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.



Jamal Mustafa: Saddam Said ‘Qassim Was Honest, But the Party Ordered His Assassination’

Jamal Mustafa Sultan.
Jamal Mustafa Sultan.
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Jamal Mustafa: Saddam Said ‘Qassim Was Honest, But the Party Ordered His Assassination’

Jamal Mustafa Sultan.
Jamal Mustafa Sultan.

Jamal Mustafa Sultan, Saddam Hussein’s son-in-law and former deputy secretary, recalled how the late Iraqi president viewed former Prime Minister Abdul Karim Qassim as an honorable and brave man even though he was involved on an attempt on his life.

In the third installment of his interview to Asharq Al-Awsat, Mustafa said: “In 1959, a fateful decision by Iraq’s Baath Party, led by Fuad al-Rikabi, changed the course of a young man’s life. The party planned a bold attempt to assassinate Iraqi leader Abdul Karim Qassim on Oct. 7.”

When a team member dropped out shortly before the operation, Saddam, then a little-known young man, was brought in. During the ambush on Al-Rashid Street in Baghdad, Qassim was slightly injured, and Saddam was wounded by shrapnel in his leg, said Mustafa.

After the failed attempt, al-Rikabi and other senior Baath members, including Hazem Jawad and Ali Saleh al-Saadi, fled to Syria. There, al-Rikabi kept asking about Saddam until he learned that Saddam had also escaped, organizing his secret journey to Syria on his own.

Hazem Jawad, a key Baath Party leader, recalled the moment Saddam Hussein became a full party member. In a small underground apartment in Damascus, Fuad al-Rikabi led a meeting with several party members, including himself, Ali Saleh al-Saadi, and Medhat Ibrahim Juma. “Fuad praised Saddam, calling him courageous and loyal, and proposed accepting him as a full member. We all agreed,” said Jawad, according to Mustafa.

“Saddam, a tall young man with piercing eyes and dark skin, stood before us. Fuad recited the party oath, and Saddam repeated it, officially joining the Baath Party,” he continued.

“We spent the next two hours talking over tea and cake. Before leaving, Fuad announced his trip to Cairo. Saddam also asked for permission to go to Egypt to continue his law studies. We approved, as it wasn’t safe to return him to Iraq after his involvement in the assassination attempt on Abdul Karim Qassim,” recounted Mustafa.

Saddam’s respect for Qassim

It’s uncommon for a leader to praise a predecessor who survived an assassination attempt against them, but Saddam did just that. Mustafa shared the story during a meeting.

“President Qassim, may God have mercy on him, was brave and honest,” Saddam said, according to Mustafa. “I respect him for serving Iraq with integrity.”

“We were young and impulsive. We didn’t think about the reasons behind the operation or what might happen afterward. We didn’t even consider who could replace Qassim if he were gone.”

When told that Qassim’s sister was his only surviving family member, Saddam instructed that she be given a car and financial support.

Saddam also treated former President Abdul Rahman Arif with respect, despite efforts to tarnish his legacy. Mustafa noted that campaigns to smear Arif were part of a broader attempt to justify Iraq’s invasion and undermine its independence. He urged historians to seek the truth and challenge false narratives.

Abdul Karim Qassim. (Getty Images)

Mustafa's reflection on Saddam

When asked if Saddam had made mistakes, Mustafa replied: “Mr. President worked for Iraq’s progress. Like anyone, he sometimes got things right and sometimes wrong, but his goal was always to elevate the country.”

“He had no interest in wealth. Over 20 years, investigators searched for assets linked to him—land, money, anything—but found nothing. Even his political opponent, Iyad Allawi, confirmed this. Saddam was strict about protecting public funds, and this extended to his children as well,” he added.

He also criticized the current government, accusing it of seizing land and displacing Iraqis.

“They’ve taken properties from displaced residents and given them to foreigners, including Iranians, Pakistanis, and Afghans. Areas like Jurf al-Sakhar and Al-Awja have been emptied, with residents banned from returning. Some lands are controlled by foreign military intelligence, impacting not just Iraq but the region. Christians have also lost properties to militias,” noted Sultan.

He shared his own losses: “My family’s land, passed down for generations, was confiscated. An orchard over 250 years old and another property from my great-grandfather, over 200 years old, were taken simply because we’re linked to the former regime. Even if a child in our family registers property now, it’s immediately seized.”

He added: “My family and others have lost everything. While some managed to sell or keep a few properties, all of ours were taken.”

Criticism of Moqtada al-Sadr, Iraq's sectarian divide

Mustafa expressed disappointment in Shiite cleric Moqtada al-Sadr after the fall of Saddam’s regime.

“Moqtada knows the truth about who killed his father. He attended investigation meetings and knows the details. His father, Mohammad al-Sadr, had influence and even criticized the regime in Friday sermons. Despite warnings, he refused official protection before his assassination,” he said.

On claims that Saddam’s government was Sunni-dominated, Mustafa disagreed.

“At that time, we were all Iraqis. There was no emphasis on Sunni, Shiite, or Christian identities. Our shared Iraqi identity came first, and positions in the government, military, or party were based on merit. For example, Tariq Aziz, a Christian, held top roles, including foreign minister and deputy prime minister. Sectarianism wasn’t a factor,” he said.

He criticized the current leadership, accusing it of destroying Iraq’s unity.

“Today’s politics aim to change Iraq’s demographics and weaken the country. Millions of Iraqis have been displaced, not just one group but people from all regions. Over 10 million now live abroad. This isn’t a coincidence—it’s a deliberate effort to break Iraq’s unity and control its future,” noted Mustafa.

Returning to Iraq

When asked if he hopes to return to Iraq, Mustafa said: “Since 2003, all the governments in Iraq have been installed by the US occupation and are aligned with Iran to further its agenda in the region, even through militias in Iraq, Syria, Lebanon and Yemen. After the occupation began, Iran-backed militias targeted Iraq’s scientists, doctors and pilots, which led to over 10 million Iraqis fleeing the country. The human cost of this is immense and unacceptable.”

He told Asharq Al-Awsat: “Of course, I want to return to Iraq. Every patriotic Iraqi who loves their country wants to return. It’s just a matter of time. We hope, God willing, that Iraq will be liberated and strong again, and when that happens, my family and I will be among the first to return.”

Mustafa also criticized Iran’s growing influence in the region: “People here are talking about Iran’s control over four Arab capitals: Beirut, Damascus, Baghdad and Sanaa. These countries are falling apart, with militias making the decisions, not governments. The policies being followed harm these nations’ interests and their Arab identity.”

He said Saddam quickly recognized a broader plot to destabilize Iraq and the region.

“Saddam saw Iraq as a barrier to a project aimed not only at Iraq, but at the entire Arab world, threatening their existence and role,” he said.

Mustafa also blamed Iran for starting the Iraq-Iran war, citing Tehran’s clear policy of exporting its revolution, as stated in its constitution.

When asked about reports that Iraqi intelligence proposed assassinating Iran's Supreme Leader Khomeini during his stay in Baghdad, Mustafa confirmed it but explained why Saddam rejected the idea.

“Saddam was a noble and honorable man. He would never allow harm to come to a guest, especially through betrayal. He would never consider or permit such a thing.”