Causing his people Should assemble

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During scripture study last night, I came across the following verse in Alma 21:

But he caused that there should be synagogues built in the land of Ishmael; and he caused that his people, or the people who were under his reign, should assemble themselves together.

 Previously, I had interpreted this verse to mean that Lamoni had implemented a state-sponsored religion everyone had to join. After reflecting on the maning of the word “caused,” I’m left wondering if he simply implemented infrastructure for worship, but gave everyone freedom to worship as they pleased.