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No I mean conversion, religios conversion.
I read that they need to be Discrimination rank 2. Which everyone is, this should allow for conversion.
Also hovering over the "Freedom of conscience" it says
"Allows conversion for the Cultural Erasure status".
I will make a save and try State religion to see what happens, but the funny thing is that if I change to State religion, they become Dscrimination rank 1. Which does not say they are allowed to convert to my religion.
Also I played Egypt with a mod and changed religion to Catholic, they have freedom of conscience and pops converted.
Edit: Remove the heritage/homeland restrictions on assimilation when it makes sense for pops to assimilate regardless
from the patch note
If you can't promote National Values it means that pop are not converting or assimilating in that state because that is the requirement to issue that decree.