ISLAM IN DJIBOUTI

C O N F I D E N T I A L SECTION 01 OF 04 DJIBOUTI 000149

SIPDIS

SENSITIVE

LONDON, PARIS FOR AFRICA WATCHER; STATE FOR AF AND AF/E

E.O. 12958: DECL: 02/03/2015
TAGS: SOCI SCUL PREL PGOV ASEC PINR KISL DJ
SUBJECT: ISLAM IN DJIBOUTI

Classified By: Pol/Econ Erinn C. Reed for reasons 1.4 (b) and (d).


1. (SBU) Summary: During recent years, the Islamic world has
witnessed changes in religious attitudes and verbal outlook.
Fundamental views that oppose all things external to Islamic
culture expressed by scholars and preachers have taken hold
in some Muslim societies. This fervent opposition of anything
not adhering to the strictures of fundamental Islam has led
some societies to withdraw into themselves. Djibouti is known
for practicing a moderate and tolerant version of Islam since
the early ages of the religion. However, Djibouti has not
been able to avoid the impact of recent movements pushing for
a return to the fundamentals of Islam. End Summary.


2. (SBU) Islam took hold in Djibouti in the religion's early
years. Prior to French colonial rule, religious leaders were
often leaders in community affairs. They taught religion, as
well as administered affairs such as marriage contracts,
inheritance, and resolving conflicts with Shari'a law.
Islamic education was based on memorization of the Quran. At
higher levels, education focused on the Arabic language and
Islamic jurisprudence. Memorization in quranic schools (known
in Djibouti as Madrassad or Mal'amad) had become part of
Djiboutian culture and was seen in nearly every populated
area. Religious leaders exercised traditional authority over
their communities through a network system, uniting different
localities under a set of rules and traditional regulations
blended with Shari'a. However, colonial rule greatly weakened
the authority of traditional community leaders overall.


3. (SBU) Djibouti's constitution, established in 1992,
declares Islam as the state religion. Statistics show an
estimated 99 percent of its 650,000 citizens as Sunni Muslim.
The actual number of practicing Muslims is much less. The
country observes Muslim holy days as national holidays.
Djibouti is culturally integrated in the wider Islamic world
through its membership in the Organization of Islamic
Conference and the Arab League. However, the Government of
Djibouti employs modern interpretations of Islamic texts in
the creation of national programs and policies. The President
is required to take an oath on the Holy Quran at
inauguration, but religion governs only a few aspects of
Djiboutian politics. The Ministry of Muslim Affairs was
created to monitor the affairs of Muslims, such as oversight
of mosques. Islamic law based on the Quran is used in family
matters and is administered by family judges within the
Ministry of Justice. These two instances are the only areas
where religion governs instead of merely influencing.


4. (SBU) Historically, Djibouti has adhered to the Shafi'i
school of thought, one of four in the Islamic faith. The
Quran and the Sunna (sayings) of the Prophet are considered
to be sacrosanct among Djiboutians. Recently, the country has
witnessed changes and a loss of the historic adherence to the
Shafi'i school. During the last decade, the Hanbali and
Tabligh schools of thought, brought from Saudi Arabia and
India, have developed significantly in Djibouti. The Hanbali
school is commonly known as Wahabism, named after the
movement's founder, Mohamed Abdoul Wahab.


5. (C) Djibouti has not been able to ignore the active role
of Islamic movements and the impact of their calls for a
return to traditional Islamic values and legal authority in
the daily life of Muslims. It would be necessary to create a
trans-clan organization to achieve these goals in Djibouti,
something that is difficult to do on secular issues. Even
though circles of Islamic education are well established in a
sustainable system throughout Djibouti, there is an
educational migration of Djiboutian students to the Islamic
world. Most of these students head towards Saudi Arabia,
Egypt, and since 2001, Sudan. All of these countries are
centers of modern Islamic movements. Djiboutians have not
been receptive to Islamic radicalism, tending instead to
identify first with their ethnic kin rather than religious
ties. However, radical Islamic ideas have been gaining ground
in Djibouti. More women are choosing to wear veils, and more
men in Government are growing beards as a sign of religious
piety. There is also evidence that some members of the Armed
Forces returning from military schools in Saudi Arabia have
adopted Wahabism. Resistance to these movements exists but
seems to be increasingly more timid.

Institutional Hierarchy
--------------

6. (SBU) The Cadi is the country's senior judge of Islamic
law and is appointed by the Minister of Muslim Affairs.
Officially titled, the Minister of State for Charitable and
Religious Affairs, this position was created in May 1999 when
President Ismail Omar Guelleh formed his cabinet. At his
inauguration, he declared that Islam would be a central tenet
of his government. Generally, Djibouti is trying to show a
firm commitment to Islamic symbolism, exploiting it to fit
state objectives. The mission of the Ministry of Muslim
Affairs is to define the orientations of national identity in
order to harmonize religious action according to
socio-cultural specifications of the country and to govern
all matters related to Islam, its education and the
propagation of Arab-Muslim culture.


7. (C) In October 2004, the High Islamic Council (HIC) was
created within the Ministry of Muslim Affairs. One of the
main tasks of the HIC is to give guidance on religious
matters. It advises on matters related to religious
inspiration, and puts forth recommendations on general
religious education and preaching orientations. The HIC is
governed by a board made up of the Minister of Muslim Affairs
and seven consultative members, chosen from among erudite and
national Muslim leaders. The HIC controls three important
services: the High Fatwa Authority, responsible for religious
solutions to general and specific queries; the Da'wa
Committee on Islamic Orientation, responsible for guiding
religious education, promoting moderate ideas, and improving
the performance of Imams; and the Mosques Council,
responsible for monitoring the functioning of mosques. The
Government has an effective control over the message that
mosques preach. Since 9/11, sermons have been toned down to
align more with western, rather than with fundamentalist,
ideology. Institutions that heavily preached anti-Western and
anti-Jewish sentiment are now taking a much lower profile
when expressing their views.


8. (SBU) In July 2004, President Guelleh created Diwan Az
Zakat (DZF) to take charge of collecting and distributing the
Zakat, a compulsory charity imposed on every Muslim under the
Third Pillar of Islam. This organization is headed by an
executive board of nine members. Five of these positions are
held by members of Djiboutian society that pay the most
charity. The remaining four positions are chosen for their
integrity and competence. As of yet, there have been no
public calls for Djiboutians to pay their Zakat through the
DZF. However, some of the board members have used the time
since the organization's creation to visit Persian Gulf
countries and Sudan to gain experience in similar
organizations that have existed for more than a decade.

Islamic Tendencies and Factions Present in Djibouti
-------------- --------------

9. (SBU) In the wider Islamic world, activists belonging to
different schools of thought have been questioning the
legitimacy of state policies, particularly those regarding
the role of Islam in the State and society. These activists
have formed organizations to address their way of
understanding Islam, lately referred to as "political Islam."
Many of the new groups and organizations can be found in
Djibouti with varying levels of influence. The most prominent
of these organizations are considered to be the "Salafiyah
(Wahabis)" and the "Tabligh." These groups were both
initially formed in the late 1950's. The Salafiyah and
Tabligh groups both advocate harmonization of the indigenous
culture and laws of the State with the Islamic legal system.
The roots of this methodology can be seen in the Wahabi
school in Saudi Arabia and the neo-Sufis in India.


10. (SBU) Though these movements share the aspiration to
bring traditional Islamic values into the lives of their
communities, their tactical approaches in Djibouti are mainly
peaceful. The two movements believe in an evolutionary reform
of the society through education and revival of pure Islamic
values. The movements have represented themselves as a
reawakening of the faith. This has been a phenomenon seen
often when Muslims suffer an external threat, such as
colonialism or invasion, with Islam employed as an ideology
of liberation (Jihad). Reawakenings and moral rearmament have
also been seen whenever new charismatic preachers,
organizations, or brotherhoods have appeared in the religious
community intensifying the call for renewal of the faith.

Wahabi Groups in Djibouti
--------------

11. (SBU) There are several educational and political
institutions present in Djibouti that adhere to the Wahabi
school of thought. One of the larger schools is the Islamic
Saudi Institute (ISI),supported by the Saudi Arabian
Government, which provides for education under the Saudi
system through the final year of High School for a yearly fee
(100 USD). The ISI is a branch of the Imam Mohamed Ibn Saoud
Islamic University in Riyadh. The Director of the ISI in
Djibouti is appointed by the University's dean. The ISI and
its Saudi teachers reportedly enjoy diplomatic immunity while
in Djibouti. The teacher complement at the ISI is made up of
Saudis, Egyptians, Sudanese, and some Djiboutians. The ISI
program is similar to other Saudi institutes. Basic subjects
such as mathematics, literature, and sciences are mixed with
religious instruction in the Quran, Islamic History, Sunna,
Shari'a, and Islamic Jurisprudence. A diploma from the ISI in
Djibouti entitles a student to enroll in the Imam Saoud
University, however this is a rare occurrence for Djiboutian
students due to Saudi regulations restricting enrollment of
foreigners except those authorized by a bilateral agreement.
Even so, enrollment at the ISI in Djibouti grew substantially
during the 2003/2004 school year to a total of 300 full-time
students.


12. (SBU) The Religious Consulate of Saudi Arabia, a part of
the Saudi Embassy, had a central role in monitoring and
funding demonstrations of a religious nature, in accordance
with its beliefs. However, since 9/11, the Religious
Consulate has taken on a more discreet role. Formerly located
on an independent compound, the Religious Consulate has moved
onto the Saudi Embassy grounds. Even so, the numbers of Saudi
personnel in Djibouti are increasing each year. The head of
the Saudi diplomatic mission was elevated from Charge
d'affaires to the rank of Ambassador five years ago.


13. (SBU) There are other institutions adhering to Wahabism
which play a lesser role in Djiboutian society. The Yemeni
School, a high school built in 2003 following the curriculum
of the Yemeni Ministry of Education, has comparatively low
enrollment rates. The Yemeni School does not give religion a
primary focus. Reportedly, the governments of Djibouti and
Egypt agreed in 2002 to build an Egyptian Islamic institute,
to be called Al Azhar. The institute has yet to be
constructed due to rumored disputes over whether to use an
Egyptian contractor or a local Djiboutian company.

Islamic NGOs and Associations
--------------

14. (SBU) There are two main Islamic charities present in
Djibouti, one Kuwaiti and one Saudi. The Africa Relief
Committee (ARC) is a Kuwaiti NGO which collects funds from
Persian Gulf governments and private donors to redistribute
in poor Islamic countries. This redistribution is primarily
through the construction of schools and mosques, well
drilling, and food distribution. The ARC has been in Djibouti
for seven years. Its latest project is the construction of a
compound housing an orphanage, school, dormitories, sport
facilities and a mosque at a cost of 600 million Djiboutian
Francs (3.5 million USD).


15. (SBU) The Saudi NGO is Al Nadwa or the World Assembly of
Muslim Youth (WAMI),an organization headquartered in Jeddah.
This NGO has recently taken over management of the boys'
orphanage in Djibouti. The WAMI has been present in Djibouti
since 1999. There is some doubt among the Djiboutian
community on the seriousness of this NGO's activities in
Djibouti. Critics have recently cited the organizations
failure to accomplish improvements promised for the boys'
orphanage. There are some who believe there is a possibility
of WAMI's departure from Djibouti if the apparent lack of
will for its presence continues.

Public Diplomacy Approaches
--------------

16. (SBU) Embassy Djibouti has responded to the need to
identify innovative ways to increase its outreach and
interaction with Djibouti's Muslim population. Arab media in
Muslim countries often imply the U.S. is combating Islam in
the name of its War on Terrorism, and it is critical to
overcome this perception. Extremist preachers and
fundamentalists often pander to that sentiment in order to
achieve their goals. In societies where high illiteracy rates
dominate, as in Djibouti, the challenge is greater. Yet, the
presence in Djibouti of the United States is viewed favorably
for its larger economic impact and the daily struggle against
poverty is seen as more important than focusing on or
approving a call for hatred.

17. (SBU) Embassy Djibouti is focusing on activities that
encourage face-to-face interaction between Americans and the
Djiboutian community. English clubs, receptions, small-group
lunches and dinners, public speeches, and school projects are
examples of outreach activities currently being used. In
Djibouti, winning hearts and minds is less a function of
clever advertising than of maximizing the positive roles the
U.S. plays here on a daily basis through U.S. aid programs,
the military's civil projects, and other assistance
programs, including Self-Help.

The Future of Islam in Djibouti
--------------

18. (C) Comment: While the future tenor of Islam in Djibouti
is difficult to predict, a potential for growth of
fundamentalism does exist. Along with growing influence from
major players in the Djiboutian Islamic community such as the
Wahabis and Tabligh (also known as the Khourouj),there are
smaller fundamental/extremist groups that need to be
considered, including the Muslim Brotherhood, Al-Habash and
Al-Ittihad Al-Islamia. The Wahabi movement has attracted
mainly educated Djiboutians, especially among the educated
youth. Tabligh, on the contrary, targets the uneducated and
lower socio-economic classes of Djiboutian society. The other
three groups have much smaller, focused cadres of followers.
The Muslim Brotherhood caters to Djiboutians educated in
Egypt. Al-Habash preaches an orthodox Islam, but also has
element of Islamic mysticism with strong ties to Lebanon.
Al-Ittihad Al-Islamia has members present in Djibouti, but
keeps a low profile. Al-Ittihad was reportedly very active in
the Arta Conference in 2000 for the Somalia peace process.
Their members reportedly move freely in and out of Djibouti
with a blind eye from the Djiboutian Government. One of their
spiritual leaders, Sheik Umar Faruk, has been allowed to
broadcast religious sermons on Radio Television Djibouti on
several occasions in the past few years.


19. (C) Comment cont: The majority of the Djiboutian
population does not have a good base of knowledge about
Islam, a fact which some believe makes it easier for them to
be influenced by extremist preachers. A current issue that
could cause internal turmoil for the Islamic community is the
recent creation of the Family Code, which takes away some of
the influence that Shari'a has on Djiboutian law. However,
the Djiboutian government monitors the different Islamic
factions, the issues they track, and the sermons they preach
at mosques. For the moment, the growing fundamentalist
movements are something to be watched carefully in Djibouti,
but not a cause for alarm. End Comment.
RAGSDALE