COMBATING RELIGIOUS 

DISCRIMINATION TODAY: 

FINAL REPORT

U.S. Department of Justice

July 2016

Justice.Gov/Combating_Religious_Discrimination
2

Dear Colleagues and Community Leaders:

One of our nation’s fundamental principles is that all people – regardless of where they worship 

or what they believe – are entitled to equal protection and fair treatment under the law. This 

longstanding embrace of religious pluralism and respect for diversity has made our country a beacon of 

hope and a place of refuge for people from all across the globe. 

Sadly, we have not always lived up to these lofty ideals. And even today, far too many people in 

this country face discrimination, harassment, and violence simply because of their religious beliefs. The 

Federal government is committed to eradicating the scourge of discrimination and bigotry in all of its 

forms. That is why in December 2015, I was privileged to announce that the Department of Justice’s 

Civil Rights Division, in collaboration with our outstanding U.S. Attorney and Federal agency partners,

would be launching “Combating Religious Discrimination Today,” a community engagement initiative 

designed to promote religious freedom, challenge religious discrimination, and enhance our efforts to 

combat religion-based hate violence and crimes. Over the last several months, I have joined my 

colleagues from across the Federal government as we traveled around the country, engaging in a series of 

roundtables with diverse religious leaders, civil rights organizations, and community members. We used 

these discussions to hear from a wide range of stakeholders, so we can better understand the barriers of 

religious discrimination and the challenges to religious freedom they face in their communities. We also 

solicited their specific recommendations about how the Federal government can best address these 

barriers and challenges. The roundtables produced a rich, productive, and informative dialogue about 

some of the defining civil rights issues of our time.

I want to acknowledge and thank the many religious leaders and community partners who gave 

their valuable time to participate in this initiative, often traveling great distances, and who shared their 

ideas and experiences with great thoughtfulness and introspection. I especially thank those Roundtable 

Participants who prepared and submitted information that helped focus the discussion and volunteered 

to guide the conversation during the roundtables. Your contributions were invaluable in allowing us to 

gain a deeper understanding about the challenges we face and the solutions we need to fulfill our 

country’s founding ideals of inclusivity, equality, and opportunity for all. I also want to recognize my 

colleagues across the Federal government who invested so much time and energy into this project, 

especially the Departments of Education, Labor, and Homeland Security; the Equal Employment 

Opportunity Commission; and within the Department of Justice, the Federal Bureau of Investigation, 

the Community Relations Service, and the U.S. Attorneys’ Offices. In addition, I want to thank the 

White House, and particularly the Office of Faith-based and Neighborhood Partnerships and the 

Initiative on Asian Americans and Pacific Islanders, for their assistance and leadership in this effort. 

Your partnership in this and so many other efforts is vital in our work to protect the civil rights of all 

who live in America. 

This entire initiative has been premised on the notion that we in the Federal government need to 

ensure we are hearing from impacted communities. And to that end, this report is not focused on 

representing the views of the Department of Justice or any of the other agencies that participated in the 

roundtables. Rather, it provides an overview of what we heard and learned at the roundtables, detailing 

the challenges identified, themes highlighted, and recommendations proposed. As you will see, on some

topics we heard wide agreement. On others we heard a range of different perspectives. Either way, we 
3

tried to capture the essence and key points from the Participants about the issues facing their 

communities. 

We hope that memorializing these ideas and recommendations will facilitate consideration and 

implementation of action items on the part of the Federal government and non-governmental 

organizations. We also hope to continue to encourage meaningful dialogue among diverse communities, 

religious groups, and the Federal government. Through dialogue, collaboration, and conversation lies 

our greatest ability to better understand the differences among us and to create the safe, inclusive, and 

vibrant communities that we all aspire to build.

I hope you find this report useful and informative as we work together in our shared mission to 

better understand the differences among us, as well as the common hopes, aspirations, and concerns we 

share.

Sincerely,

Vanita Gupta

Principal Deputy Assistant Attorney General

Civil Rights Division, U.S. Department of Justice
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Dear Colleagues:

As President Obama has said, “From many faiths and diverse beliefs, Americans are united by 

the ideals we cherish. Our shared values define who we are as a people and what we stand for as a 

Nation.” This Administration celebrates the commitment of the United States to religious freedom, 

non-discrimination, and religious pluralism, and is dedicated to upholding those principles and values. 

As part of that work, we invited governmental and civil society leaders to the White House in 

December 2015 to discuss opportunities and challenges in this area. At that time, U.S. Department of 

Justice Civil Rights Division’s Principal Deputy Assistant Attorney General, Vanita Gupta, announced 

that roundtables would be held across the country to explore the state of religious freedom and gather 

recommendations about how the Federal government can address these issues. 

This report memorializes those discussions, and it is an honor to be able to release it at another 

White House gathering today. We want to thank all of the religious and community leaders who 

contributed to the report. We also want to thank the Department of Justice’s Civil Rights Division for 

its leadership of this project as well as the U.S. Attorneys and Federal agency partners who contributed. 

President Obama said during his recent visit to a Baltimore mosque:

If we’re serious about freedom of religion . . . we have to understand an attack 

on one faith is an attack on all our faiths. And when any religious group is 

targeted, we all have a responsibility to speak up. And we have to reject a 

politics that seeks to manipulate prejudice or bias, and targets people because of 

religion.

[N]one of us can be silent. We can’t be bystanders to bigotry. And together, 

we’ve got to show that America truly protects all faiths. 

In collaboration with the dedicated religious and other civil society leaders as well as our 

governmental partners, we look forward to continuing to show that America truly protects all faiths. 

Sincerely,

 

Melissa Rogers 

Special Assistant to the President and Executive Director

White House Office of Faith-based and Neighborhood Partnerships
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TABLE OF CONTENTS

I. Introduction ..........................................................................................................................6

A. Our Nation’s History of Religious Pluralism and Diversity .............................................................6

B. Current Challenges to Religious Diversity in America.......................................................................6

C. Overview of Combating Religious Discrimination Today ................................................................8

II. Common Themes and Recommendations .......................................................................12

A. Education ...............................................................................................................................................12

B. Employment...........................................................................................................................................17

C. Hate Crimes............................................................................................................................................20

D. Religious Land Use ...............................................................................................................................23

III. Conclusion .......................................................................................................................26

IV. Appendix A: Additional Materials, Contact Information, and Resources.......................27

V. Appendix B: Roundtable Participants ...............................................................................34
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I. Introduction

A. Our Nation’s History of Religious Pluralism and Diversity

For centuries, America has stood throughout the world as a beacon of religious diversity and 

pluralism. People of many faiths, creeds, and backgrounds have arrived on our shores in search of 

protection, freedom, and opportunity. The framers of the Constitution ensured that there shall be no 

religious test for public office, and they placed religious freedom as the first right listed in the First 

Amendment of the Bill of Rights, with its dual protections ensuring that the government shall not take 

sides in religious matters, and that free religious exercise would be protected. The centrality of these

beliefs to the foundation of this country can be seen in the Virginia Statute on Religious Freedom, which 

was drafted by Thomas Jefferson and served as the precursor for the First Amendment’s Establishment 

and Free Exercise Clauses. Enacted in 1786, it provided that “no man shall be compelled to frequent or 

support any religious worship, place, or ministry,” nor “suffer on account of his religious opinions or 

belief.” As President Obama has remarked: “The Virginia Statute was more than a law. It was a 

statement of principle, declaring freedom of religion as the natural right of all humanity – not a privilege 

for any government to give or take away.”

The United States has long been religiously diverse – from the multiplicity of Christian sects and 

other faiths in its early days, to an incredibly rich diversity of faiths today. Throughout our history, 

religious dissenters and minorities have found protection in our laws and institutions, from Quaker 

conscientious objectors during the Civil War to Jehovah’s Witnesses refusing to recite the pledge of 

allegiance in school during World War II, among many others. However, as with other foundational 

rights, our country has not always lived up to the promise of religious freedom and equal treatment for 

all. Roman Catholics and Mormons in the 19th century, Jews in the 19th and 20th centuries, and many 

others have experienced discrimination – and even at times persecution – throughout our history. In 

light of this, Congress has enacted a number of laws that prohibit religion-based discrimination. For 

example, several provisions of the landmark Civil Rights Act of 1964 contain explicit protections for 

religion, including Title II (public accommodations), Title III (public facilities), Title IV (education), and 

Title VII (employment). Likewise, the Fair Housing Act of 1968 forbids discrimination based on 

religion. More recent statutes include the Religious Land Use and Institutionalized Persons Act, which 

prohibits local governments from adopting or enforcing land use regulations that discriminate against 

religious assemblies and institutions, or which unjustifiably burden religious exercise. This law also 

protects the religious exercise of persons confined to certain institutions. There are also a number of 

Federal statutes that criminalize acts of violence based on religion or directed towards houses of 

worship, including the Matthew Shepard and James Byrd, Jr. Hate Crimes Prevention Act of 2009.

1 

These federal laws have been, and continue to be, enforced by a range of Federal agencies.

B. Current Challenges to Religious Diversity in America

Today, here in the 21st century, our country is more religiously diverse than ever before. A 

recent survey from the Pew Research Center reported that roughly 70.6 percent of the country’s 

population identifies as Christian; 22.8 percent as unaffiliated with a religion; 1.9 percent as Jewish; 0.9 

percent as Muslim; 0.7 percent as Buddhist; 0.7 percent as Hindu; 1.5 percent as observant of other 

 

1 For more information about these laws, please refer to Appendix A.
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faiths; and 0.3 percent as observant of another world religion. Given current demographic trends, it is 

likely that our nation will only continue to become increasingly diverse in the upcoming years.

This rich pluralism, while a source of pride and inspiration, also brings its own set of challenges. 

A constant theme throughout our discussions in this initiative was that members of less familiar or 

populous religious communities recounted being regularly confronted by misperceptions and false 

stereotypes about their faith traditions. Many communities noted that the lack of understanding about 

the diversity of religious practice in this country often leads to discrimination, harassment, and violence. 

There was widespread agreement that there is a need for the public to gain greater knowledge about 

these faith traditions and also to recognize that belief systems that may seem less familiar within the 

context of the historical American religious experience deserve respect and equal treatment. There was 

also discussion about how the growing diversity of values and beliefs – which includes the significant 

segment of the population that does not readily identify with any particular religious tradition or 

professes no faith – requires additional public discussion about how the term “religion” is defined and 

the ways in which these populations can experience discrimination and mistreatment.

Another theme that emerged during the initiative was the backlash of violence and harassment 

that Muslims, as well as individuals perceived to be Muslim, including Sikhs, Hindus, Arabs, Middle 

Easterners, and South Asians, continue to face. Since the attacks of September 11, 2001, this country 

has witnessed waves of unjustified discrimination and violence directed towards these communities. 

Following recent horrific terrorist attacks over the past year – both at home and abroad – such actions 

have only increased in intensity and frequency. Communities reported an uptick in attacks and threats 

against mosques, gurdwaras, and other houses of worship, as well as acts of bullying, harassment, and 

violence against children and adults who are – or are perceived to be – Muslim. We also heard 

repeatedly that these acts are deeply distressing not only because of the harm they inflict on the impacted 

individuals and communities, but also because discrimination that targets one religious or faith 

community harms us all. There was uniform consensus that such acts violate the defining values of our 

country and tear at the very core of what makes America such a strong, powerful, and free nation: the 

diversity of our people and our dedication to the core principles of liberty and equality. 

Even beyond the experience of these particular communities, many others highlighted that 

despite the existence of a number of statutes that prohibit religious discrimination, there remain 

significant gaps between the protections of our laws and the experiences of people in their daily lives. 

Communities recounted how many people are confronted with discrimination and harassment and do 

not know where to turn for support or assistance. There was agreement that the Federal government 

needs to enhance its outreach, improve its communications, and streamline its bureaucracy. By making 

government more accessible and approachable, we can ensure that all people receive the full protections 

embedded in our laws. Particularly in an ever-evolving climate of new technology, today the Federal 

government has opportunities to engage with diverse communities through a variety of media, from 

more traditional forms of communication, to the use of the Internet and social media.

Finally, during this initiative we heard from a diverse array of community members that there are 

ongoing concerns about the ways in which some communities feel that their religious freedoms are being 

challenged or curtailed. There was also an acknowledgement that in regards to the Religious Freedom 

Restoration Act – which was enacted by Congress in 1993 as a measure to protect the rights of religious 

individuals and communities that may be burdened by government activity – further conversations may 
8

be needed to ensure the actions of the Federal government do not unnecessarily impede religious 

exercise and expression.

C. Overview of Combating Religious Discrimination Today

In December 2015, the White House hosted a convening entitled “Celebrating and Protecting 

America’s Tradition of Religious Pluralism.” That event highlighted our nation’s rich religious diversity, 

but also acknowledged ongoing challenges that people of different religious faiths continue to face. 

During that convening, Vanita Gupta, head of the Justice Department’s Civil Rights Division, 

announced that in the upcoming months the Justice Department would partner with other Federal

agencies to host a series of community roundtable discussions, aiming to “better understand how the 

scourge of religious discrimination continues to undermine opportunity.” A few months later, the 

Justice Department officially launched “Combating Religious Discrimination Today,” an interagency 

community engagement initiative designed to promote religious freedom, challenge religious 

discrimination, and enhance enforcement of religion-based hate crimes. 

From March to June 2016, the Civil Rights Division, in partnership with U.S. Attorneys and 

other Federal agencies, hosted seven community roundtables across the country that focused on 

protecting people and places of worship from religion-based hate crimes (Dallas, Texas); combating 

religious discrimination, including bullying, in education (Stanford, California and Newark, New Jersey) 

and employment (Birmingham, Alabama); and addressing unlawful barriers that interfere with the 

construction of places of worship (Detroit, Michigan). Each of these issue topics is not only a domain

where Federal agencies have jurisdiction to address religion-based discrimination, but also represents an 

area where many religious leaders and community members have raised specific concerns in recent 

months. Additionally, the Civil Rights Division held two roundtables in Washington, D.C., which 

brought together national advocacy and religious organizations to review themes and proposals from the 

discussions in order to use what we learned to improve upon existing government resources and efforts 

in these areas.

2 

 

2 For more information about the roundtables and the organizations that attended them, please refer to Appendix B.
9

Government officials and community members discussed issues related to religious discrimination in employment at a roundtable 

held in Birmingham, Alabama, on April 20, 2016.

Agencies that participated in the roundtables include the Departments of Education, Homeland 

Security (DHS), and Labor (DOL); the Equal Employment Opportunity Commission (EEOC); the 

White House Initiative on Asian Americans and Pacific Islanders; the White House Office of Faithbased and Neighborhood Partnerships; and within the Justice Department, the Civil Rights Division, 

Federal Bureau of Investigation (FBI), Office of Justice Programs, Executive Office for U.S. Attorneys,

and Community Relations Service. 
10

Roundtable Location Date Topic Agency Co-Sponsors and Participants 

Newark, NJ March 8, 2016 Education

U.S. Attorney’s Office for the District of New Jersey; White 

House Initiative on Asian Americans and Pacific Islanders; 

Department of Education; Community Relations Service; 

Civil Rights Division

Dallas, TX March 29, 2016 Hate Crimes

U.S. Attorney’s Office for the Northern District of Texas; 

U.S. Attorney’s Office for the District of Kansas; 

Department of Homeland Security; Federal Bureau of 

Investigation; Community Relations Service; Civil Rights 

Division

Birmingham, AL April 20, 2016 Employment

U.S. Attorney’s Office for the Northern District of Alabama; 

Department of Labor; Equal Employment Opportunity 

Commission; Civil Rights Division

Detroit, MI May 2, 2016 Religious Land 

Use

U.S. Attorney’s Office for the Eastern District of Michigan; 

Community Relations Service; Civil Rights Division

Stanford, CA May 16, 2016 Education

U.S. Attorney’s Office for the Northern District of 

California; U.S. Attorney’s Office for the Eastern District of 

California; U.S. Attorney’s Office for the Southern District of 

California; U.S. Attorney’s Office for the Central District of 

California; U.S. Attorney’s Office for the District of Idaho; 

Department of Education; White House Initiative on Asian 

Americans and Pacific Islanders; Civil Rights Division

Washington, D.C. May 26, 2016 National Issue 

Review

Department of Labor; Department of Education; Equal 

Employment Opportunity Commission; Federal Bureau of 

Investigation; White House Office of Faith-based and 

Neighborhood Partnerships; Civil Rights Division

Washington, D.C. June 20, 2016 Defining 

Religion and 

Religious 

Discrimination

Department of Homeland Security; Department of Labor; 

Department of Education; Equal Employment Opportunity 

Commission; Civil Rights Division
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In advance of each roundtable discussion, Federal government officials invited a diverse group 

of religious leaders, community members, civil rights advocates, academics, students, and others to share 

their views about common themes regarding religious discrimination and to propose specific 

recommendations that the Federal government can implement to more effectively address these issues. 

For each roundtable, Participants were invited to submit discussion topics that were used to shape the 

agenda. Following the discussions, we asked Participants to continue to share any additional suggestions 

and recommendations about how the Federal government can enhance and improve its efforts to 

combat religious discrimination, harassment, and violence across an array of areas. A full list of 

organizations and participants at each roundtable is detailed later in this report. They include 

representatives from a range of communities and perspectives, including, among others, Jewish, 

Christian, Muslim, Hindu, Sikh, South-Asian, Arab, and non-religious communities. 

The roundtables yielded a rich discussion about the state of religious freedom, religious 

discrimination, and religion-based hate crimes in the United States. The roundtables also generated 

many proposals for actions that Participants believe the Federal government – and community groups 

working together – should implement to further the protection of the vital principles of religious 

pluralism, diversity, and freedom. We have sought throughout this report to capture faithfully the 

observations, ideas, and recommendations of the Participants. The inclusion of these in this report does 

not reflect – nor should it be read – as problems confirmed or recommendations supported by any of 

the Federal government participants. 
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II. Common Themes and Recommendations

A. Education

Federal laws, including Title IV of the Civil Rights Act of 1964 (Title IV), prohibit religious 

discrimination in educational institutions. Yet despite these protections, students of all ages and grade

levels too often find themselves bullied or harassed because of their religious beliefs. Roundtable

Participants, while recognizing limitations on teaching about religion or religious practices in schools, 

also regularly returned to the theme of making sure that our nation’s students learn about – and develop 

an understanding of – diverse religious communities. Participants repeatedly emphasized the need for 

additional guidance, more robust outreach, and enhanced communication about Federal government 

resources around all of these issues.

Themes, Trends, and Problems:

Increase in Religion-Based Bullying and Harassment: Roundtable Participants reported a 

noticeable uptick in cases of bullying and harassment against religious communities and students. A 

number of Participants specifically highlighted an increase in bullying against Muslim, Sikh, Hindu, Arab, 

Middle Eastern, and South Asian students, as well as students perceived to be members of these 

communities. Participants attributed this rise to backlash stemming from recent terrorist attacks, as well 

as a result of an increase in anti-Muslim rhetoric in the United States. Participants also referenced 

studies about the impact of bullying on Sikh and Hindu communities. A number of Participants 

observed that other communities – including various Jewish and Christian communities – also remain at 

risk of religion-based bullying and harassment. Bullying and harassment of nonreligious students and 

religion-based discrimination against lesbian, gay, bisexual, or transgender students were also identified as 

concerns by Participants. While recognizing these serious and growing concerns about religion-based 

bullying and harassment, some Participants also emphasized the need to distinguish between unlawful 

conduct and the expression of less “popular” or less “traditional” religious viewpoints. Roundtable 

Participants also applauded the Department of Education’s decision to require school districts to report 

allegations of bullying and harassment based on religion as part of the 2015–2016 Civil Rights Data 

Collection. This data will help illustrate trends in bullying and harassment based on religion in our 

nation’s schools.

Need to Create an Environment Where All Students, Regardless of Their Faith Background, Are 

Treated as Persons of Equal Worth Who are Entitled to Mutual Respect: Roundtable Participants 

stressed that students whose faith is a minority in a particular school, as well as students with no religious 

affiliation, often are marginalized or misunderstood. Participants emphasized that schools, religious 

communities, and state and Federal agencies need to be intentional about creating a culture that is 

respectful of all persons and honors our nation’s long commitment to religious diversity and freedom. 

Other Participants noted that students are reluctant to report bullying and harassment by other students 

for fear of drawing more attention to themselves.

Addressing the Role that Parents May Play in Contributing to Religious Intolerance in Schools: 

Roundtable Participants acknowledged that for many students, their views about other religious 

communities originate from parents at home or from other influences outside of the school building. 

Participants observed that rather than receiving information about religious pluralism and the need to 
13

respect all faith traditions, too often young people see parents and other community members 

condoning discriminatory actions and behavior. 

Addressing the Role the Teachers May Play in Contributing to or Otherwise Perpetuating 

Student Harassment: While Roundtable Participants recognized the important role that teachers play 

in supporting diverse and inclusive classroom environments, several Participants expressed concern 

about some teachers’ actions, inaction, or other behavior toward students with respect to harassment 

based on religion. For example, some Participants stated that teachers who promoted one or more 

religions as being superior could foster an environment in which harassment of students based on their 

religion or perceived religion was deemed acceptable. Similarly, some Participants explained that while 

teachers may not explicitly encourage bullying, they may allow a classroom environment to develop 

where bullying is viewed as acceptable behavior by not addressing it or challenging stereotypes that are 

raised towards students of particular religious backgrounds.

Educators’ Lack of Awareness or Knowledge About Civil Rights Protections: Despite 

longstanding protections prohibiting religious discrimination in Title IV and other similar Federal laws, 

Roundtable Participants commented that many educators do not fully understand how these legal 

protections translate into specific requirements, practices, and policies in the classroom. As a result, 

many parents and students are unaware, or not fully aware, of their rights to be educated in an 

environment free from religion-based discrimination and harassment. Participants also observed that for 

English Learner students and their families, language barriers often exacerbate this problem. Participants 

noted that the distribution of Federal guidance, such as “Dear Colleague Letters,” to administrators –

rather than to everyone in the school community – can serve as a barrier to addressing this issue. 

Roadblocks to Teaching Students about Religion in K-12 Classrooms: There was widespread 

agreement among Roundtable Participants that effectively combating religious discrimination in 

educational settings will require all students to develop a deeper understanding about, and respect for,

different religions and religious practices. Yet Participants recognized that discussions of religion in the 

classroom raise many difficult issues. When done right, teaching students about religion can increase 

understanding and reduce bullying and harassment, but inaccurate and stereotypical treatment of certain 

faiths can lead to greater bullying and harassment. Participants also discussed the need for educators to 

respect First Amendment concerns. Participants noted related issues, such as how to incorporate 

teaching students about religion into the curriculum; how to train teachers in this area; the need to 

encourage parental buy-in and address concerns that teaching students about religion will lead to 

proselytizing; how to make space for students of minority religions to feel comfortable talking about 

their faiths if they choose without drafting them unwillingly to speak on behalf of their faith group, as 

sometimes happens; and the benefits and risks of having guest speakers, such as representatives of 

religious communities, speaking to students. Some Participants suggested that the most effective 

approach may involve striking a balance between making education about religion current, accurate, and 

reflective of diversity within religious traditions without “watering down” the content so much that it 

offers little instructive and educational value to students. Participants highlighted that there are existing 

resources that could be useful in this effort.

Access to Reasonable Religious Accommodation: Roundtable Participants stressed the need for 

ensuring that students have access to reasonable religious accommodations. Participants discussed the 

importance of individualized accommodations for religious beliefs, such as excusal from school for 

religious holidays, religious clothing exceptions to school dress codes, and accommodation for prayer 
14

during the school day. There was also a recognition that religious accommodations can sometimes raise 

difficult issues, such as where a particular accommodation may impact the rights of other students, or 

where accommodations may conflict with curricular goals (e.g., situations where a student may seek to 

opt-out of a course or part of a course due to religious objections). In light of these and other 

challenging issues, some Participants opined that additional guidance may be useful. 

Challenges Regarding Religious Diversity in Colleges and Universities: Roundtable Participants

recognized that there are unique challenges when it comes to addressing issues of religious intolerance in 

the higher education context. Some Participants noted that while colleges and universities should strive 

for civil debate on religious and religion-related policy issues, care should be taken not to use the desire 

for civility to stifle robust debate and minority viewpoints. Somewhat similarly, some Participants 

expressed concern about student religious organizations not being allowed to choose club leaders using 

religious criteria. These Participants explained that even where religious student organizations welcome 

any student to join as a member, it is critical that they have the ability to ensure that leaders of the clubs 

are members of their particular faith tradition. Others, however, expressed the view that it may not be 

appropriate to allow a student organization to limit leadership on religious grounds in situations where 

the organization receives public funding.

Recommendations:

 Provide Updated Guidance on How Schools Can Teach Students about Religion: 

Roundtable Participants recommended that the Federal government provide additional guidance 

about how educators can incorporate information about religion into the curriculum and 

classroom discussions in a manner that is accurate, effective, and consistent with constitutional 

requirements. Participants suggested that substantive instruction for students about the 

pantheon of religions and religious traditions, in addition to instruction on religious freedom and 

inclusion, would be very beneficial for students. Participants also highlighted that the Federal

government should recognize the need to specifically address such guidance to teachers, not only 

to administrators. Some Participants suggested that the Federal government consider updating

and redistributing the guidance, issued in 1995, by the Federal government on Religion in Public 

School. (Related guidance was issued by the Department of Education in 2003).

 Provide Training to Address Bullying and Harassment: Roundtable Participants noted that 

specialized training around bullying and harassment is also critical to effectively combating 

religious discrimination in our schools. Participants noted that both the Federal government and 

local school districts need to do more to provide parents with tools, resources, and guidance 

about how to identify signs of bullying at home and how to lead productive discussions with 

children about whom to report it to, how to respond, and what to do next. Participants also 

noted that teachers need training to recognize signs of bullying in the classroom, as well as 

resources to address bullying and harassment that occur through social media or online. 

 Promote Education and Implement Relevant Training: In addition to receiving education 

about different religions, Participants uniformly expressed the view that students, teachers, and 

school administrators should also learn about broader lessons of religious freedom, respect for 

differences, and inclusivity. One Participant recommended that this could be pursued by 

explicitly tying religious freedom to civic education and educational programs about the 

Constitution. Another discussed that an effective tool is to have a student of a particular faith 
15

from a different school come in and talk about his or her experience with religious inclusion. 

Others suggested various peer mentoring and peer mediation programs. Some Participants

recommended that teachers and administrators encourage students to develop student-led 

initiatives to foster unity and a positive school climate on campus. By engaging on these issues 

at the front end – as well as by providing students with mediation and conflict resolution training 

– teachers can ensure that students develop respectful attitudes of other religions to prevent 

bullying and harassment, and know the response strategies to use when it occurs, Participants 

said. 

 Revise Stopbullying.gov: Roundtable Participants noted that Stopbullying.gov, a Federal 

website devoted to providing information about identifying and addressing bullying, is a useful 

resource but recommended that additional changes be made to improve the effectiveness of the 

portal. For example, the website contains information about training and guidance, but 

Participants highlighted that it could be updated to include additional information about 

resources and programs underway at state and local levels. Along these lines, some Participants 

also suggested that information contained in the “Resources” section of Stopbullying.gov be 

improved and streamlined. 

 Improve Communication to Ensure All Stakeholders Know Their Rights and are Aware 

of Existing Resources: Roundtable Participants stressed the need to make sure community 

members are aware of existing programs and resources. For example, some Participants 

suggested that when the Federal government issues guidance documents, such as “Dear 

Colleague Letters,” there should be follow up to gauge whether the guidance is effectively 

reaching communities at the local level, or whether providing technical assistance to schools may 

be beneficial. Participants also recommended that the Federal government explore different 

platforms to communicate information, including the use of social media and video, and find 

new methods of distributing training and guidance so that it is more likely to reach students, 

parents, and teachers. 

 Increase Training for Relevant Stakeholders: Rather than simply punishing or criticizing 

students for holding certain negative stereotypes about different religions, Roundtable 

Participants suggested that stakeholders, including the Federal government, take steps to better

understand the underlying biases that shape those stereotypical views and beliefs. As one 

Participant commented, “Let’s take out the finger-pointing and recognize we all need to work on 

this.” Several Participants thought increased cultural competency training for educators is 

critical and expressed interest in finding ways for Federal government regional offices to partner 

with community organizations to develop train-the-trainer programs. Others suggested that 

mental health professionals need to be involved in these efforts to address the emotional and 

mental toll that religious-based bullying and harassment has on students.

 Federal Guidance on Title VI of the Civil Rights Act of 1964 and Religion: Roundtable 

Participants noted that there still remains confusion about when the prohibition on 

discrimination based on race, color, or national origin in Title VI of the Civil Rights Act of 1964

(Title VI), which pertains to discrimination in Federally-funded programs or activities, may be 

implicated in situations where there is religious discrimination that is closely tied to race, color, 

or national origin. Participants expressed an interest in ensuring that Title VI is consistently 

enforced across the country in this area. Participants asked for guidance from the Federal 
16

government about how Title VI may apply in situations involving religious discrimination in 

schools. 

 Recognize Implicit Bias and Misunderstandings about Religion: Roundtable Participants 

mentioned that a lack of understanding, information, and knowledge about diverse religious 

communities can lead to hurtful, divisive comments and even unintentional discrimination. In 

addition, Participants observed that there is value in recognizing that we all hold implicit biases, 

prejudices, and stereotypes, but we can work together to identify these biases, and ensure that we 

do not act on them or allow such biases to impact our behavior. Participants recommended that 

the Federal government consider ways to ensure that teachers and others who work in our 

nation’s schools are educated about the role that implicit biases may play in perpetuating 

religious discrimination.
17

B. Employment

Title VII of the Civil Rights Act of 1964 (Title VII), which prohibits religious discrimination in 

employment, is one of the most well-known civil rights protections in our country. Yet, Roundtable 

Participants highlighted that both employers and employees often lack information about the protections 

and obligations Federal law provides related to faith-based protections in the workplace. Participants

also expressed both concern and frustration regarding the time it takes to resolve claims of religious 

discrimination. By addressing these issues, collecting more robust data, and leading new outreach 

efforts, Participants observed that the Federal government has an opportunity to make significant strides 

in ensuring that all workplaces remain free from unlawful religious discrimination.

Themes, Trends, and Problems:

Discrimination During the Job Application Process: Roundtable Participants expressed concerns 

that during the pre-employment and job application period, issues related to physical appearance, 

including religious-related dress, often prevent members of religious communities from receiving a fair 

and non-biased evaluation. One Participant, citing a common fear of women who wear headscarves and 

other similar religious coverings, said “the scarf enters the room before I do.” Other Participants noted 

the problem of discrimination faced by individuals with names that are, or are perceived to be, associated 

with a particular religion, including names perceived to be “Muslim.”

Discrimination and Harassment on the Job: Roundtable Participants noted that individuals from 

less familiar religious communities, particularly those that are – or are perceived to be – Muslim, 

experience higher levels of religious discrimination and harassment once hired. Other Participants 

observed that in a number of workplaces it is common for employers to engage in activities, such as allstaff prayers or religious-themed holiday programs, which can lead nonreligious employees and 

employees of different religions to feel unwelcomed. 

Lack of Awareness about Anti-Discrimination Protections: Roundtable Participants reported a lack 

of awareness by both employers and employees about existing protections under Federal law that 

prohibit discrimination on the basis of religion in the workplace. Participants noted that some 

employees – knowing that employers do not allow time for prayer during the workday – choose not to 

apply for a given job altogether. Employees often do not know about the strict time limits for filing 

employment discrimination complaints under Title VII and other applicable laws.

Failure to Provide Religious Accommodations: Roundtable Participants expressed concern that 

many employers do not know about their obligation under Federal law to provide reasonable 

accommodations based on religion in the workplace, such as accommodating work schedules or dress 

codes. Participants noted that while most employers train staff on accommodations under other Federal

civil rights laws, similar training for religious accommodation under Title VII is frequently absent. 

Participants also noted that the increase in online job applications, which often automatically screen out 

applicants who indicate that they are not available certain days without the ability to explain that this is 

for religious purposes, present a barrier to reasonable accommodation. 

Underreporting of Religion-Based Employment Discrimination: Roundtable Participants raised 

concerns that there is underreporting of religious discrimination in employment settings. As noted 

above, a number of Participants stated that many employees lack awareness about how to report 
18

complaints of religious discrimination. In addition, employees who do suffer and endure discrimination 

on the job may face pressure – often manifested in implicit and subtle ways – to refrain from 

complaining or speaking out. Participants commented that employees may fear retaliation from their 

supervisors and may feel reluctant to cause trouble or raise concerns with their employer.

Length of Time to Resolve Employment Discrimination Charges: Several Roundtable Participants 

said that the lengthy period of time it often takes the EEOC to resolve charges of discrimination can 

contribute to a sense of discouragement among those who believe they have suffered religion-based 

discrimination in the workplace. Participants also noted that the lengthy investigation process leads to 

confusion about what individuals should do in the meantime. What does the delay mean? Should they 

return to the job? Should they begin looking for a new job? Participants reported that these types of

delays only further perpetuate the concern that the Federal government remains inaccessible as 

employees look for quick responses when they face employment discrimination.

Culture and Accessibility of Government Agencies: Roundtable Participants described a challenge 

regarding the accessibility of government, saying that it would be beneficial for their communities to 

have mechanisms for engaging with complicated Federal agencies and offices. They noted that,

particularly in the employment context, the lack of clear information and awareness over what 

constitutes discrimination serves as a significant barrier to equal and inclusive workplaces. 

Recommendations:

 Improving Education and Awareness for Employees: Roundtable Participants 

recommended that the Federal government do more to ensure that the public knows how to 

meaningfully respond to religion-based workplace discrimination. The need for greater clarity 

for the public about both employee rights and employer responsibilities was the topic of 

discussion by multiple Participants. Participants further noted that outreach to employees and 

employers alike could include providing additional information about deadlines for filing charges 

of discrimination with the appropriate government agencies, including the EEOC; ensuring that 

posters in the workplace notifying employees about their rights are more prominently displayed; 

and connecting with employees through a variety of media platforms, including alternative 

language newspapers and social media. Some Participants noted that public service 

announcements may also provide a valuable vehicle and tool to reach employees.

 Improving Education and Awareness for Employers: Roundtable Participants stressed that 

many employers are not fully aware of what they are required to do in order to fully comply with 

the prohibition against religious discrimination in Title VII. Participants recommended that the 

Federal government provide targeted efforts and training to employers about their 

responsibilities. One Participant suggested that the EEOC review instances in which employers 

have resolved cases through the conciliation process as a mechanism for identifying common 

employer misconceptions about the law and how other employers could be better informed. 

Some Participants suggested that the EEOC provide employers with additional materials to 

ensure that they fully understand their obligation to comply with existing non-discrimination and 

civil rights laws.

 Greater Outreach to Impacted Communities: Roundtable Participants recommended that 

the Federal government use regional offices and outreach staff to strengthen ties to community 
19

organizations at the local level. Participants identified regional offices of the EEOC as well as 

U.S. Attorneys’ Offices across the country as locations where such points of contact for 

community outreach could be based. Participants also suggested that Federal agencies have 

regular lines of communications with faith leaders, including by relying on measures such as 

periodic meetings or newsletters.

 The Federal Government Should Lead by Example in Religious Accommodations: 

When it comes to religious accommodations, Roundtable Participants suggested that the Federal

government should lead by example. To highlight this recommendation, some Participants 

noted the legal disputes with the Federal government about whether observant Sikhs can serve 

in the U.S. military while showing outward expressions of their faith, such as wearing a turban 

and growing out a beard. Other Participants noted that the Federal government should make it 

easier for Federal employees to file religious discrimination charges. Participants highlighted 

prior Federal guidelines that were issued about religion and the Federal workplace as a useful 

tool.

 Improve Data Collection: Participants said greater attention and focus need to be placed on 

data collection about religious discrimination in employment, and on accurately identifying 

discrimination against particular faiths as well as against people who identify as nonreligious. 

While Participants acknowledged that some forms of discrimination – such as refusing to hire an 

applicant because she wore a headscarf – might be harder to track, they suggested the Federal 

government prioritize improving data collection while also working with employers and 

community members to address problems of underreporting.

 Improve Processing Times for Complaints: Roundtable Participants observed that many 

individuals who face religious discrimination in the workplace are unwilling to file charges of 

discrimination with the EEOC in light of the often lengthy investigation process. To that end, 

Participants recommended that the EEOC expedite its process for reviewing discrimination 

complaints and provide employees with useful resources so the process is as transparent as 

possible. 

 Autonomy of Religious Institutions: Roundtable Participants called for greater discussion –

both among the public and within Federal agencies – of the principle of autonomy that is

reflected in the Title VII statutory exemption, which permits, in specified situations, certain 

religious organizations to preference the employment of members of their own religion. A 

number of Participants stressed the need to balance this principle of autonomy with the rights of 

others against nondiscrimination.
20

C. Hate Crimes

The fundamental principle that no one should suffer violence simply because of what they 

believe has led Congress to enact a number of laws that criminalize threats and acts of violence directed 

towards individuals because of their faith or at houses of worship, including 18 U.S.C. § 247 (Damage to 

Religious Property) and 18 U.S.C. § 249 (Matthew Shepard and James Byrd, Jr. Hate Crimes Prevention 

Act of 2009). Unfortunately, too many people in this country continue to suffer harassment and 

violence because of their faith. Roundtable Participants stressed how Muslim individuals and 

communities, and those perceived to be Muslim, are facing a backlash of violence and discrimination 

following recent terrorist attacks in the United States and abroad. Similarly, many highlighted that 

houses of worship, including mosques and gurdwaras, are seeing an uptick in attacks. Many 

communities are concerned that they lack the resources and support they need to keep their congregants 

safe. Several Participants called for the Federal government to enhance its data collection practices, 

improve outreach to targeted communities, and address some of the root causes of discrimination by 

facilitating interfaith collaboration and dialogue.

Themes, Trends, and Problems:

Data Collection: Several Roundtable Participants expressed concern, confusion, and frustration over 

the lack of clear, consistent, and accessible data to track hate crime reporting and prosecutions. For 

example, Participants cited a wide disparity between the FBI’s Uniform Crime Reporting Hate Crime 

Statistics (in which law enforcement agencies reported 5,479 hate crime incidents involving 6,418 

offenses in 2014) and the Bureau of Justice Statistics National Crime Victimization Survey polling-based 

data (which in 2013 reported an estimated annual average, from 2007 to 2011, of 259,700 nonfatal 

violent and property hate crime victimizations against persons age 12 or older residing in U.S. 

households). The disparity among government sources – when combined with different sets of statistics 

that are regularly reported in the news media – further exacerbates the problem, Participants said. While 

Participants acknowledged valid reasons for the gap between these numbers, they stated that it would be 

useful to have greater clarity as to why the numbers differ so significantly. Participants also emphasized 

that truly accurate data requires a combination of both improved reporting from communities and 

enhanced training of law enforcement to properly identify and label incidents as hate crimes. 

Backlash against Muslims and Individuals Perceived to be Muslim: Roundtable Participants 

expressed concern that hate violence towards Muslims, as well as individuals who may be perceived to be 

Muslim, including Sikhs, Hindus, Arabs, Middle Easterners, and South Asians – which has occurred at 

elevated levels since the terrorist attacks of September 11, 2001 – has only increased in intensity given 

the terrorist attacks over the past year. One Participant noted that her organization has been tracking 

these incidents and recorded dozes of threats, violence, and acts of vandalism in the last several months 

alone. Participants expressed concern in particular about a climate in the media, social media, and 

society more generally that is contributing to higher levels of bias crimes against these groups.

Underreporting of Religion-Based Hate Crimes: Roundtable Participants repeatedly highlighted that 

many communities lack information about what constitutes a hate crime under Federal law and generally

lack awareness about how to define or report hate-related violent incidents. Participants stated that 

many individuals not familiar with the intricacies of hate crime laws do not understand the distinction 

between constitutionally-protected hate speech and criminal activity, as defined by state and Federal 

statutes. Additionally, language or cultural barriers may hinder effective outreach efforts to some 
21

individuals and communities. This is intertwined with concerns regarding underreporting: according to 

Participants, a lack of awareness can easily lead to individuals failing to register complaints with law 

enforcement officials. 

Violence and Criminal Threats Targeting Places of Worship: Another major area of concern 

identified by many Roundtable Participants involved an uptick in threats and attacks against houses of 

worship and religiously-affiliated institutions. When it comes to protecting houses of worship, one 

Participant who is a pastor explained, often religious leaders and public safety officials may encounter 

conflicting goals. Religious leaders, on one hand, strive to invite people in – to create an inclusive, 

welcoming environment. Law enforcement officials, on the other hand, may be inclined to focus on 

regulating access to specific locations for safety concerns. Moreover, some Participants noted that 

smaller communities and houses of worship often lack the resources, guidance, and instruction necessary 

to adequately deal with public safety threats. Many Participants also agreed that often houses of worship 

do not have established relationships and connections with local law enforcement.

Recommendations:

 Improve Online Information: To address confusion about hate crime reporting and data 

collection, what constitutes a hate crime under Federal law, and who to contact in the aftermath 

of a threat or attack, Roundtable Participants recommended that the Federal government update 

and revise current online resources in order to make the information more accessible to the 

public. A number of Participants also suggested that the Federal government consider creating a 

centralized resource page, similar to Stopbullying.gov, that could include all the relevant 

information related to combating religion-based hate violence. 

 Need for More Robust Data Collection: Roundtable Participants suggested that Federal law 

enforcement agencies improve their data collection around hate crime offenses, including 

information about both victims and perpetrators of hate crimes. Participants observed that this 

additional information would allow impacted communities and the Federal government to better 

understand whether there are trends in terms of who is being victimized by hate violence and 

who is committing hate crimes. Participants noted that this additional data could also be helpful 

in allowing communities to determine whether there is more they can do to help address 

systemic causes of hate violence. 

 Enhance Awareness about Federal Resources for Protecting Places of Worship: 

Roundtable Participants recommended Federal agencies provide additional information about 

resources available to protect places of worship. Participants recognized that the Federal

government already provides an array of resources to help communities protect places of 

worship; however, they stated that there need to be stronger efforts to promote and share this 

information. Several Participants suggested that enhanced outreach to religious congregations 

about when and how to apply for government grants related to safety and security would also be 

helpful. 

 Increase Communication about Prosecutions: Roundtable Participants recommended that 

the Department of Justice enhance its communications efforts following hate crime 

prosecutions, including by more visibly highlighting convictions through press releases and other 

public announcements. 
22

 Increase Bias Training and Education: In addition to improving training about hate crimes, 

a number of Roundtable Participants also suggested that the Federal government do more to 

address systemic issues around discrimination that may contribute to hate violence. Participants 

requested that the Federal government lead educational efforts that seek to address bias against 

religious minorities, including cultural competency and education in constitutional values 

regarding the free exercise of religion. Some Participants noted that religious organizations can 

serve as useful partners and allies for the Federal government in these efforts since religious 

leaders can help teach community members about the values of respect and inclusivity and use 

interfaith collaboration as a powerful vehicle. 

 Strengthening Relationships with Law Enforcement: To most effectively address and 

prevent hate violence that targets houses of worship, Roundtable Participants observed that faith 

leaders need to have direct lines of communication with law enforcement. These Participants 

noted that beyond calling 911 in the event of an emergency, houses of worship need connections 

with public safety officials who know their community, recognize the unique challenges they 

face, and understand the layout of their facilities and the nature of their congregations. The 

process can simply begin by inviting local law enforcement officials to houses of worship, 

walking these officials through the facility, and giving them personal knowledge about the 

community. Participants also suggested that regional Federal agencies, such as U.S. Attorneys’ 

Offices, could be useful in facilitating these relationships.

 Facilitating Interfaith Dialogue and Communication: Roundtable Participants 

recommended that the Federal government play a role in helping to facilitate interfaith alliances

and similar relationships between diverse religious communities. For example, some Participants 

noted that U.S. Attorneys’ Offices and other regional Federal offices could sponsor interfaith 

coalitions or host regular community forums where diverse religious leaders have the 

opportunity to interact and coordinate around combating issues associated with religion-based 

hate violence. Many Participants noted that the roundtable they attended was one of the first 

times they had all been in the same room with a diverse cross-section of religious leaders. They

observed that, if different religious communities had a way to work together, religious leaders 

could more effectively send a message that denounces religion-based hate and impact the culture 

in a positive way. Religion-based hate violence, they explained, could cease to be strictly seen as 

impacting certain communities, but instead could be opposed by a unified group representing 

multiple religious affiliations and highlighted as unacceptable conduct. Participants added that 

religious leaders should explore efforts that lead to greater interaction of people of different 

faiths, such as “pulpit swaps” and “head/heart/hands” projects, which include learning about a 

different faith, developing friendships, and working side-by-side on service projects.
23

D. Religious Land Use

The Religious Land Use and Institutionalized Persons Act of 2000 (RLUIPA) includes 

provisions protecting individuals, houses of worship, and other religious institutions from discrimination 

in zoning and land marking laws. Roundtable Participants noted ongoing concerns from municipal 

officials about the construction of places of worship and observed how houses of worship – particularly 

those from less familiar religious traditions – often face unlawful barriers in the zoning and building 

process. Participants, including lawyers who litigate religious land use cases, discussed how many 

municipalities simply do not know enough about RLUIPA, lacking awareness about both its provisions 

and how the statute must be interpreted when it conflicts with local or state laws.

Themes, Trends, and Problems:

Shifting Tone of Discrimination: Roundtable Participants – including lawyers, advocates, and 

community members – repeatedly emphasized that while religious congregations continue to face 

rampant discrimination in the zoning and building processes, the discrimination has become less overt in 

recent years. As one Participant stated, “the playbook is being re-written.” He recalled a conversation 

with a pastor who said: “They used to come at me and say we don’t want more Christians. Now they 

come at me, and say well, you’ve got building code issues and traffic [problems].” Religious leaders from 

other faith backgrounds also highlighted this development. One Participant explained that those 

opposing the construction of houses of worship have become more organized, more subtle, and more 

“strategic” in their protests. As another Participant recalled, “People don’t come into hearings now and 

say ‘I hate Muslims.’ They say, ‘the traffic is going to be terrible on [Fridays].’” Some have even 

distributed literature about how to raise traffic, noise, and congestion concerns. This stems in part, 

according to some Participants, from previous attempts to use hostile and racist opposition backfiring, 

leading many municipalities to vote in favor of mosques and Islamic institutions in land use decisions. 

Despite these changes in tone, Participants stressed that discrimination against houses of worship and 

religious congregations remains a serious and growing problem.

Municipalities Prioritizing Revenue Collection over Support of Places of Worship: Roundtable 

Participants pointed out that many municipalities may oppose the construction of houses of worship not 

out of animus or discrimination, but because they want to attract and incentivize revenue-generating 

entities, rather than tax-exempt nonprofits. Similarly, one Participant explained, religious land use just 

simply is not viewed as a critical part of the discussion about zoning and municipal planning. 

Referencing his communication with municipal officials, the Participant explained, “I’ve looked at 40 

comprehensive plans. Nobody is sitting out there and saying, ‘You know what’s really important in our 

community, the religious land use needs.’” However, Participants noted that even in these situations 

where local leaders do not necessarily harbor animus towards houses of worship, the net result is the 

same: religious congregations are faced with unfair and unjust land use restrictions.

Lack of Education and Awareness about RLUIPA: Several Roundtable Participants mentioned how 

municipal officials lack information about RLUIPA, and even those with a passing familiarity with the 

law view it as a litigation risk rather than a statute protecting fundamental rights. One Participant 

mentioned that during a recent case RLUIPA was referred to as “an obscure Federal law.” Another 

Participant emphasized that many local officials do not realize that RLUIPA still applies even when it 

conflicts with their state and local laws. As a Participant commented, “local bureaucrats just want to 
24

look at state law. It doesn’t even occur to them that there’s something out there other than their own 

ordinances or state law[s].”

Recommendations:

 Outreach and RLUIPA Education for Local Officials: Roundtable Participants noted that 

the Federal government, and particularly the Department of Justice, has an important role to 

play in helping to educate and inform municipalities about RLUIPA. To that end, some 

Participants recommended that the Federal government consider distributing details about the 

statute in a range of accessible and digestible formats; providing best practices and case studies; 

and when appropriate, sending informational letters to municipalities. Participants also 

suggested that the Federal government conduct more proactive outreach with organizations and 

gatherings of municipal attorneys, planning professionals, and insurance carriers, and write 

articles in trade publications. Getting information about RLUIPA to municipalities before a 

dispute arises – or early in the process when one does – may help avoid litigation. Participants 

also noted that the Federal government could help municipalities positively highlight their

RLUIPA compliance as part of a broader welcoming campaign toward diverse communities and 

thus highlight the economic benefits that may accompany compliance. 

 Outreach to Communities: Roundtable Participants also noted that additional efforts are 

necessary in order to ensure that religious communities are aware of RLUIPA and the 

protections the law provides. They suggested that making more literature available and inperson outreach by Justice Department personnel would help this.

 Address Community Tensions After Zoning Disputes: Roundtable Participants remarked 

that following a dispute over a place of worship, communities often need assistance addressing 

tensions that arise during the complaint, investigation, and litigation processes. Participants 

observed that the resolution of a legal dispute does not necessarily mean that the underlying 

systemic issues of discrimination, intolerance, and misunderstanding have been fully addressed. 

Participants suggested that the Department of Justice’s Community Relations Service could be a 

useful resource in helping to address some of these concerns and improve community relations. 

 Consider Changes to Zoning Codes and Adoption of “Content-Neutral” Standards: 

Participants suggested that municipalities may want to consider amending zoning codes to 

regulate assemblies, rather than places of worship. They noted that this might limit the 

discrimination and unfair treatment that religious congregations often face in the zoning process. 

In addition, Roundtable Participants said that the use of “content-neutral standards” by 

municipalities would be greatly beneficial because such a change would eliminate reliance on 

terms that may only apply to certain faiths (e.g., “clergy residence”) and are not necessarily

applicable to all religions. 

 Support Community Partnerships and Interfaith Collaboration: Roundtable Participants

spoke repeatedly about the power of community leaders from different faiths – joining with 

government officials – to make strong value-driven statements against discrimination. Several 

Participants noted that while an attorney representing a religious congregation in a given case can 

make a statement during a press conference, it does not carry nearly the same weight or impact 

as government officials and community leaders making that statement. Participants emphasized 
25

that the Federal government has the ability and responsibility to help lead robust dialogue and 

facilitate conversations around the values of religious diversity and religious pluralism that led to 

the enactment of RLUIPA. 
26

III. Conclusion

As documented in this report, communities around the country today – of various faiths, beliefs, 

and backgrounds – share a series of common concerns. Many feel threatened or discriminated against 

because of who they are, what they believe, or where they worship. At the same time, we also heard 

creative solutions and innovate proposals about how to address these challenges. And whether it’s 

preventing and prosecuting religion-based hate crimes on our streets or combating religion-based 

bullying in our schools, the Justice Department is firmly committed to working closely with our agency 

partners to lead a wide range of enforcement actions and to develop and implement policy proposals.

But we also know that beyond enforcement solutions and beyond policy proposals, we need 

dialogue. We need community engagement. And we need places to exchange ideas and share best 

practices. When we do that – when we take the time to truly talk with, listen to, and learn from one 

another – we build inclusive, vibrant, and safe communities. And we bring our country closer to the

ideals our founders envisioned: a place where diversity is embraced, where respect is celebrated, and 

where freedom is protected. We look forward to our shared efforts to advance this mission alongside all 

of you – public officials and community members – in the days and months ahead.
27

IV. Appendix A: Additional Materials, Contact Information, and Resources

Federal Protections Against Religious Discrimination

Federal law makes it unlawful to discriminate on the basis of religion in many different areas, including

those listed below. 

 Housing: The Fair Housing Act prohibits discrimination in housing because of race or color, 

religion, sex, national origin, familial status, or disability. 

 Credit: The Equal Credit Opportunity Act prohibits creditors from discriminating against credit 

applicants on the basis of race, color, religion, national origin, sex, marital status, age, because an 

applicant receives income from a public assistance program, or because an applicant has in good 

faith exercised any right under the Consumer Credit Protection Act. 

 Public Accommodations and Facilities: Title II of the Civil Rights Act of 1964 prohibits 

discrimination on the basis of race, color, religion, or national origin in certain places of public 

accommodations, such as hotels, restaurants, nightclubs, and theaters. Title III of the Civil 

Rights Act of 1964 prohibits discrimination on the basis of race, color, religion, or national

origin in public facilities.

 Land Use: The Religious Land Use and Institutionalized Persons Act prohibits local 

governments from adopting or enforcing land use regulations that discriminate against religious 

assemblies and institutions or which unjustifiably burden religions exercise. This law also 

protects the religious exercise of persons who are confined to certain institutions.

 Education: Title IV of the Civil Rights Act of 1964 prohibits discrimination on the basis of 

race, color, sex, national origin, or religion in public schools and institutions of higher learning.

Also, Title VI of the Civil Rights Act of 1964 prohibits discrimination on the basis of race, color, 

or national origin (including actual or perceived shared ancestry or ethnic characteristics) in 

education programs and activities receiving Federal financial assistance.

 Federally Assisted Services, Programs, and Activities: Title VI of the Civil Rights Act of 

1964 prohibits discrimination on the basis of race, color, or national origin in federally assisted 

programs.

 Employment: Title VII of the Civil Rights Act of 1964 prohibits employment discrimination 

on the basis of race, color, sex, religion, and national origin. This law also requires employers to 

reasonably accommodate the religious beliefs and practices of applicants and employees. 

Executive Order 11246 prohibits discrimination in employment by federal contractors and 

subcontractors on the basis of race, color, religion, sex, sexual orientation, gender identity, 

national origin, disability, or status as a protected veteran.

 Hate Crimes: Federal hate crime statutes (18 U.S.C. § 241, 18 U.S.C. § 245, 18 U.S.C. § 249

and 42 U.S.C. § 3631) prohibit violent and intimidating acts motivated by animus based on 

several bases, including race, ethnicity, national origin, and religious beliefs. 
28

 Violence against Houses of Worship: Federal law (18 U.S.C. § 247) criminalizes the use of 

force or the threat of force to interfere with the exercise of religious beliefs as well as the 

destruction of religious property, including violent conduct targeting religious houses of worship.

How to Contact the Federal Government

The Federal government is committed to actively enforcing the laws listed above. Individuals who 

believe that they are a victim of discrimination based on their actual or perceived religion (or any other 

protected category) should contact the appropriate Federal agency.

Department of Justice – Civil Rights Division

950 Pennsylvania Avenue, N.W.

Washington, D.C. 20530

Phone: (888) 736-5551 or (202) 514-3847

Website: www.justice.gov/crt

Complaint Filing Information: www.justice.gov/crt/how-file-complaint

Department of Education – Office for Civil Rights

400 Maryland Avenue, S.W.

Washington, D.C. 20202-1100

Phone: (800) 421-3481

Fax: (202) 453-6012

Email: ocr@ed.gov

Website: www.ed.gov/ocr

Online Complaint Form: http://www.ed.gov/about/offices/list/ocr/complaintintro.html

(Other Languages)

Department of Homeland Security – Office of Civil Rights and Civil Liberties

Compliance Branch

245 Murray Lane, S.W.

Building 410, Mail Stop #0190

Washington, D.C. 20528

Phone: (866) 644-8360 or (202) 401-1474

Fax: (202) 401-4708

Email: CRCLCompliance@hq.dhs.gov

Website: www.dhs.gov/office-civil-rights-and-civil-liberties

Complaint Forms: www.dhs.gov/file-civil-rights-complaint

Department of Labor – Office of Federal Contract Compliance Programs

Phone: (800) 397-6251

Email: OFCCP-Public@dol.gov

Website: www.dol.gov/ofccp

Equal Employment Opportunity Commission

Phone: (800) 669-4000

The American Sign Language (ASL) Video Phone Line: (844) 234-5122

Email: info@eeoc.gov
29

Website: www.eeoc.gov

Charge Filing Information: www.eeoc.gov/employees/howtofile.cfm

Field Office Locations: www.eeoc.gov/field/index.cfm

About the Justice Department’s Community Relations Service

The Community Relations Service (CRS) is the Justice Department's “peacemaker” for community 

conflicts and tensions arising from differences of race, color, national origin, gender, gender identity, 

sexual orientation, religion, and disability. CRS is not an investigatory or prosecutorial agency, and it 

does not have any law enforcement authority. CRS works with communities to prevent and resolve 

conflicts based on the actual or perceived religion of community members. By improving 

communication between religious leaders, universities and schools, elected officials, law enforcement, 

and community members, CRS supports communities in developing relationships and mechanisms to 

effectively prevent and respond to conflicts based on religion.

Department of Justice – Community Relations Service

600 E Street, N.W., Suite 6000

Washington, D.C. 20530

Phone: (202) 305-2935

Website: www.justice.gov/crs

About the White House Office of Faith-based and Neighborhood Partnerships

The White House Office of Faith-based and Neighborhood Partnerships builds bridges between the 

Federal government and nonprofit organizations, both secular and faith-based, to better serve Americans 

in need. The Office is led by Executive Director and Special Assistant to the President, Melissa Rogers,

and can be contacted by emailing WHPartnerships@who.eop.gov. The Office coordinates Centers for 

Faith-based and Neighborhood Partnerships in various Federal agencies. Each Center forms 

partnerships with faith-based and neighborhood organizations to advance agency-specific goals. 

Center at the U.S. Department of Agriculture

Director: Norah Deluhery 

E-mail: collaborate@usda.gov

Website: www.usda.gov/partnerships

Center at the U.S. Department of Justice

Director: Eddie Martin 

E-mail: partnerships@usdoj.gov

Website: www.ojp.gov/fbnp

Center at the U.S. Department of Commerce

Director: Aaron Jenkins 

Website: www.commerce.gov/office-secretary/center-faith- based-and-neighborhoodpartnerships 

Center at the U.S. Department of Labor

Director: Teresa Gerton 
30

E-mail: CFBNP@dol.gov

Website: www.dol.gov/cfbnp

Center at the U.S. Department of Education

Director: Rev. Brenda Girton-Mitchell 

E-mail: edpartners@ed.gov

Website: www.ed.gov/edpartners 

Center at the U.S. Department of Health and Human Services

Director: Acacia Salatti 

E-mail: partnerships@hhs.gov

Website: www.hhs.gov/partnerships

Center at the U.S. Department of Homeland Security

Director: Rev. David L. Myers 

E-mail: partnerships@fema.dhs.gov

Website: www.dhs.gov/fbci

Center at the U.S. Department of Housing and Urban Development 

Director: Paula Lincoln 

E-mail: partnerships@hud.gov 

Website: www.hud.gov/offices/fbci

Corporation for National and Community Service

Website: www.nationalservice.gov/special-initiatives/communities/faith-based-and-othercommunity-initiatives-and-neighborhood

Center at the U.S. Agency for International Development

Director: Mark Brinkmoeller 

E-mail: fbci@usaid.gov 

Website: www.usaid.gov/partnership-opportunities/fbci

Center at the Small Business Administration

Director: Christopher Upperman 

E-mail: partnerships@sba.gov

Website: https://www.sba.gov/offices/headquarters/ofbnp

U.S. Department of State Office of Religion and Global Affairs 

Special Advisor: Dr. Shaun Casey

E-mail: RGAOffice@state.gov

Website: www.state.gov/s/rga/

U.S. Department of Veterans Affairs

Director: Rev. E. Terri LaVelle 

E-mail: vapartnerships@va.gov 

Website: http://www1.va.gov/cfbnpartnerships/
31

Office of External Affairs and Environmental Education at the Environmental Protection 

Agency 

Jerry Lawson and Rosemary Enobakhare

E-mail: partnerships@epa.gov

Website: www.epa.gov

Office of Strategic Partnerships at Peace Corps

Faith Initiative Senior Advisor: Lauren Mamane

E-mail: LMamane@peacecorps.gov

Website: www.peacecorps.gov

Center at the U.S. Agency for International Development

Director: Mark Brinkmoeller

E-mail: fbci@usaid.gov

Website: www.usaid.gov/partnership-opportunities/fbci

The Office also coordinates the President’s Advisory Council on Faith-based and Neighborhood 

Partnerships. This Advisory Council is a group of leaders that makes recommendations on how the 

federal government can more effectively partner with faith- based and neighborhood organizations.

Government Resources

Department of Homeland Security:

 Posters on Common Muslim American and Sikh American Head Coverings and the Sikh Kirpan

 Background Flyer about the Department’s Community Engagement Work

 Language Identification Guide

 Resources to Protect Your House of Worship (FEMA)

Interagency Resources on Bullying Prevention – StopBullying.gov 

 An Overview of School Districts’ Federal Obligation to Respond to Harassment

 State Anti-Bullying Laws and Policies

 Tip Sheet on Working With Young People Who Bully Others

 Tip Sheet on Misdirections in Bullying Prevention and Intervention

 Training Center: Materials for Community Leaders; Community Action Toolkit; and 

Misdirections in Bullying Prevention Video

Department of Education:
32

 Dear Colleague Letter on Race, Religion, and National Origin Tolerance

 Dear Colleague Letter on Harassment and Bullying (Other Languages)

 Dear Colleague Letter on Religious Discrimination

 First Amendment Dear Colleague Letter

 Racial Harassment Investigative Guidance

 School Climate Surveys

 Fact Sheet on Harassment and Bullying (Other Languages)

 Title IX and Religious Exemptions

Department of Justice:

 Civil Rights Division Website

 Webpage with Background Information about Hate Crimes

 Webpage with Religious Land Use Information

 Update on the Justice Department’s Enforcement of RLUIPA: 2010 – 2016

 Training Video: Building Relationships with Arab and American Muslims

 On Common Ground: Law Enforcement Training Video on Sikhism

 The First Three to Five Seconds: Law Enforcement Training Video on Arab and Muslim 

Cultural Awareness

 Resources for Schools: Twenty Plus Things Schools Can Do to Respond to or Prevent Hate 

Incidents Against Arab-Americans, Muslims, and Sikhs

 Common Ground Podcast Series

 Critical Incident Checklist

 Addressing Community Racial Tension

 Mediation of Community Racial Disputes and Conflicts

 Planning for Safe Marches and Demonstrations
33

Joint Department of Education and Department of Justice Resources:

 Fact Sheet: Combating Discrimination Against Asian American, Native Hawaiian, and Pacific 

Islander (AANHPI) and Muslim, Arab, Sikh, and South Asian (MASSA) Students (Other 

Languages)

 Dear Colleague Letter on English Learner Students and Limited English Proficient (LEP) 

Parents

 English Learners Fact Sheet for LEP Parents (Other Languages)

Equal Employment Opportunity Commission: 

 General Background Information on Religious Discrimination

 Facts about Religious Discrimination

 Compliance Manual Section on Religious Discrimination

 Questions and Answers: Religious Discrimination in the Workplace

 What You Should Know About Religious and National Origin Discrimination Against Those 

Who Are, or Are Perceived to Be, Muslim or Middle Eastern

 For Employees: Questions and Answers on Workplace Rights of Employees Who Are, or Are 

Perceived to Be, Muslim or Middle Eastern

 For Employers: Questions and Answers on Responsibilities Concerning the Employment of 

Individuals Who Are, or Are Perceived to Be, Muslim or Middle Eastern

 Fact Sheet on Religious Garb and Grooming in the Workplace: Rights and Responsibilities

 Questions and Answers on Religious Garb and Grooming in the Workplace: Rights and 

Responsibilities

Department of Labor – OFCCP:

 Executive Order 11246 – Equal Employment Opportunity

 Workplace Rights Fact Sheet
34

V. Appendix B: Roundtable Participants

Roundtable Location: Newark, New Jersey

Date: March 8, 2016

Topic: Education

Agency Co-Sponsors and Participants: U.S. Attorney’s Office for the District of New Jersey; White 

House Initiative on Asian Americans and Pacific Islanders; Department of Education; Community 

Relations Service; Civil Rights Division

Community Member Participants: The Roundtable was attended by individuals representing a range 

of religious and community organizations. Organizations represented include:

Agudath Israel of America

American Civil Liberties Union, New Jersey Chapter

American Federation of Teachers

American Jewish Committee

Anti-Defamation League, New Jersey Region

Bloomfield College

Center for Inquiry

Chhaya Community Development Corporation 

Council of Imams of New Jersey

Council on American-Islamic Relations, New Jersey Chapter

General Conference of Seventh-day Adventists

Hindu American Foundation

Human Rights Commission of New York City

Interfaith Alliance

Islamic Society of Basking Ridge 

Kahlil Gibran International Academy

Know Your Neighbor

Muslim Community Network

National Association of Evangelicals 

National Sikh Campaign 

New Jersey Association of School Administrators

New Jersey Presidents’ Council Executive Board

Passaic County Community College

River Dell Regional School District

Sikh Coalition

South Asian Youth Action 

Tannenbaum Center for Interreligious Understanding

Union of Orthodox Jewish Congregations

United Sikhs 

Universal Muslim Association of American

World Impact
35

Roundtable Location: Dallas, Texas

Date: March 29, 2016

Topic: Hate Crimes

Agency Co-Sponsors and Participants: U.S. Attorney’s Office for the Northern District of Texas; 

U.S. Attorney’s Office for the District of Kansas; Department of Homeland Security; Federal Bureau of 

Investigation; Community Relations Service; Civil Rights Division

Community Member Participants: The Roundtable was attended by individuals representing a range 

of religious and community organizations. Organizations represented include:

Anti-Defamation League, North Texas/Oklahoma Chapter

Bridging The Gap Baptist Church (Fort Worth, TX) 

Cathedral of Hope (Dallas, TX)

Center for Inquiry

Christian Emergency Network

Congregation Ohr HaTorah (Dallas, TX)

Dar El-eman Islamic Center (Arlington, TX)

Hindu American Foundation

Interfaith Alliance

Islamic Association of Tarrant County

Islamic Society of North America 

Know Your Neighbor

Muslim Advocates

Muslim Public Affairs Council 

North Texas Islamic Council

Northwood Church (Keller, TX)

Providence Church (Frisco, TX)

Rabbinical Association of Greater Dallas

Southern Poverty Law Center

Tenth Episcopal District AME Church (Dallas, TX)

The Potter’s House Church (Dallas, TX)

United Sikhs

Walnut Hill United Methodist Church (Dallas, TX)

World Without Hate
36

Roundtable Location: Birmingham, Alabama

Date: April 20, 2016

Topic: Employment

Agency Co-Sponsors and Participants: U.S. Attorney’s Office for the Northern District of Alabama; 

Department of Labor; Equal Employment Opportunity Commission; Civil Rights Division

Community Member Participants: The Roundtable was attended by individuals representing a range 

of religious and community organizations. Organizations represented include:

AshaKiran (Huntsville, AL)

Baptist Church of the Covenant (Birmingham, AL)

Becket Fund for Religious Liberty 

Birmingham Area Sikh and Muslim Community Leaders

Black Catholic Ministry, Diocese of Birmingham

Center for Inquiry

Council on American-Islamic Relations, Alabama Chapter

First Liberty Institute 

Greater Birmingham Ministries, Unity Church of Christianity

Hindu Temple & Cultural Center of Birmingham

Interfaith Alliance

Know Your Neighbor

National Association for the Advancement of Colored People, Metro Birmingham Branch

National Sikh Campaign 

Samford University

Southern Poverty Law Center

Temple Emanu-El (Birmingham, AL)
37

Roundtable Location: Detroit, Michigan

Date: May 2, 2016

Topic: Religious Land Use

Agency Co-Sponsors and Participants: U.S. Attorney’s Office for the Eastern District of Michigan; 

Community Relations Service; Civil Rights Division

Community Member Participants: The Roundtable was attended by individuals representing a range 

of religious and community organizations. Organizations represented include:

American-Arab Anti-Discrimination Committee

American Jewish Committee

Anti-Defamation League, Michigan Chapter

Becket Fund for Religious Liberty

Bharatiya Temple of Metropolitan Detroit 

Council on American-Islamic Relations, Michigan Chapter

Council of Religious Leaders of Metropolitan Chicago

Dalton & Tomich, PLC

General Conference of Seventh-day Adventists

Hindu American Foundation

Islamic Organization of North America

Know Your Neighbor

Mauck & Baker, LLC

National Network for Arab American Communities

Sikh Coalition

Storzer and Greene

University of Michigan Detroit Center
38

Roundtable Location: Stanford, California

Date: May 16, 2016

Topic: Education

Agency Co-Sponsors and Participants: U.S. Attorney’s Office for the Northern District of California; 

U.S. Attorney’s Office for the Eastern District of California; U.S. Attorney’s Office for the Southern 

District of California; U.S. Attorney’s Office for the Central District of California; U.S. Attorney’s Office 

for the District of Idaho; Department of Education; White House Initiative on Asian Americans and 

Pacific Islanders; Civil Rights Division

Community Member Participants: The Roundtable was attended by individuals representing a range 

of religious and community organizations. Organizations represented include:

Afghan Coalition

Alliance Defending Freedom

Anti-Defamation League 

Asian Americans Advancing Justice – Asian Law Caucus 

Becket Fund for Religious Liberty

California Council of Churches

Church State Council, Pacific Union of Seventh-day Adventists

Communities United Reviving East Africa 

Council on American-Islamic Relations, San Francisco Bay Area Chapter

Hindu American Foundation

Interfaith Council of Contra Costa County

Islamic Networks Group

Know Your Neighbor

Muslim Advocates

Not in Our Town

Pacific Justice Institute

San Diego State University

San Francisco Board of Education

San Francisco Department on the Status of Women

San Francisco Interfaith Council

San Francisco State University

Sikh American Legal Defense and Education Fund

Sikh Coalition

Silicon Valley Interreligious Council

Stanford Law School, Religious Liberty Clinic 

Stanford University

University of California, Berkeley
39

Roundtable Location: Washington, D.C.

Date: May 26, 2016

Topic: National Issue Review

Agency Co-Sponsors and Participants: Department of Labor; Department of Education; Equal 

Employment Opportunity Commission; Federal Bureau of Investigation; White House Office of Faithbased and Neighborhood Partnerships; Civil Rights Division

Community Member Participants: The Roundtable was attended by individuals representing a range 

of religious and community organizations. Organizations represented include:

Agudath Israel of America 

American Civil Liberties Union

American Jewish Committee

Anti-Defamation League

Arab American Institute

Becket Fund for Religious Liberty

Center for American Progress

Center for Inquiry

Center for Islam and Religious Freedom

Christian Legal Society

Freedom Forum

General Conference of Seventh-day Adventists 

Hindu American Foundation

Interfaith Alliance

Know Your Neighbor

Muslim Advocates

Muslim Public Affairs Council

National Sikh Campaign

Religious Action Center of Reform Judaism

Shoulder to Shoulder Campaign

Sikh Coalition

South Asian Americans Leading Together

Union of Orthodox Jewish Congregations

U.S. Conference of Catholic Bishops
40

Roundtable Location: Washington, D.C.

Date: June 20, 2016

Topic: Defining Religion and Religious Discrimination

Agency Co-Sponsors and Participants: Department of Homeland Security; Department of Labor; 

Department of Education; Department of Justice; Equal Employment Opportunity Commission

Community Member Participants: The Roundtable was attended by individuals representing a range 

of religious and community organizations. Organizations represented include:

American Civil Liberties Union

American Jewish Committee

American Muslim Institution

Becket Fund for Religious Liberty

Catholic University of America

Center for Inquiry

Center for Islam and Religious Freedom

Christian Legal Society

Church of Jesus Christ of Latter-day Saints

Church of Scientology

General Conference of Seventh-day Adventists

Hindu American Foundation

Interfaith Alliance Foundation

Islamic Society of North America

Know Your Neighbor

Muslim Public Affairs Council

National Association of Evangelicals

Native American Rights Fund

Navigators on Capitol Hill

People for the American Way Foundation

Queens Federation of Churches

Religious Freedom and Business Foundation

Religious Freedom Center of the Newseum Institute

Secular Coalition for America

State Conference of Catholic Bishops

Union of Orthodox Jewish Congregations

United Methodist Church General Board of Church and Society