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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.
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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.

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Long Silenced by Fear, Syrians Now Speak about Rampant Torture under Assad

People walk through a corridor of Syria's infamous Saydnaya military prison, just north of Damascus, Syria, on Dec. 9, 2024. (AP)
People walk through a corridor of Syria's infamous Saydnaya military prison, just north of Damascus, Syria, on Dec. 9, 2024. (AP)
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Long Silenced by Fear, Syrians Now Speak about Rampant Torture under Assad

People walk through a corridor of Syria's infamous Saydnaya military prison, just north of Damascus, Syria, on Dec. 9, 2024. (AP)
People walk through a corridor of Syria's infamous Saydnaya military prison, just north of Damascus, Syria, on Dec. 9, 2024. (AP)

Handcuffed and squatting on the floor, Abdullah Zahra saw smoke rising from his cellmate’s flesh as his torturers gave him electric shocks.

Then it was Zahra’s turn. They hanged the 20-year-old university student from his wrists and electrocuted and beat him for two hours. They made his father watch and taunted him about his son’s torment.

That was 2012, and the entire security apparatus of Syria’s then-President Bashar Assad was deployed to crush the protests against his rule.

With Assad’s fall a month ago, the machinery of death that he ran is starting to come out into the open.

It was systematic and well-organized, growing to more than 100 detention facilities into which tens of thousands disappeared over more than a decade. Torture, sexual violence and mass executions were rampant, according to rights groups and former prisoners.

A blanket of fear kept Syrians silent about their experiences or lost loved ones. But now, everyone is talking. After the insurgents who swept Assad out of power on Dec. 8 opened prisons and detention facilities, crowds swarmed in, searching for answers, bodies of loved ones, and ways to heal.

The Associated Press visited seven of these facilities in Damascus and spoke to nine former detainees. Some details of the accounts by those who spoke to the AP could not be independently confirmed, but they matched past reports by former detainees to human rights groups.

Days after Assad’s fall, Zahra — now 33 — came to visit Branch 215, a detention facility run by military intelligence in Damascus where he was held for two months.

There, he said, he was kept in a windowless underground cell, 4-by-4-meters (yards) and crammed with 100 other inmates. When ventilators were cut off -- either intentionally or because of a power failure -- some suffocated. Men went mad; torture wounds festered. When a cellmate died, they stowed his body next to the cell’s toilet until jailers collected corpses, Zahra said.

“Death was the least bad thing,” he said. “We reached a place where death was easier than staying here for one minute.”

A member of the security forces for the new interim Syrian government stands next to prison cells at the Palestine Branch, a detention facility operated by the General Intelligence Agency during Bashar al-Assad's regime, in Damascus, Syria, on Dec. 14, 2024. (AP)

Assad’s system of repression grew as civil war raged

After he and his father were released, Zahra fled to opposition-held areas. Within a few months, security agents returned and dragged off 13 of his male relatives, including a younger brother and, again, his father.

All were killed. Zahra later recognized their bodies among photos leaked by a defector showing thousands killed in detention. Their bodies were never recovered.

Rights groups estimate at least 150,000 people went missing since anti-government protests began in 2011, most vanishing into detention facilities. Many were killed, either in mass executions or from torture and prison conditions. The exact number remains unknown.

Even before the uprising, Assad had ruled with an iron fist. But as protests turned into a civil war that would last 14 years, Assad expanded his system of repression. New detention facilities run by military, security and intelligence agencies sprung up in security compounds, military airports and under buildings.

At Branch 215, Zahra hoped to find some sign of his lost relatives. But there was nothing. At home, his aunt, Rajaa Zahra, looked at the leaked pictures of her killed children for the first time – something she had long refused to do. She lost four of her six sons in Assad’s crackdowns. Her brother, she said, lost two of his three sons.

“They were hoping to finish off all the young men of the country.”

A site believed to be a mass grave for detainees killed under Bashar al-Assad's rule is visible in Najha, south of Damascus, Syria, on Dec. 17, 2024. (AP)

Syrians were tortured with ‘the tire’ and ‘magic carpet’

The tortures had names. One was called the “magic carpet,” where a detainee was strapped to a hinged wooden plank that bends in half, folding his head to his feet, which were then beaten.

Abdul-Karim Hajeko said he endured this five times. His torturers stomped on his back during interrogations at the Criminal Security branch, and his vertebrae are still broken.

“My screams would go to heaven. Once a doctor came down from the fourth floor (to the ground floor) because of my screams,” he said.

He was also put in “the tire.” His legs were bent inside a car tire as interrogators beat his back and feet. Afterward, they ordered him to kiss the tire and thank it for teaching him “how to behave.”

Many prisoners said the tire was inflicted for rule violations -- like making noise, raising one’s head in front of guards, or praying – or for no reason at all.

Saleh Turki Yahia said a cellmate died nearly every day during the seven months in 2012 he was held at the Palestine Branch, a detention facility run by the General Intelligence Agency. He said he was given electric shocks, hanged from his wrists, beaten on his feet. He lost half his body weight and nearly tore his own skin scratching from scabies.

“They broke us,” he said, breaking into tears as he visited the Palestine Branch. “A whole generation is destroyed.”

Documents are scattered around Branch 215, a detention facility run by Bashar al-Assad's regime, in Damascus, Syria, on Dec. 17, 2024. (AP)

The mounting evidence will be used in trials

Now comes the monumental task of accounting for the missing and compiling evidence that could one day be used to prosecute Assad’s officials, whether by Syrian or international courts.

Hundreds of thousands of documents remain scattered throughout detention facilities. Some seen by the AP included transcripts of phone conversations; intelligence files on activists; and a list of hundreds of prisoners killed in detention. At least 15 mass graves have been identified around Damascus and elsewhere around the country.

A UN body known as the International Impartial and Independent Mechanism has offered to help the new interim administration in collecting, organizing and analyzing all the material. Since 2011, it has been compiling evidence and supporting investigations in over 200 criminal cases against figures in Assad’s government.

Many want answers now.

Officials cannot just declare that the missing are presumed dead, said Wafaa Mustafa, a Syrian journalist, whose father was detained and killed 12 years ago.

“No one gets to tell the families what happened without evidence, without search, without work.”