by some local officials and even judges to restrict the rights of civil society activists. As a result, the Constitutional Court has interpreted Article 39 of the Constitution and has clearly stated that in a democratic state, there can be no discrimination against believers in the exercise of their right to peaceful assembly. In its decision, the Court has noted that the Constitution of Ukraine «obliged the Government to create a single legal mechanism governing the holding by citizens, public or religious organizations, other subjects of law of peaceful public assemblies of religious and non-religious nature» (Constitutional Court, 2016). The Court emphasized that according to Article 39 of the Constitution of Ukraine, the only requirement for holding peaceful public assemblies, both religious and non-religious, was their peaceful nature and the prior notification of the executive or local authorities.

The main event of recent times was the Unification Council on December 15, 2018, where the UOC-KP and the UAOC established the Ukrainian Orthodox Church (UOC) and elected its Primate - Metropolitan Epiphanius. The church received from the Ecumenical Patriarchate Tomos on autocephaly. However, in May 2019, the Honorary Patriarch of the UOC Filaret withdrew his signature on the decision to establish the UOC and announced the restoration of the UOC-KP. However, it was deregistered and removed from the Unified State Register of Legal Entities. These events disoriented many believers in their church identification. It was most evident in the second half of 2019, namely in the first months after the statement of Patriarch Filaret. According to a survey conducted by the Razumkov Center as of January 2020, Ukrainian citizens most often have considered themselves members of the Orthodox Church of Ukraine (34%). 13.8% have called themselves faithful to the Ukrainian Orthodox Church (Moscow Patriarchate), 8.2% to the Ukrainian Greek Catholic Church, 0.7% to the Protestant and Evangelical Churches, 0.4% to the Roman Catholic Church, and 0.6% - to other religions and denominations. A significant number of respondents (27.6%) have stated that they have considered themselves Orthodox Christian but do not belong to any church. 8.8% have not identified themselves with any of the denominations, and another 5.6% have identified themselves as non-believers (Razumkov Center, 2020).

After the cathedral, the transition process of communities of the UOC-Moscow Patriarchate to the UOC has been beginning. More than 500 communities have announced their transition in the first fifteen months. The largest parishes that joined the UOC were in the Volyn region (121 communities), the second-largest in the Vynnytsia region (86 communities). The highest percentage of transitions was recorded in the Lviv region (46.3%). According to the Religious Information Service of Ukraine, as of February 2020, 539 parish communities and two cathedrals have announced their transition from the UOC-MP to the UOC (Borovska et al., 2020).

Legislative changes have contributed to this process. On January 17, 2019, the Law of Ukraine «On Amendments to Certain Laws of Ukraine Concerning the Subordination of Religious Organizations and the Procedure for State Registration of Religious Organizations with Legal Entity» (2019) was adopted, which defined a precise mechanism for exercising the constitutional right of religious organizations religious centers (administrations) operating in Ukraine and abroad. This change of jurisdiction complies with both international regulations and the legislation of Ukraine and is based on the provisions of Part 1 of Article 3 and Parts 3 to 8 of Article 8 of the Law of Ukraine «On Freedom of Conscience and Religious Organizations». According to the law, the decision to change the subordination of a religious community and make appropriate changes or additions to the Statute is made at the general meeting of this community. To ensure the realization of the rights of the religious community, as well as to prevent provocations and destabilize the situation, representatives of the religious community may be invited to participate in the general meeting, may be representatives of local governments, executive authorities, or law enforcement agencies.

According to the Report on the Network of Religious Organizations in Ukraine, as of January 1, 2021, 37,049 religious organizations operate in Ukraine. Orthodox religious organizations include 53.6% of the total, 19.4% - of the Ukrainian Orthodox Church, 33.5% - of the UOC- Moscow Patriarchate, 7% - of other Orthodox communities. Religious organizations of other denominations are represented as follows: Catholic - 14.3%, Protestant - 29.1%, Islamic - 0.8%, Jewish - 0.9%, Buddhist - 0.2%, other religious denominations - 1.1% (Report on the Network, 2021).

A severe challenge for religious communities was the coronavirus pandemic, which affected Ukraine and forced the Government to impose a quarantine regime of varying severity. Churches and religious organizations in Ukraine, in general, were sympathetic to this and urged the faithful to adhere to the introduced recommendations and restrictions. The results of a study by the Razumkov Center showed that during the severe quarantine in March-May, the majority (68%) of respondents did not attend church or prayer house (from 61% of residents of the West to 77% - of South and East); another 26% - reduced the frequency of visits, and only 7% - did not pay attention to quarantine (from 11% of the faithful of the UOC-MP to 3% - the UGCC) (Razumkov Center, 2020: 8).

Ukrainian researchers V. Tytarenko and L. Filipovych, characterizing the religious situation in Ukraine, have identified external and internal risks that may contribute to its deterioration. Among the external ones are Russia's aggression against Ukraine, the case of hybrid warfare at various levels and in various forms, Moscow's opposition to the Ecumenical Patriarchate's initiatives not only in establishing the independent Orthodox Church of Ukraine but also in its strategic desire to «reformat» world Orthodoxy according to their imperial interests, features of the confessional map of Ukraine, which are manifested in its Orthodox dominance, the spread of anti-Ukrainian secular and religious ideologies and theories, the presence of other competing religious centers, interest and time of interference in religious affairs of political centers. The internal groups include the problems of the UOC, which are related to the law 4128-d of 16.01.2019 on the possibility of changing the subordination of religious organizations and the difficulties of its implementation on the locals; conservatism and paternalism of a large mass of believers oriented to Russia; the inertia of the Ukrainian Orthodox environment in the ability to reorient to a new paradigm of «open Orthodoxy»; the silent resistance of Ukrainian Greek Catholics; the commitment of most Protestant churches to the concept of Eurasianism; the vagueness of the position of Jewish associations regarding the independence of Ukraine in defending its national and state interests; the lack of a unanimous approach of the Muslim administrations of Ukraine, except for the «UMMA», to the Russian aggression and occupation of part of the territories in eastern Ukraine and the annexation of Crimea, etc. (Tytarenko & Fylypovych, 202: 58-60).

religion policy interfaith administration

Conclusions

Current state religious policy is based on observance principles and guarantees the right to freedom of thought and religion, ensuring interfaith dialogue and state-public partnership in resolving religious issues. Changes in the regulatory framework and the emergence of new government agencies indicate a desire to find the optimal model of religious processes' management. At the same time, several issues remain unresolved, which could harm interfaith relations and contribute to religious conflicts. That is why the state bodies and religious organizations should define a clear strategy for further harmonizing interfaith ties and work out concrete steps for its implementation. The lack of such a strategy today is a factor that does not ensure the practical policy of the Ukrainian Government in resolving many religious issues.

References

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