Saudi Arabia’s Shura Council: A Century of Historic Governance

The view of Saudi Shura Council in session.
The view of Saudi Shura Council in session.
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Saudi Arabia’s Shura Council: A Century of Historic Governance

The view of Saudi Shura Council in session.
The view of Saudi Shura Council in session.

Since the early days of modern Saudi Arabia, King Abdulaziz established key principles, including the use of Shura (consultative) councils as a crucial aspect of his wise governance.

Under his rule, the Shura Council was formed, representing a significant move towards institutionalizing governance practices.

This marked the beginning of a constitutional framework for the developing state.

The constitutional movement began in February 1925 with the first National Council being founded under the speakership of Sheikh Abdul Gadir Al-Shebi.

That council continued for six months until a reshuffle that saw Sheikh Mohammed Al-Marzouki Abou Hussein act as speaker and Shebi as his deputy. The council boasted 15 members and Mohammed Suroor Al-Sabban acted as its secretary.

On August 5, 1925, King Abdulaziz inaugurated the council’s session at its Makkah headquarters.

He delivered the first royal address in two parts: a brief impromptu speech with his directives, and an extended official statement presented by Counselor Hafez Wahba.

This tradition continues to this day, with members considering the royal address as the council’s “work program.”

They formed committees to review and discuss the addressed topics, presenting the results to the king after council approval.

First step

On May 13, 1926, an official announcement was made for the election of consultative councils, including the Shura Council.

A royal decree was issued on May 23, 1926, appointing Sharif Mohammed Sharaf Basha bin Adnan Al-Ghalib as speaker.

The first constitutional document, published later, outlined the creation of the Council.

Formed under the deputyship of the King in the Hijaz in September 1926, with Sheikh Abdulaziz bin Mohammed Al-Otaiqi as the deputy, three councils represented the starting point for Shura development.

They marked an experimental phase for the model upon which the Saudi institutional state is built, including the systems and formation methods of these councils.

On July 8, 1927, in response to recommendations from the Inspection and Reform Committee, the King agreed to a new system for the council.

He replaced its members and reorganized it with his advisor Sharif Mohammed Sharaf Adnan leading the sessions.

Evolution of the Council

This marked the beginning of the Shura Council in its long-standing form.

In the second session, King Abdulaziz saw the need to improve its system. The initial system had 14 articles.

The Council’s new internal rules were issued, consisting of 24 articles. This system remained in place for almost 65 years, during which the council carried out its functions.

After the creation of the Council of Ministers in 1952, which limited the Shura Council's powers, there was a need to update its system to match the changes in various state authorities.

The Council made its first attempt in 1953, preparing a proposal for the development of its system and internal rules, which was submitted for review.

Committees were formed, and in 1962, a committee led by Prince Mishaal bin Abdul Rahman worked on drafting the basic governance system.

In 1980, another committee led by Prince Nayef bin Abdulaziz resulted in the creation of the “Shura Council System.”

5,963 meetings in 54 years

Despite a delay in updating the system for about 40 years, the Council’s experience during that period is still remembered in political and administrative circles, with its impact documented in government archives.

According to Saudi Shura historian Dr. Abdulrahman bin Ali Al-Zahrani, the Council held 51 sessions, between 1927 and 1980, conducting a total of 5,963 meetings and issuing 8,583 decisions, including various regulations and instructions.

During this time, the Council boasted 85 members, with each session attended between six and 25 members.

Sheikh Ahmed bin Ibrahim Al-Ghazawi held the longest tenure at 51 years, starting as a secretary and eventually becoming the permanent deputy speaker. Sheikh Mohammed Al-Tayyib Al-Hazazi had the shortest membership, lasting only one month.

Membership extensions were common at the time, with an average tenure of 10-and-a-half years per member.

King Faisal at the helm

King Faisal served as the president of the Council from 1927 until his passing in 1975.

Afterward, the Council remained linked to the monarchy, with the vice president managing its affairs.

It wasn't until 1992, with the royal decree appointing Sheikh Mohammed bin Ibrahim bin Jubair as speaker, that new leadership emerged.

Jubair had been a member of committees studying the Council’s system development since 1962.

The role of vice president was held by individuals like Sheikh Abdullah bin Mohammed Al-Fadl, Saleh Shata, Sheikh Abdullah Al-Shebi, Sharif Mohammed Sharaf Rida, Sheikh Ahmed Al-Ghazawi, and Saadik Dahlan.

The role of Secretary-General saw seven individuals taking charge, including Sheikh Ahmed Al-Ghazawi, Hamza Al-Marzouki Abu Hussein, Fuad Ali Rida, Saadik Dahlan, Alawi Al-Idroos, Mohammed Saeed Jawharji, and Abdel Razak Al-Tayeb.

The last session of the Council during its 51st term took place on September 27, 1980.

From Makkah to Riyadh

But interestingly, after that point, the council didn't stop its work. It continued to function as an entity with its own budget, staff, and headquarters in Makkah’s Shisha neighborhood.

The General Secretariat and administrative operations were based there, and extensions were given to remaining members.

After the death of the Council’s deputy speaker, Sheikh Ahmed Al-Ghazawi, a Royal Decree (No. 2931) was issued on July 14, 1981, appointing Dahlan to replace him.

Dahlan continued in this role until 1992 when the Council’s offices moved to Riyadh.

The Council even had a summer headquarters in Taif.

King Abdulaziz inaugurated the third session and delivered the royal address in Taif on July 27, 1930.

Other key figures also delivered royal addresses in the absence of the King.

These foundations set by King Abdulaziz during a crucial period in the Kingdom’s early years illustrate his dedication to establishing the state’s structure.

Despite focusing on unification wars and ensuring security, he prioritized stabilizing the state's foundations. His successors continued and refined these practices.



Amr Moussa: Arafat Was Wily, Obsessed with Escaping Patronage

Arafat welcomes Amr Moussa in 1993. AFP file photo
Arafat welcomes Amr Moussa in 1993. AFP file photo
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Amr Moussa: Arafat Was Wily, Obsessed with Escaping Patronage

Arafat welcomes Amr Moussa in 1993. AFP file photo
Arafat welcomes Amr Moussa in 1993. AFP file photo

In the final episode of his interview with Asharq Al-Awsat, former Egyptian Foreign Minister and ex-Arab League Secretary-General Amr Moussa reflected on his encounters with some of the Arab world’s most prominent leaders, offering personal insights and candid recollections.

Moussa described the late Moroccan King Hassan II as “the embodiment of intelligence,” saying that conversing with the monarch required keen attention and careful reading between the lines.

“You’d state your opinion, and he would respond. His words were precise, and if you listened closely, you could discern whether he agreed or disagreed without him needing to say so explicitly,” Moussa said.

He recalled a moment of quiet diplomacy with King Hassan II over the invitation of the Sahrawi delegation to an Arab-African summit in Cairo.

“He told me very clearly, ‘I do not agree at all. Please inform the president that I am uncomfortable with this and do not wish to open unnecessary doors.’”

Moussa said he responded by explaining that Egypt would not be issuing the invitation itself - that would fall to the Secretary-General of the Organization of African Unity - and that the Egyptian president would not officially receive the Sahrawi delegation.

“I told him this would be handled formally and with discretion,” Moussa recounted. “When I said the word ‘formally,’ he repeated it, and I said, ‘Is there anything more significant than formal protocol, Your Majesty?’ He laughed. He didn’t say yes or no, but I understood his position.”

Moussa added that King Hassan reiterated his discomfort but did not object to the arrangement Moussa had outlined.

Turning to other regional figures, Moussa described Jordan’s late King Hussein bin Talal as “a skilled captain navigating turbulent waters,” and characterized the late Palestinian leader Yasser Arafat as “mercurial, a master of maneuvering to evade any form of guardianship.”

He expressed admiration for the diplomatic legacy of the late Saudi Foreign Minister, Prince Saud Al Faisal, and spoke appreciatively of the experience of Iraq’s former foreign minister Hoshyar Zebari.

Away from politics, Moussa shared a personal side, revealing his fondness for the poetry of Al-Mutanabbi and the music of Egyptian composer and singer Mohammed Abdel Wahab.

Moussa praised Jordan’s late King Hussein for his deft political navigation, and said his son, King Abdullah II, has inherited many of those skills in managing the kingdom through difficult times.

“I have great admiration for Jordan and deep affection for its people,” Moussa said.

“King Hussein had an exceptional ability to maneuver through enormous storms, sparing Jordan from many disasters and emerging relatively unscathed. It was a remarkable achievement.”

He said King Abdullah had inherited much of his father’s political instinct.

“I believe King Abdullah learned a lot from him and carries forward that legacy. From the time of King Hussein, Jordan has been a well-organized and orderly society.”

Acknowledging the political and economic challenges the country faces, Moussa noted, “Of course, there are political difficulties and issues like poverty just as in many of our countries but I’m speaking about governance. From the outside, Jordan appears to be managed with an extraordinary level of intelligence despite immense internal, regional, and geopolitical pressures.”

Arafat the Ultimate Wily

Asked whether he missed the late Palestinian leader Yasser Arafat, Moussa offered a complex reflection.

“I pray for his soul. He was an extraordinary figure - charismatic, cunning, and unpredictable,” he said. “In Egypt, we’d call someone like that wily - he’d say and not say, appear and disappear, agree and disagree, all at the same time.”

Moussa described Arafat as a mirror of the Palestinian struggle. “Palestinians had to do everything they could for their cause, and that often meant being unpredictable, agile - even cunning. Arafat embodied that.”

He added, “There’s no doubt he was a nationalist. He was never willing to be an agent, submissive, or beholden to any other power. That was one of his greatest traits and perhaps one of his greatest flaws.”

“Arafat didn’t see things in black and white or even in shades of gray. But politics is about handling complexity. Sometimes you need to be decisive and firm, and at other times flexible and adaptive. That’s what politics demands.”

Moussa described Arafat as a master political tactician whose elusive maneuvering often drew fierce criticism, especially in his absence.

“Yes, he faced harsh attacks,” Moussa told Asharq Al-Awsat. “The insults often came when he wasn’t present, and he was aware of that.”

Moussa recalled a meeting in Cairo during preparations to resolve the Gaza file, a move that ultimately paved the way for Arafat’s return to Palestinian territory via Gaza.

“It was a positive step that should have been built upon,” he said.

“President [Hosni] Mubarak was very angry at the time. I think he even muttered something, not directly at Arafat, saying, ‘This is kids’ play.’”

Arafat, according to Moussa, was deeply distrustful of the Israelis. “And he was right to be,” he added. “Still, before taking any action, we had to study every angle to ensure things unfolded smoothly.”

Despite the progress, Arafat continued to hedge. “He signed, but with reservations. That frustrated President Mubarak,” Moussa said. “But I managed to convince him that the other side wasn’t exactly above suspicion either.”

Arafat’s position on the 1990 Iraqi invasion of Kuwait cost him dearly in the Arab world. “He had many enemies, especially after the Iraq-Kuwait crisis. That created significant turmoil,” Moussa said.

He noted that insults were not part of traditional Arab diplomacy. “They became more common with the rise of military coups. Suddenly, accusations of treason became routine.”

The Tunis Summit: A Diplomatic Low Point

When asked about the most difficult Arab summit he attended, Moussa pointed to the 2004 Arab League summit in Tunis, which was postponed at the last minute amid mounting tensions.

“Every summit was difficult, but that one stands out,” he said. “It was a storm of disputes, and I found myself at the center of one.”

The controversy erupted after Moussa, then Secretary-General of the Arab League, agreed to have Arab literature featured as the guest of honor at the Frankfurt Book Fair.

“The request came to me through Ghassan Salamé. He explained the proposal in my office in Cairo. I told him: ‘Tell them I accept.’ As Secretary-General, I had the authority to do so.”

The decision was initially approved by Arab culture ministers. But once it reached foreign ministers, questions arose. “They asked: ‘Is the Secretary-General entitled to make such decisions?’ I told them yes. But if they disagreed, I would present it to the summit.”

The backlash was swift. “It became a major issue, one that escalated quickly. There were other contentious items as well,” Moussa said.

Faced with the mounting discord, then-Tunisian President Zine El Abidine Ben Ali decided to postpone the summit just as some Arab leaders had already begun arriving.

“It wasn’t an outright cancellation but a deferral,” Moussa explained. “Ben Ali was right. The atmosphere was too tense, with unresolved disputes. It wouldn’t have been productive.”

Tunisian State Minister Habib Ben Yahia informed the delegation of the delay, which left many shocked.

“Later, President Ben Ali summoned me to his office,” Moussa recalled. “He asked for my opinion. I told him I understood the decision, but we had to set a new date. It was late March. I suggested May. He agreed.”

Around the same time, Moussa saw a statement from an Egyptian official offering to host the summit if Tunisia could not. “I told President Ben Ali I would look into the matter and get back to him,” he said.

Moussa has recounted a high-stakes meeting with President Mubarak following the sudden postponement of the 2004 Arab League summit in Tunis, describing the diplomatic balancing act that followed.

Moussa said that before leaving Tunis for Cairo, he contacted presidential chief of staff Zakaria Azmi and requested an immediate meeting with Mubarak upon arrival. “I was told the president would see me the next morning at 9 a.m.,” he said.

On arrival at the presidential palace, he was informed by a staff member that Mubarak was meeting with Prince Saud and Egyptian Foreign Minister Ahmed Maher.

“I asked him to inform the president I had arrived. He came back and said, ‘The president says to come in.’”

Inside the room, Prince Saud was seated to Mubarak’s right, with Maher next to him. Moussa took the chair facing the president.

“Mubarak asked me directly, ‘What are you going to do about this, Amr?’” Moussa recalled. “I told him, ‘Mr. President, the situation was indeed complicated. Perhaps the decision (to postpone) wasn’t ideal, but there were real difficulties.’”

He explained that the summit had been Tunisia’s turn to host and that he had already spoken with Ben Ali. “I told him we must agree on a new date - May - and that it must be held in Tunis. I said this message should come from you directly.”

Mubarak, Moussa said, responded positively: “You’re right. I feel reassured by this.”

Moussa said Saudi Arabia’s late foreign minister, Prince Saud, had a look of “relief and joy” when Egypt backed holding the 2004 Arab League summit in Tunis, following a postponement that had stirred diplomatic tensions.

“It was as if mercy had descended upon him,” Moussa told Asharq Al-Awsat.

“Prince Saud was visibly pleased. As secretary-general, I insisted the summit must take place in Tunis. In fact, Prince Saud had come to Cairo for the same reason. He feared that relocating the summit would spark a crisis between Egypt and Tunisia, or even with the Maghreb.”

He added, “I returned to Tunis the following day and informed President Ben Ali that the summit would indeed be held there the next month. We then sat together discussing our mutual admiration for Mohamed Abdel Wahab. He was a great fan and had collected all his recordings.”

On the Fate of Arab Leaders

Asked how he felt when reflecting on the downfall of Arab rulers such as Muammar Gaddafi, Saddam Hussein, Ali Abdullah Saleh, Hosni Mubarak and Zine El Abidine Ben Ali, Moussa said:

“May God have mercy on them. They made grave mistakes and failed to see the momentum that was building. That momentum was evident in the discourse around a ‘new Middle East.’ If good governance had existed in those countries, the people would have protected their leaders. But what happened showed the deep need for change.”

Praise for Arab Diplomacy

Moussa also spoke highly of several Arab foreign ministers he worked with, saying many were “exceptional professionals who conducted themselves with integrity.”

He singled out Prince Saud as “an extraordinary figure - wise, respected, and trusted deeply by King Abdullah. The king would rely on his assessments and act accordingly.”

“We had a strong mutual respect,” he added. “His support was critical in rallying Arab momentum behind the Palestinian cause, Arab League reform, and the League’s renewed dynamism. He defended our positions - including when I led Arab reconciliation efforts in Beirut. European diplomats would tell me how Prince Saud described me as a unified Arab voice. He stood by me at the UN and attended regional summits - from Latin America to the Arab world - whenever I called on him.”

Moussa also praised Zebari, Iraq’s former foreign minister, calling him “a Kurdish minister who often sounded more Arab than many Arabs.”

“He clearly articulated Arab interests and was always ready to step in diplomatically to defuse tensions - whether between ministers or between ministers and the secretary-general. He was a thoroughly positive presence,” Moussa said.

He also acknowledged the contributions of Tunisia's Habib Ben Yahia, Kuwait's Sheikh Sabah Al-Ahmad Al-Jaber Al-Sabah, Qatar's Hamad bin Jassim Al Thani, Oman's Yusuf bin Alawi, and Jordan's Nasser Judeh and Ayman Safadi, noting their professionalism and dedication to Arab unity.

Moussa recalls working with dozens of Arab foreign ministers over the years, singling out those who left a lasting impression. Among them was Tunisia’s Habib Ben Yahia, who also served as defense minister. “A well-balanced figure and a strong advocate for the Arab position,” Moussa said.

But one man, he noted, stood apart: Sheikh Sabah Al-Ahmad Al-Sabah, Kuwait’s former foreign minister and prime minister, who later became Emir. “He had a unique ability to read the room. Before tensions escalated, he would call for consultations or suspend a meeting, preventing crises before they erupted. Without his timely interventions, some meetings would have ended in chaos,” Moussa said. “His leadership as Emir was undeniably impactful.”

Another key figure was Qatar’s Hamad bin Jassim Al Thani. “You could write pages about his intelligence and agility,” said Moussa. “He knew how to secure gains for Qatar, but also understood when to share benefits to avoid backlash. He was very smart.”

Moussa said he and Hamad maintained a candid relationship. “He would say openly: I’ll support this, but not that. There was honesty, not empty talk. Saud Al Faisal appreciated dealing with him as well. The three of us - me, Saud, and Hamad - spoke frankly.”

From Oman, Yousuf bin Alawi stood out for his quiet but disruptive style. “He would remain silent during discussions, then intervene at the end to overturn consensus if he didn’t agree. I could often predict when he’d shut something down,” said Moussa. “We were aware of his capabilities.”

On Jordan, Moussa said the kingdom produced several sharp, effective foreign ministers. “Abdel Ilah Al-Khatib was one of the good ones, followed by Nasser Judeh. The current minister, Ayman Safadi, is excellent - clear, reliable, and valuable in Arab diplomacy.”

The Arab Peace Initiative

Asked whether it was difficult to pass the Arab Peace Initiative at the 2002 Beirut Summit, Moussa replied, “Not at all. King Abdullah of Saudi Arabia backed it. It was hard to reject anything he supported.”

He recalled how Libya’s then-foreign minister, Ali Treki, was instructed to oppose the initiative. “But King Abdullah summoned him and said: There is no objection. Treki responded: Understood. He was a clever man. Rather than oppose it outright, we allowed it to pass unanimously, then expressed our reservations separately. That’s how diplomacy works.”

On Global Diplomacy

Moussa also reflected on his ties with international counterparts. “I had many friends. Hubert Védrine of France comes to mind immediately. We worked together often. James Baker had stature and presence, though I could criticize him too. Britain’s Jack Straw was important.

Germany’s Green Party foreign minister also played a key role. Some had real weight and strong political theories.”

Of Russia’s long-serving foreign minister, Moussa said: “I’ve known Sergei Lavrov for years, and he remains approachable. He is perhaps less reserved than many of his Western counterparts, warm and skilled at building relationships. He is among the world’s most important foreign ministers.”

He also spoke about his interactions with Henry Kissinger.

“We spoke often, especially about the Palestinian issue. In his later years, he was still listening, processing thoughts, even if less involved in the Middle East. He would hear perspectives from Egyptians and others critical of Israel’s conduct and America’s unconditional support. He understood that, though he wasn’t deeply engaged in his final 10 to 15 years.”

From Literature to Music: A Personal Side

Moussa reflected on the books and music that shaped him. “As a boy, I loved reading. A Tale of Two Cities taught us about life and language. Teachers were cultured and aimed to raise our standards. I also read How to Stop Worrying and Start Living, a translated self-help book. I came to believe worry is actually a useful habit. If you don’t worry, you’ll stumble.”

Asked about poetry, Moussa didn’t hesitate. “Al-Mutanabbi, of course. I still read his work. Also Ahmed Shawqi, and to a lesser extent Nizar Qabbani. Al-Mutanabbi was always relevant. Former Libyan foreign minister Abdel Rahman Shalgham never traveled without his Diwan (collection). When he was troubled, he’d read aloud from it. And Jean Obeid from Lebanon was deeply versed in Arabic literature—we had long, enriching conversations. It was a joy to listen to or recite Al-Mutanabbi.”

Moussa also shared his enduring love for classic Arabic music. “I adored Mohamed Abdel Wahab’s songs from an early age, especially his historical, non-commercial works. Magnificent. I also listen to Umm Kulthum, Fairuz, and folk legends like Sabah Fakhri. That’s real Arab artistry, music with meaning. Abdel Wahab and Umm Kulthum excelled at that, while Qabbani specialized in love. But when it came to national pride, faith, philosophy, and memory, those two giants delivered.”

On Egypt, the Presidency, and Regret

Does he hold any grudges against Egypt? “Not at all. My disappointment is for Egypt, not with it. The country could have been in a vastly different place, if not for 70 years without good governance.”

Did losing the 2012 presidential election leave a scar? “Not in the slightest,” Moussa said. “In fact, I may have thanked God. Before the vote, I realized the Muslim Brotherhood would win, but withdrawing wasn’t an option. When I lost, I held a press conference attended by 100 foreign journalists. Imagine how many would’ve come had I won. I congratulated the victors and called for democracy to prevail.”

He contrasted his response with that of other candidates. “Some went to Tahrir Square and claimed the results were false. That was not my approach. I offered my best wishes and hoped democracy would guide Egypt forward. I hold no bitterness, at least none that I can recall.”