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

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.

Lebanese army chief Joseph Aoun, who is being touted as a possible candidate for the presidency, is a man with a tough mission following an Israel-Hezbollah ceasefire that relies heavily on his troops deploying in the south.

Aoun, 60, was set to retire last January after heading the army since 2017, but has had his mandate extended twice -- the last time on Thursday.

The army, widely respected and a rare source of unity in a country riven by sectarian and political divides, has held together despite periodic social strife, the latest war and a crushing five-year economic crisis.
A fragile ceasefire took effect on Wednesday, ending more than a year of war between Israel and Hezbollah that has killed thousands in Lebanon and caused mass displacements on both sides of the border.
Under its terms, the Lebanese army and United Nations peacekeepers are to become the only armed presence in south Lebanon, where Hezbollah enjoys strong support and had been launching attacks on Israeli troops for months, and fighting them on the ground since late September.

The move averted a military power vacuum as the army, which boasts about 80,000 Lebanese servicemen, seeks to bolster its deployment in south Lebanon as part of the nascent truce.

But it will be a difficult task in an area long seen as Hezbollah territory, and risks upsetting the country's already delicate social balance as tensions run high over the war's course and devastation.

- 'Integrity' -

Aoun "has a reputation of personal integrity", said Karim Bitar, an international relations expert at Beirut's Saint-Joseph University.

The army chief came into prominence after leading the army in a battle to drive out the ISIS group from a mountanous area along the Syrian border.

"Within the Lebanese army, he is perceived as someone who is dedicated... who has the national interest at heart, and who has been trying to consolidate this institution, which is the last non-sectarian institution still on its feet in the country," he told AFP.

Aoun has good relations with groups across the political spectrum, including with Hezbollah, as well as with various foreign countries.

Mohanad Hage Ali from the Carnegie Middle East Center noted that "being the head of US-backed Lebanese Armed Forces, Joseph Aoun has ties to the United States".

"While he maintained relations with everyone, Hezbollah-affiliated media often criticized him" for his US ties, he told AFP.

An international conference in Paris last month raised $200 million to support the armed forces.

The military has been hit hard by Lebanon's economic crisis, and at one point in 2020 said it had scrapped meat from the meals offered to on-duty soldiers due to rising food prices.

Aoun has also been floated by several politicians, parties and local media as a potential candidate for Lebanon's presidency, vacant for more than two years amid deadlock between allies of Hezbollah and its opponents, who accuse the group of seeking to impose its preferred candidate.

Aoun has not commented on the reports and largely refrains from making media statements.

- President? -

A Western diplomat told AFP that "everyone has recognized Aoun's track record at the head of the army".

"But the question is, can he transform himself into a politician?" said the diplomat, requesting anonymity to discuss politically sensitive matters.

Bitar said that "many, even those who respect him are opposed to his election as president, because he comes from the army mostly", noting a number of Lebanon's heads of state, including recently, were former army chiefs.

Most "left a bittersweet taste", Bitar said, noting any election of Aoun could also perpetuate the idea that the army chief "systematically becomes president".

This could end up weakening the military as it creates "an unhealthy relationship between political power and the army, which is supposed to remain neutral", he added.

Hage Ali said that the idea of Aoun's "candidacy for the presidency did not receive much enthusiasm from the major figures in the political class, even those who are opposed to Hezbollah".

Aoun, who speaks Arabic, French and English, hails from Lebanon's Christian community and has two children.

By convention, the presidency goes to a Maronite Christian, the premiership is reserved for a Sunni Muslim and the post of parliament speaker goes to a Shiite Muslim.

He is not related to the previous Lebanese president Michel Aoun -- also a former army chief -- although the two served together in the military.

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