Shura Council

The Shura Council, also known as the Consultative Council, is an advisory or legislative body found in several Islamic and Arab countries, based on the principle of Shura (consultation) derived from Islamic governance traditions. The concept has its origin in the Qur’anic injunction that affairs of the community should be conducted through mutual consultation (amruhum shura baynahum). In modern political systems, the Shura Council serves as either a consultative chamber or an upper legislative house, depending on the country’s constitutional framework.

Historical and Religious Background

The idea of Shura originates in early Islamic political thought. During the time of the Prophet Muhammad, significant decisions concerning the Muslim community were made after discussion and consultation with trusted companions. The system continued during the Rashidun Caliphate (632–661 CE), when caliphs often sought the advice of senior companions and scholars before making state decisions.
The Qur’an, particularly in Surah Al-Shura (42:38), enjoins believers to conduct their affairs through consultation, making Shura a moral and political principle within Islamic governance. Over time, Muslim jurists and political philosophers interpreted Shura as a framework for participatory decision-making, though not necessarily equivalent to modern democracy.

Concept and Evolution

In its classical form, Shura was not a formal institution but a moral guideline emphasising consultation between rulers and the governed. In modern times, however, many Muslim-majority states have institutionalised the concept by establishing Shura Councils as either advisory or legislative bodies within their national governments.
These councils vary in powers and composition, but generally serve to provide counsel to the head of state, review draft laws, and deliberate on public policy issues. In some countries, such as Saudi Arabia and Qatar, the Shura Council functions mainly as an advisory organ, while in others, such as Oman, Egypt, and Bahrain, it operates as one of the two houses of parliament, often equivalent to an upper chamber.

Structure and Composition

While the structure of the Shura Council differs among nations, it commonly includes the following features:

• Appointment or election: Members may be appointed by the ruler, elected by citizens, or a combination of both.
• Qualifications: Members are usually chosen from among citizens of high social standing, professional expertise, or significant public service record.
• Tenure: Terms of office typically range from four to six years, with possibilities for renewal depending on national laws.
• Leadership: The council is generally headed by a Chairman or Speaker, appointed by the head of state or elected internally.

Functions and Powers

The powers of the Shura Council depend on each country’s constitutional structure. Its principal functions generally include:

• Legislative review: Examining draft laws and regulations before their approval by the ruler or the lower legislative house.
• Advisory role: Providing opinions, recommendations, and reports on matters of national policy, social development, and economic planning.
• Oversight: Monitoring the performance of ministries and government agencies, often through question sessions or reports.
• National consultation: Acting as a forum for discussing key national issues, development plans, and international agreements.

In some systems, the council’s recommendations are binding only if approved by the monarch or executive authority, while in others, it has co-legislative powers.

Shura Councils in Different Countries

Saudi Arabia: The Majlis al-Shura (Consultative Assembly) was established in its current form in 1992. It consists of 150 members appointed by the King and chaired by a Speaker. It has the power to propose laws, discuss the budget, and examine reports from ministries, though final authority rests with the King.
Qatar: Qatar’s Shura Council, reconstituted under the 2003 Constitution, has 45 members, of whom two-thirds are elected and one-third appointed by the Emir. It exercises limited legislative authority and participates in approving laws and the national budget.
Oman: Oman has a bicameral council system comprising the Council of State (Majlis al-Dawla) and the Consultative Council (Majlis al-Shura). The Shura Council, established in 1991, is elected and plays a key role in legislative review and budget discussions.
Bahrain: The Kingdom of Bahrain has a National Assembly with two chambers—the elected Council of Representatives and the appointed Shura Council. The latter acts as the upper house and participates equally in the legislative process, reviewing and approving draft laws.
Egypt: Egypt’s Shura Council (also called the Consultative Council) was created in 1980 as the upper chamber of the Parliament but was abolished in 2014 during constitutional reforms. It served primarily to provide consultative advice on laws and national matters.

Principles Underlying the Shura System

The Shura Council operates on principles deeply rooted in Islamic political philosophy:

• Consultation (Shura): Governance through collective deliberation and advice.
• Justice (‘Adl): Ensuring fairness and equity in political decisions.
• Accountability (Mas’uliyyah): Rulers and officials must be answerable for their actions.
• Public welfare (Maslahah): Decisions should serve the best interests of the community.

These principles connect the modern Shura Council to its historical and religious foundations, representing an Islamic adaptation of participatory governance.

Advantages of the Shura System

• Integration of tradition and modernity: The Shura Council incorporates Islamic values of consultation within modern administrative frameworks.
• Promotion of national unity: It provides a platform for dialogue between the government and citizens.
• Advisory expertise: Members often bring specialised knowledge to inform policymaking.
• Incremental democratisation: In some states, Shura Councils have served as a stepping stone toward more representative political institutions.

Criticisms and Limitations

Despite its symbolic and consultative role, the Shura Council faces certain criticisms:

• Limited legislative authority: In many countries, the council’s recommendations are not binding, and ultimate power remains with the ruler or executive.
• Lack of direct representation: Where members are appointed, it may not reflect the will of the people.
• Gender and diversity concerns: Although several states have begun to appoint women members, representation remains limited in certain contexts.
• Dependence on executive will: The effectiveness of the council largely depends on the extent of authority granted by the head of state.

Modern Significance

The Shura Council today symbolises a blend of Islamic consultative tradition and modern constitutionalism. Its role varies from advisory to semi-legislative, reflecting the political and social conditions of each state. In countries such as Saudi Arabia, Oman, and Qatar, gradual reforms have expanded the council’s participation in national governance, marking a cautious evolution towards more inclusive political systems.