Arab Political Systems: Baseline Information and Reforms Jordan www.carnegieendowment.org/arabpoliticalsystems www.fride.org/eng/Publications/Publication.aspx?

Item=787

JORDAN
At A Glance Population8 July 9::2 est. -0P Per "apita <PPP=8 9::2 est. *uman 0e?elopment Index 'an@8 #)0P8 9::2 6reedom *ouse 'ating8 9::2 Political 'igAts "i?il ,iberties 6reedom of tAe Press 'an@8 6reedom *ouse8 9::2 "orruption Index 'an@8 $ransparency International8 9::7 28:/;875; >+85:: 82 <out of 777 countries= Partly 6ree / + 798 <out of 75+ countries= /; <out of 78: countries=

UPDATES AND FORTHCOMING EVENTS ......................................................................................3 UPDATES AND FORTHCOMING EVENTS ......................................................................................3 STATE INSTITUTIONS/ SEPARATION OF POWERS.....................................................................4 STATE INSTITUTIONS/ SEPARATION OF POWERS.....................................................................4
! "#$I% &'()"* ...............................................................................................................................+ , -I.,($I% &'()"*............................................................................................................................./ J#0I"I('1...............................................................................................................................................2 ,3"(, -3% ')4 )$.............................................................................................................................8

RIGHTS .....................................................................................................................................................9 RIGHTS .....................................................................................................................................................9 P , '

'.3)(, ,I& '$I ................................................................................................................................5 -I.,($I3) ' -#,($I)- $* ! '"I. 36 'I-*$.............................................................................5 " )$ -3% ')4 )$ I)I$I($I% . (66 "$I)- 'I-*$......................................................................7+

POLITICAL FORCES............................................................................................................................16 POLITICAL FORCES............................................................................................................................16 P3,I$I"(, P('$I . ...............................................................................................................................72 "I%I, .3"I $1.......................................................................................................................................78 ELECTION RESULTS...........................................................................................................................20 ELECTION RESULTS...........................................................................................................................20
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Arab Political Systems: Baseline Information and Reforms Jordan

CONSTITUTIONAL REVISION..........................................................................................................22 CONSTITUTIONAL REVISION..........................................................................................................22 CORRUPTION........................................................................................................................................23 CORRUPTION........................................................................................................................................23 RATIFICATION OF INTERNATIONAL CONVENTIONS.............................................................24 RATIFICATION OF INTERNATIONAL CONVENTIONS.............................................................24

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Arab Political Systems: Baseline Information and Reforms Jordan

Updates and Forthcoming Events

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State Institutions/ Separation o !o"ers

E#ecutive $ranch

$Ae *asAemite Bingdom of Jordan is a parliamentary go?ernment witA a Aereditary monarcAy. "onstitution appro?ed on January 78 75/9 < nglisA $ext8 (rabic $ext=. $Ae ki ! is tAe Aead of state. *eC D D D D D D D D D D D

(ppoints tAe prime minister. (ppoints tAe members and tAe president of tAe .enate. "on?enes and adEourns tAe *ouse of 'epresentati?es. "an postpone elections to tAe *ouse of 'epresentati?es. "an dissol?e tAe parliament and dismiss tAe prime minister and tAe cabinet at Ais discretion. $Aere Aa?e been ele?en cabinet cAanges since Bing (bdullaA ascended tAe tArone in 6ebruary 7555. "an declare martial law8 tAereby suspending tAe pro?isions of tAe constitution. (ppro?es laws and promulgates tAem. Is tAe commander in cAief of tAe armed forces. "an declare war. .igns treaties. 3rders elections. (bdullaA II became @ing on 6ebruary 78 7555.

$Ae "#i$% $i i&'%#C D D Is appointed by tAe @ing8 but can only ser?e witA tAe confidence of tAe parliament. )ader 0aAabi became Prime 4inister on )o?ember 9/8 9::7.

$Ae "ouncil of 4inistersC D D D D Is appointed by tAe prime minister in consultation witA tAe @ing. Is responsible to tAe *ouse of 'epresentati?es. Initiates and drafts legislation and submits it to tAe parliament for consideration. 4ay issue pro?isional laws8 witA tAe appro?al of tAe @ing8 wAen tAe parliament is not in session or is dissol?ed. $Aese laws cannot ?iolate any pro?isions of tAe constitution. $Aey Aa?e tAe force of law until parliament recon?enes. $Ae parliament may reEect8 appro?e8 or amend pro?isional laws.

$Ae current cabinet was appointed on )o?ember 998 9::2. (ccording to Prime 4inister 4arouf alD&a@Ait8 tAe resAuffle is intended to bolster tAe go?ernmentFs
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Arab Political Systems: Baseline Information and Reforms Jordan

program of political and economic reforms. "lic@ (%#% for a full list of tAe new cabinet. %egislative $ranch

$Ae 75/9 constitution was amended to create a bicameral legislature8 M)*+i& )+, U$$)8 on 4ay 998 758:. $Ae //Dmember H-.&% -/ N-')0+%& <4aElis alD(yan=C D D D D Is appointed by tAe @ing for four years and may be dissol?ed by Aim at any time. Is usually composed of former ministers8 former members of tAe *ouse of 'epresentati?es8 senior Eudges and diplomats8 and retired generals. "an initiate legislation. ( group of ten senators may propose a bill. 4ay refer a demand for interpretation of a constitutional clause to tAe *igA $ribunal. $Ais resolution must be passed by an absolute maEority.

$Ae 77:Dmember H-.&% -/ R%"#%&% ')'i1%& <4aElis alD)uwwab= increased from 8: to 77: members tArougA a new lections ,aw8 issued by royal decree on July 998 9::7 <(rabic $ext=. $Ae composition of tAe *ouse of 'epresentati?es was cAanged again wAen tAe lection ,aw was amended in 9::; to include a six seatDGuota for women. <A#)0i2 T%3'=. 3ne Aundred and four members are elected for fourDyear terms under a plurality system from ++ multiDmember constituencies. In addition8 tAe six women candidates recei?ing tAe AigAest number of ?otes but losing tAeir bid for election in tAeir district are allocated seats in tAe *ouse of 'epresentati?es. )ine of tAe 77: seats are reser?ed for "Aristians and tAree for "ircassians. 4embers of tAese communities run against eacA otAer for tAe particular seats allotted to tAem.

$Ae maEority of deputies elected are not members of political parties. 0eputies are elected on tAe basis of tribal ties8 witA tAe exception of tAe Islamic (ction 6ront.

$Ae *ouse of 'epresentati?es Aas legislati?e powers but cannot initiate legislation. It Aas tAe rigAt to cast a ?ote of confidence in tAe cabinet.

In )o?ember 75858 tAe first parliamentary elections in 99 years were

Aeld.

Parliament may appro?e8 reEect8 or amend legislation proposed by tAe cabinet8 but is restricted in its ability to initiate legislation. Parliament may o?erride tAe monarcAFs ?eto by a twoDtAirds maEority in botA Aouses.
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Arab Political Systems: Baseline Information and Reforms Jordan

HAen tAe parliament is dissol?ed8 tAe @ing rules by decree. In June 9::78 Bing (bdullaA dissol?ed parliament and postponed elections. &etween June 9::7 and June 9::;8 977 IPro?isional ,awsJ were passed witAout parliamentary control. .ome laws restricted public liberties and otAers impro?ed tAe ci?il status of women.

Judiciar&

Jordan Aas a ci?il law system in wAicA codes are deri?ed from tAe gyptian ci?il code8 except for matters of personal status wAicA are based on religious laws. Judges are appointed and dismissed by royal decree. 4.5i2i)#6 C-. 2i+& D $Ae *igA Judicial "ouncil plays an important role in tAe appointment8 assigning8 and e?aluation of Eudges. It is Aeaded by a Eudge and represents an important guardian of Eudicial independence. Its composition is largely Eudicial8 but it also includes a representati?e from tAe 4inistry of Justice.

C-.#'& R%+i!i-.& C-.#'& D D $Ae 'eligious "ourts are subdi?ided into .Aaria "ourts and tribunals for nonD 4uslim religious communities. .Aaria "ourts Aa?e Eurisdiction o?er all matters relating to tAe personal status of 4uslims <and in cases wAen one party is nonD4uslim but agrees to adEudication by tAe .Aaria "ourts=. Personal status issues include marriage8 di?orce8 and inAeritance. ( special court appointed by tAe "ourt of "assation adEudicates disputes between two religious courts and between a religious and a ci?il court.

Ci1i+ C-.#'& <)iKamiyya= D D D D D 4agistrate "ourts Aear all minor ci?il and criminal matters. "ourts of 6irst Instance Aear appeals from magistrate courts. "ourts of (ppealC Aear appeals from courts of first instance and from religious courts. $Ae "ourt of "assation ser?es as tAe final court of appeal for all lower court cases in tAe normal court system8 but not for otAer systems <sucA as military and administrati?e courts=. 6or tAe first time in JordanLs Aistory8 a woman Eudge8 IAsan &ara@at8 was appointed as Aead of an appeals court on 4ay 988 9::7. Jordan Aas Aad women Eudges since 7552

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$Ae *igA "ourt of Justice Aears directly all administrati?e cases. $Aere are also specialiKed sections of tAe court for tecAnical matters including taxation and customs.

S"%2i)+ C-.#'& D $Ae .tate .ecurity "ourt8 composed of botA military and ci?ilian Eudges8 Aas Eurisdiction o?er offences against tAe state and drugDrelated crimes. HAile most trials in tAe ci?ilian courts are open and procedurally sound8 proceedings of tAe .tate .ecurity "ourt are closed to tAe public. .uspects referred to tAe .tate .ecurity "ourt are often Aeld in lengtAy pretrial detention and refused access to legal council until Eust before tAe trial. 0efendants cAarged witA securityDrelated offenses freGuently allege tAe use of torture to extract confessions. $wo special bodies blend Eudicial and nonDEudicial members. )eitAer is a standing bodyM botA are formed only wAen neededC D $Ae *igA $ribunal8 a special court composed of senate members and senior Eudges8 can Guestion and try ministers and Aas tAe rigAt to interpret tAe constitution wAen reGuested by tAe cabinet or eitAer Aouse of parliament. Its interpretations are binding. D $Ae .pecial $ribunal may8 upon reGuest of tAe prime minister8 interpret tAe pro?isions of any law tAat Aa?e not bee interpreted by tAe courts. It consists of tAe President of tAe AigAest ci?il courts8 two otAer senior Eudges8 a senior administrati?e official appointed by tAe cabinet8 and a senior official appointed by tAe concerned minister. Its interpretations are binding.

R%/-#$& U 5%# Di&2.&&iD $Ae *igA Judicial "ouncil does not exercise its autAority witA complete independence from tAe 4inistry of Justice. $Ae 4inistry Aas been drafting a law to transfer tAis remaining autAority to tAe "ouncil <and otAer Eudicial reforms are also under consideration=. (doption of a law would render JordanFs Eudiciary among tAe most independent in tAe (rab world. .pecial courts8 Aowe?er8 would remain under tAe Eurisdiction of tAe 4inistry of Justice. $Ae 755: )ational "Aarter < nglisA $ext= calls for tAe establisAment of a constitutional court8 but no sucA court Aas yet been constructed. $Ae Jordanian &ar (ssociation Aas been pressing tAis but tAe go?ernment Aas refused. JordanFs ci?il courts Aa?e asserted a rigAt to Eudicial re?iew of tAe constitutionality of legislation8 but tAe decision asserting tAis rigAt remains contro?ersial. Jordanian law pro?ides for lenient treatment of tAose con?icted of IAonor crimesJNtAe murder or attempted murder of women by relati?es for alleged sexual misconductNmandating a minimum of only six montAs in prison. *uman rigAts acti?ists Aa?e demanded tAat ,aw no. ;+: on "rimes of *onor be abolisAed. In 9::78 tAe go?ernment passed a pro?isional law amending (rticle ;+: wAicA no longer exempted perpetrators of Aonor crimes from tAe deatA penalty. (rticles 57 and 588 wAicA reduce tAe sentence for
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Arab Political Systems: Baseline Information and Reforms Jordan

crimes committed in a fit of fury and are freGuently referenced in Aonor crime cases8 were unaffected by tAe amendments. $Ae Jordanian )ational "ommission for Homen8 Aeaded by Princess &asma8 was appointed by tAe go?ernment to recommend tAe cancellation of (rticle ;+:. %ocal Government

$Ae local go?ernment consists ofC D D D 79 go?ernorates 97+ municipal councils 7+9 ?illage councils

4unicipalities in Jordan rely upon tAe national go?ernment for most re?enues. ( new 4unicipal ,aw was enacted in 6ebruary 9::78 under wAicA tAe mayors and councils of all municipalities will be elected8 except in (mman wAere Aalf tAe members of tAe council will continue to be appointed by tAe go?ernment. #nder tAe 9::7 law8 all mayors and Aalf of tAe council members in all municipalities were appointed. $Ae lower Aouse reEected an article tAat would Aa?e allowed tAe go?ernment to appoint municipalitiesL general managers. $Ae law also includes a 9:O Guota for women in tAe council seats8 allows Eoint membersAip in tAe parliament and municipal councils8 and reduces tAe age of eligible ?oters from 75 to 78 years. Bing (bdullaA announced in January 9::/ an initiati?e to decentraliKe political and fiscal autAority by redrawing tAe current administrati?e di?isions and transferring responsibility for planning8 spending8 and ser?ice deli?ery from tAe parliament and central ministries to directly elected local councils.

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Rights
!ersonal li$erties

$Ae Jordanian constitution guarantees freedom of assembly and speecA witAin tAe limits of tAe law but tAere is little legal protection from arbitrary arrest and detention. $Ae constitution allows tAe detention of suspects for up to +8 Aours witAout a warrant and up to ten days witAout formal cAarges. "ourts routinely grant prosecutors fifteenDday extensions of tAis deadline. (ccording to Auman rigAts organiKations8 tAere Aa?e been numerous detentions of political demonstrators on tAe grounds of public order or of in?ol?ement witA Islamist groups8 or of terrorist acti?ity8 or of gunDrunning to support tAe Intifada in tAe Palestinian territories. $Ae *ouse of 'epresentati?es appro?ed on (ugust 958 9::2 a contro?ersial draft counter terrorism law despite obEections by Islamist deputies and Auman rigAts acti?ists. $Ae draft law entitles tAe .tate .ecurity public prosecutor to detain suspects8 carry out sur?eillance8 pre?ent suspects from tra?eling8 and monitor financial assets. #nder tAe current Penal "ode8 suspects may be Aeld for only 9+ Aours before a court order autAoriKing furtAer detention is reGuired. $Ae legislation was first proposed in )o?ember 9::/ in tAe wa@e of tAe terrorist bombings in (mman. 3n .eptember 978 9::2 parliament appro?ed tAe draft iftaa <Islamic ?erdicts= law tAat reGuires written appro?al from tAe religious affairs minister for new mosGue preacAers and anyone teacAing tAe Puran in mosGues. #nder tAe law8 ?iolators face penalties of up to one montA in prison and a fine of >7+9. 3n .eptember 7; parliament appro?ed a measure tAat allows only a stateDappointed council to issue fatwas <religious edicts= and ma@es it illegal to criticiKe tAese fatwas. I(6 4Ps reEected tAe law on tAe basis tAat it curbs religious freedoms and freedom of expression. $Ae )ew 1or@Dbased organiKation *uman 'igAts HatcA pro?ides a compreAensi?e o?er?iew of Auman rigAts de?elopments in Jordan.

%egislation regulating the e#ercise o rights

P-+i'i2)+ P)#'6 L)7& D $Ae constitution of 75/9 states tAe rigAt of citiKens to set up and Eoin political parties. $Ais was confirmed by tAe Political Parties ,aw of 75//. In 75/78 martial law was declared and parties were banned until 7585.
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"urrent legislation regarding political partiesC D $Ae )ational "Aarter of 755: < nglisA $ext=8 wAicA contains guidelines for tAe conduct of political party acti?ities. D $Ae "Aarter on "i?il ,iberties <4itAaG=8 written in 7585 by a committee tAat included maEor Jordanian ci?il society groups. It affirms tAe stateFs commitment to rule of law and political pluralism. D $Ae Political Parties ,aw )o. ;9 of 7559. o In order to recei?e a license from tAe ministry of interior8 parties must Aa?e a minimum of /: members8 respect tAe constitution and tAe ideals of political pluralism8 and be committed to tAe preser?ation of national unity. o Parties can resort to tAe Eudiciary to cAallenge a decision by tAe minister of interior to deny a license. o Parties are allowed to issue publications in accordance witA tAe Press and Publications ,aw. o $Ae AeadGuarters8 communications8 and correspondence of political parties are protected by law from raids and searcAes witAout Eudicial appro?al. o -o?ernment employees are no longer allowed to belong to a political party as of 0ecember 9::9. o ( political ban on leftist and Islamist parties was lifted in 75578 opening tAe way for tAeir representation in tAe parliament.

R%/-#$& U 5%# Di&2.&&iD ( new Political Parties ,aw8 passed in 4arcA 9::7 will raise from /: to /:: tAe number of members necessary for registering or maintaining party status and raise tAe minimum number of districts from wAicA parties must draw tAeir members. xisting parties tAat do not meet tAese reGuirements will be disbanded. $Ae law also introduces state funding to political parties in accordance witA tAe number of seats won in parliamentary or municipal elections and continues to penaliKe parties for obtaining foreign funding8 wAicA tAe go?ernment claims allows parties to fall under external influence. (n independent body composed of members of tAe Eudiciary and tAe ministers of Eustice and political de?elopment will ta@e o?er tAe tas@ of granting party licenses from tAe interior ministry. $Ae law will ta@e effect after tAe 9::7 parliamentary elections.

E+%2'-#)+ L)7 D In (ugust 755;8 parliament passed an amendment to tAe election law replacing earlier pro?isions wAereby ?oters were entitled to as many ?otes as tAe number of parliamentary seats allocated for tAeir district. #nder tAe new system8 wAicA is @nows as tAe Ione person8 one ?oteJ system8 ?oters cast only one ballot for one candidate.

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Arab Political Systems: Baseline Information and Reforms Jordan

$Ais amendment is ?ery contro?ersial. "ritics belie?e it was designed to fa?or traditional elites and tribal candidates o?er political party candidates < nglisA $ext of (mendment=. ( new lection ,aw8 issued by royal decree on July 998 9::78 raised tAe number of lower Aouse seats from 8: to 7:+ and reduced tAe ?oting age from 75 to 78 <(rabic $ext=. $Ae lection ,aw was amended in 9::; to include a Guota for women of six parliamentary seats8 raising tAe number of lowerDAouse seats to 77: <(rabic $ext=. lectoral districting is considered unfair by many obser?ers because of a lac@ of balance between tAe population and tAe number of seats per district. It is also seen as intended to reduce tAe representation of areas Aea?ily populated by Jordanians of Palestinian origin. Bing (bdullaA Aas postponed elections se?eral times. In June 9::78 tAe @ing dissol?ed parliament and postponed legislati?e elections scAeduled for )o?ember 9::7 twice before tAey actually too@ place in June 9::;. $Ae reason cited was tAe instability of tAe region caused by tAe beginning of tAe Intifada in tAe Hest &an@ and tAe tensions prior to tAe conflict in IraG. "ritics belie?e tAe decision was due to concerns tAat nationalist and Islamist candidates committed to canceling JordanFs peace treaty witA Israel would sweep tAe polls.

R%/-#$& . 5%# Di&2.&&iD 3pposition to tAe current electoral law is widespread in Jordan. (cti?ists and opposition party members Aa?e been calling for a new electoral law based on proportional representation to ensure political pluralism. (ltAougA tAe go?ernment Aas repeatedly announced its intentions to reform tAe electoral law before tAe 9::7 elections8 it Aas not presented any concrete proposals.

L)7 - A&&-2i)'i- & D D $Ae ,aw on (ssociations and 6oundations of 7552 proAibits tAe use of associations for tAe benefit of any partisan organiKation. ( 9::7 pro?isional law8 endorsed by parliament in 9::+8 reGuires organiKers of public rallies to obtain permission from tAe local go?ernor tAree days before calling for any public assembly. $Ae local go?ernor enEoys ample discretion in Ais decision to autAoriKe a public rally. $Ae Jordanian .ociety for "itiKensL 'igAts <J."'= was sAut down in 3ctober 9::9 ma@ing it tAe first ci?il society institution to be closed since 7585. $Ae J."' Aad to end its acti?ities after tAe 4inister of Interior ordered its closure and tAe cancellation of its registration for alleged ?iolation of tAe .ocieties and .ocial Institutions (ct.
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Arab Political Systems: Baseline Information and Reforms Jordan

$Ae go?ernment Aas tAreatened to dissol?e tAe "ouncil of tAe Jordanian Professional (ssociations.

R%/-#$ U 5%# Di&2.&&iD ( new draft law barring professional associations from engaging in politics is awaiting a decision in parliament. $Ae Jordanian cabinet appro?ed tAe draft law on 4arcA 28 9::/. $Ae law cAanges tAe way in wAicA professional associations elect tAeir leadersAip. It stipulates tAat members of tAe local brancAes of tAe associations will elect intermediary councils and tAat tAe members of tAese councils in turn will elect eacA associationFs president and general council. $Ae draft also autAoriKes tAe (udit &ureau to inspect tAe associationsF financial records8 and restricts tAeir acti?ities to internal and professional matters. (ny e?ent tAat could be regarded as a discussion of political issues would reGuire organiKes to obtain official appro?al tAree days in ad?ance. $Ae law would also create a disciplinary council to Eudge offenses. D $Ae new draft law Aas faced opposition from association members and political acti?ists. $Aey accuse tAe go?ernment of attempting to undermine its critics8 as professional syndicates tend to be dominated by Islamists and opponents of tAe peace treaty witA Israel and of #... policies in tAe region. $Ae cAanges to tAe electoral procedures for tAe associations aim at diluting tAe influence of Islamist candidates. $Ae law also proAibits ties between tAe professional associations in Jordan and tAose in tAe Palestinian territories. ( number of parliamentarians petitioned tAe go?ernment to witAdraw tAe bill. Professional associations launcAed a campaign against tAe law.

M%5i) L)7& D $Ae 7558 Press and Publications ,aw regulates tAe acti?ities of tAe media. It grants tAe go?ernment wide discretionary powers to issue fines8 witAdraw licenses8 and order sAutdowns. (rticles in tAe Penal "ode also limit press freedom8 sucA as pro?isions tAat restrict criticism of tAe royal family8 tAe national assembly8 and public officials. $Ae Penal "ode autAoriKes tAe state to ta@e action against any person wAo incites ?iolence8 defames Aeads of states8 disseminates Ifalse or exaggerated information outside tAe country tAat attac@s state dignity8J or defames a public official. (mendments to tAe Penal "ode passed as a pro?isional law by 'oyal 0ecree on 3ctober 88 9::78 raised new concerns about freedom of tAe press. (rticle 7/: tAreatens anyone witA imprisonment for QpublisAing a story8 speecA or act in any way tAat offends national unity8 stirs people to commit crimes8 implants Aatred among members of society8 instigates sectarianism and racism8 insults tAe dignity and personal freedoms of indi?iduals8 promotes fabricated rumors8 incites otAers to riot8 sitDin or organiKe public gatAerings tAat ?iolate tAe laws of tAe country.Q In 9::;8 tAe go?ernment re?o@ed pro?isional laws enacted in 9::7D9::9 tAat criminaliKed press ?iolations.
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Arab Political Systems: Baseline Information and Reforms Jordan

D D

In 3ctober 9::;8 tAe go?ernment replaced tAe ministry of information witA an appointed *igAer 4edia "ouncil tAat formulated media policy. (n audio?isual committee o?ersees tAe licensing of pri?ate radio and tele?ision stations. ,icenses cost between 9/8::: and 7::8::: Jordanian 0inars or #.>;/8::: to #.>7+:8:::8 plus a /: percent surcAarge for stations cAoosing to co?er news and politics. $Ae go?ernment closely monitors content in tAe print media and enEoys a monopoly on tAe domestic broadcast media. Informers in newspapers reportedly alert go?ernment officials about draft articles and stories tAat migAt be considered obEectionable8 and editors and Eournalists report pressure from state officials to stop tAe publication of certain articles. $Ae Jordanian Press and Publications 0epartment announced on .eptember 9/ tAat regulations of tAe Press and Publications ,aw will be extended to websites and online publications. $Ae department stated tAat it will not attempt to censor content8 but will monitor it and prosecute if needed. Journalists and ci?il rigAts acti?ists protested tAe measure as Idamaging to freedom of expression.J (ccording to tAe annual Horldwide Press 6reedom Index by 'eporters witAout &orders8 Jordan ran@s 799 of 725 countries. $Ae index runs from 7 <most press freedom= to 725 <least press freedom=.

D D

R%/-#$& U 5%# Di&2.&&iD

JordanFs lower Aouse of parliament endorsed on 4arcA 978 9::7 cAanges to tAe contro?ersial press and publications law8 abolisAing clauses allowing imprisonment of Eournalists. Journalists operating in tAe @ingdom can face fines of up to 988::: 0inars <#. >+:8:::= for ?iolations relating to defaming religion8 offending religious propAets8 inciting sectarian strife or racism8 slandering indi?iduals8 and spreading false information or rumors. "lic@ Aere for details. $Ae draft law was first presented to parliament in 9::+ by former Prime 4inister 6aisal (l 6ayeKLs go?ernment.

P%#&- )+ S')'.& L)7 D Homen face legal discrimination in matters sucA as tAe rigAt to obtain a passport8 pension and social security benefits8 inAeritance8 di?orce8 and tAe weigAt of tAeir testimony in tAe courts <falling under tAe Eurisdiction of .Aaria courts=. HomenFs participation in tAe elections is Aindered by tAe fact tAat tAey are registered in tAe family election card and Aence obliged to ?ote in tAe same centers as tAeir Ausbands or fatAers.

R%/-#$& U 5%# Di&2.&&i7;

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In 0ecember 9::78 tAe Jordanian "abinet appro?ed se?eral amendments to tAe Personal .tatus and "i?il .tatus ,aw. $Ae amendment raises tAe legal age for marriage from 7/ for women and 72 for men to 78 for botA genders8 and allows Jordanian women legal recourse to di?orce8 subEect to certain monetary compensations. )ew restrictions on polygamy reGuire a man to inform Ais first wife of plans to marry again and to submit e?idence of Ais financial ability to support more tAan one wife. $Ae lower Aouse of parliament reEected tAese amendments. $Ae main disagreements among legislators centered on wAetAer to allow women tAe rigAt to di?orce8 to reGuire tAe Eudiciary to inform women of tAeir AusbandsL decision to remarry8 and to raise tAe age of marriage to 78. Islamist8 conser?ati?e8 and tribal members of parliament reEected tAe amendments in (ugust 9::; claiming tAat tAey Qencourage moral disintegration8 tear down family ?alues8 and are against Islamic law.Q $Ae .enate8 wAicA must appro?e lower Aouse decisions8 o?erturned tAe reEection and returned tAe bill to tAe lower Aouse for consideration. In a ?ote on June 9::+8 se?eral legislators wAo Aad pre?iously supported tAe amendments ?oted against tAem to protest tAe .enateLs action. .Aould tAe .enate upAold its decision8 a Eoint ?ote between tAe two Aouses will be Aeld and tAe law will pass if a twoDtAirds maEority endorses it.

Recent Government Initiatives A ecting Rights D In 3ctober 9::98 Bing (bdullaA launcAed a reform plan @nown as IJordan 6irst.J It was aimed at moderniKing tAe countryFs political life and at focusing it on internal affairs instead of regional conflicts. In 3ctober 9::;8 tAe @ing proclaimed Ais ?ision for compreAensi?e political de?elopment. $Ais strategy calls for a national dialogue on political reformM re?ising tAe political party law to introduce tigAter controls on funding and to ma@e registration dependent on a distinct platform and demonstrated grassroots supportM and amending electoral laws to encourage ?oting8 especially by women and youtA <'eform (genda=. 3n 3ctober 9/ 9::;8 a 4inistry of Political 0e?elopment was created in order to Iimplement Bing (bdullaALs ?ision of compreAensi?e political de?elopment.J $Ais strategy calls for a national dialogue on political reformM re?ising tAe political party law to introduce tigAter controls on funding and to ma@e registration dependent on a distinct platform and demonstrated grassroots supportM and amending electoral laws to encourage ?oting8 especially by women and youtA. $Ae )ational "enter for *uman 'igAts was also establisAed in 9::; to monitor conditions in prisons and cases of illDtreatment of political detainees and of IincommunicadoJ detention.

( 97Dmember go?ernmentDappointed steering committee for tAe Jordanian )ational (genda released its final report8 wAicA outlines a ?ision for compreAensi?e economic8 social8 and political reform o?er tAe next ten years. $Ae )ational (genda is a?ailable online in (rabic. Carnegie Endowment for International Peace &undaci'n (ara las )elaciones Internacionales * el 7+
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!olitical Forces
!olitical parties

$Aere are ;7 registered political parties. Parties can be di?ided into four broad groupsC Islamist8 leftist8 (rab nationalist8 and conser?ati?e. 4ost parties Aa?e only se?eral Aundred members. 4ost parties Aa?e been cAaracteriKed by a lac@ of leadersAip turno?er8 internal scAisms8 and a lac@ of transparency. Parties witA an Islamist "AaracterC D Islamic (ction 6ront <JabAat alD(mal alD#rduni=C 7559 D Is a political affiliate of tAe 4uslim &rotAerAood mo?ement. D Is considered tAe largest party witA tAe broadest popular base. D *as strong sAowing in elections. D "alls for tAe implementation of tAe .Aaria law in Jordan. D Presented its reform program on 3ctober 9;8 9::/. HitA tAe declared aim of IacAie?ing compreAensi?e national reform8J tAe program calls for political8 Eudicial8 economic8 educational8 social8 and administrati?e reform witAin a framewor@ tAat ac@nowledges Islam as tAe only source of legislation. $Ae document states tAat political reform must be based on tAe rotation of executi?e power and on political participation and pluralism. It also calls for a separation between tAe executi?e8 legislati?e8 and Eudicial powers8 witA a particular empAasis on increasing parliamentFs powers. $Ais entails ma@ing all state institutions accountable to parliament and ensuring full Eudicial o?ersigAt of parliamentary elections. $Ae upper Aouse of tAe bicameral parliament8 4aElis alD(yan8 sAould be dissol?ed because its members are appointed by tAe @ing and tAus are not truly representati?e. In tAe area of Eudicial reform8 extraordinary courts sAould be abolisAed and military courts sAould only try military personnel. D ,ed by Ra@i &ani IrsAeid8 considered a moderate. *e replaced *amKeA 4ansour as I(6 .ecretary -eneral on 4arcA 78. 9::2. (rab Islamic 0emocratic 4o?ementC 755; D ,ac@s wide popular reacA. D xpresses wea@ participation in political life. Islamic "enter PartyC 9::7 D Has founded by former members of tAe Islamic (ction 6ront. D Includes a number of independent Islamists. Parties witA ,eftist 3rientationsC D Jordanian "ommunist PartyC 755;
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Arab Political Systems: Baseline Information and Reforms Jordan

D D D D D D

Jordanian 0emocratic ,eft PartyC 755/ Jordanian PeopleFs 0emocratic Party <*(.*0=C 755; Jordanian Popular 0emocratic #nity PartyC 755; Progressi?e PartyC 755; Jordanian ,abor PartyC 7558 Jordanian "ommunist Hor@ers Party ,eftist PartiesC

D 3ppose JordanFs economic Iopenness.J D (re stauncA critics of normaliKation of relations witA Israel. D *a?e a wea@ political presence. D .uffer from ?arious internal splits. D -rew out of tAe 0emocratic 6ront for tAe ,iberation of Palestine and tAe Popular 6ront for tAe ,iberation of Palestine8 wAicA were present on tAe Jordanian scene but were unable to continue political acti?ity after tAe Political Parties ,aw of 7559.

(rab nationalist partiesC D D D D D D D Jordanian (rab &aatA .ocialist PartyC 755; (rab &aatA Progressi?e PartyC 755; )ational (ction Party <*aGG=C 755+ (rab ,and PartyC 7552 Jordanian (rab (nsar PartyC 755/ )ational Popular 0emocratic 4o?ementC 7557 Jordanian (rab PartyC 9::9 "onser?ati?e partiesC D D D D )ational "onstitutional PartyC 7557 6uture PartyC 7559 Jordanian Peace PartyC 7552 Jordanian "onstitutional 6rontC 755+

$Ae conser?ati?e partiesC D (re cAaracteriKed by an ideology based on Jordanian nationalism. D *a?e lin@s to tAe traditional Jordanian tribes ratAer tAan to tAe population of Palestinian origin. 3tAer PartiesC D D D D D D D D 6reedom Party <alD(Arar=C 755+ )ation Party <(lD#mma=C 7552 Jordanian -enerations Party Jordanian (rab )ew 0awn Party Jordanian 'enaissance Party Jordanian -reen Party Jordanian "itiKensF 'igAts 4o?ement Jordanian PeopleFs "ommittees 4o?ement
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D D

Jordanian 'afaA Party 4ission Party

4ain Islamist mo?ements/organiKations tAat are not recogniKed as political partiesC D 4uslim &rotAerAood 4o?ement D (ltAougA relations between tAe &rotAerAood and tAe Jordanian go?ernment Aa?e sometimes been tense8 especially following tAe 755+ signing of tAe peace treaty witA Israel8 Aistorically tAe group Aas faced far less repression tAan its counterparts in many otAer (rab countries. D $Ae Jordanian autAorities arrested nine members of tAe &rotAerAood on .eptember 8 on cAarges of preacAing in mosGues witAout an official license. $Aey Aad to sign a pledge not to gi?e sermons witAout prior appro?al from tAe autAorities. $Ae preacAing and guidance law states tAat only licensed clerics can deli?er 6riday sermons8 wAicA must be free of political content.

R%/-#$& U 5%# Di&2.&&iD Bing (bdullaA Aas presented plans to moderniKe political parties. xpressing frustration at tAe fragmentation of JordanFs political landscape and at tAe ineffecti?eness of its parties8 Ae Aas sougAt tAe e?entual consolidation of tAe political field into tAree blocs <left8 rigAt8 and center=. .ome Jordanian acti?ists expressed concern tAat tAe proposed reforms may be used to marginaliKe legitimate opposition forces.

'ivil societ&

)onDgo?ernmental organiKations <)-3s= are only allowed to wor@ in tAeir stated specialiKed field and after presenting a detailed description of tAeir acti?ity plans and budget to tAe autAorities. $Aey are not allowed to engage in political acti?ities. 6oreign funding for )-3s must be cAanneled tArougA appro?ed intermediary bodies. $Ae ministry of social de?elopment registers )-3s and controls tAeir acti?ities. $Ae Jordanian .ociety for "itiKensL 'igAts <J."'= was sAut down in 3ctober 9::9 ma@ing it tAe first ci?il society institution to be closed since 7585. $Ae J."' Aad to end its acti?ities after tAe 4inister of Interior ordered its closure and tAe cancellation of its registration for alleged ?iolation of tAe .ocieties and .ocial Institutions (ct. Professional organiKations are effecti?e political pressure groups in Jordan. *owe?er8 in )o?ember 9::98 tAe Eudiciary dissol?ed tAe council of tAe ngineers (ssociationNtAe ricAest and most powerful of tAe syndicatesNand declared tAe Professional (ssociations "ouncil to be illegal.

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Arab Political Systems: Baseline Information and Reforms Jordan

Hor@ers in tAe pri?ate sector and in some stateDowned companies Aa?e tAe rigAt to form and Eoin unions. #nions must be registered to be considered legal. Hor@ers Aa?e tAe rigAt to bargain collecti?ely8 but must recei?e go?ernment permission in order to stri@e. #nion membersAip is limited to citiKens8 excluding tAe countryFs numerous foreign wor@ers. ,abor unionsC 4ore tAan ;: percent of tAe wor@force is organiKed into 77 unions. .yndicatesC Jordanian &ar (ssociation Jordanian Press (ssociation "ouncil of Professional (ssociation Presidents

#mbrella organiKationsC D D D D $Ae -eneral 6ederation of Jordanian $rade #nions. $Ae 6ederation of Jordanian "Aambers of "ommerce. $Ae (mman "Aamber of "ommerce. $Ae Jordanian ngineers (ssociation

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Arab Political Systems: Baseline Information and Reforms Jordan

Election Results

#ni?ersal and mandatory suffrage8 78 years and older. 'esults of elections for *ouse of 'epresentati?es on )o?ember 9:8 9::7C D D D D D $ribal candidates and candidates of conser?ati?e social forcesC 58 seats. Islamic (ction 6rontC 2 seats. 2 womenC independents. %oter $urnoutC +9O of 9.+/ million eligible ?oters. D%')i+%5 #%&.+'&.

'esults of elections for *ouse of 'epresentati?es on June 778 9::;C $ribal candidates and candidates of conser?ati?e social forcesC 8+ seats. Islamic (ction 6rontC 77 seats. I)ational 0emocratic &loc@JC )one. 2 womenC 7 from tAe Islamic (ction 6ront and / independents. %oter $urnoutC /8.8O of 9.; million eligible ?oters. D%')i+%5 #%&.+'&.

"ritics of tAe 9::; elections accused tAe go?ernment of pre?enting opposition figures from standing under wea@ legal pretexts. $Aere are also accusations of ?oteDbuying and allowing ?oters to ?ote twice. 'esults of tAe municipal elections in July 9::7C D %oter $urnoutC /8O of tAe 7.5 registered ?oters. $Ae ?ote was tAe first since tAe 6ebruary 9::7 enactment of tAe new 4unicipal ,aw8 wAicA granted women a 9:O Guota and reduced tAe ?oting age from 75 to 78. $wenty women candidates abo?e tAose elected by Guota won council seats and one woman won a mayorsAip $Ae Islamic (ction 6ront <I(6= won two out of 52/ seats8 despite Aa?ing witAdrawn from tAe race. I(6 secretary general Ra@i &ani IrsAeid dismissed tAe official numbers and called for tAe Jordanian monarcA to cancel tAe election results. $Ae Islamists witAdrew tAeir 9/ candidates after polls opened8 accusing tAe go?ernment of fraud and manipulation of ?otes cast by military personnel8 wAo participated in tAe elections for tAe first time. Jordanian Prime 4inister dismissed tAe witAdrawal as illegal8 telling reporters tAat any pullout must come at least a day before tAe elections.

'esults of municipal elections in July 9::;C -

%oter $urnoutC /8O of tAe 8:;8::: eligible ?oters. %oter turnout in rural areas was mucA AigAer tAat in tAe maEor cities. HAere ?oter turnout was low8 analysts pointed to public apatAy and obEection to tAe 9::; amendment to tAe 4unicipal ,aw8 mar@ed by a boycott on tAe part of tAe Islamic (ction 6ront <I(6= in Carnegie Endowment for International Peace &undaci'n (ara las )elaciones Internacionales * el 9:
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Arab Political Systems: Baseline Information and Reforms Jordan

protest against tAe amended law. I(6 .ecretary -eneral *amKeA 4ansour cAarged tAat tAe go?ernment Aad no faitA in tAe electorate. "andidates in 77 municipalities ran unopposed. (mong tAe +2 women contenders8 only fi?e won seats. &ut tAe go?ernment pledged to appoint a woman in eacA municipality wAere women candidates failed to win a seat.

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'onstitutional Revision

( constitution was adopted in 75/9. $Ae constitution allows amendments on most issues except tAose regarding tAe rigAts of tAe @ing8 tAe royal family8 and succession to tAe tArone. $o amend tAe constitution8 a twoDtAird maEority is reGuired from botA tAe *ouse of )otables and tAe *ouse of 'epresentati?es8 or a twoDtAird maEority of a Eoint session. $o come into force8 an amendment Aas to be ratified by tAe @ing. $Ae "onstitution was amended in 757+8 75728 and 758+. In 757+8 two amendments enabled tAe Bing to dissol?e tAe parliament and postpone *ouse elections for one year. $Ae 7572 amendment enabled Aim to postpone elections indefinitely8 but currently postponement is limited to two years8 and only wAen Qcompelling circumstancesQ are deemed to impede tAe electoral process.

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'orruption

( 752: law first addressed crimes against public management8 bribery8 embeKKlements8 and conflict of interest. ( ,aw of conomic "rimes was passed in 755; to go?ern tAe misuse of public funds. .ince 9::98 tAe (udit &ureau was entrusted witA tAe tas@ of producing administrati?e procedures8 monitoring implementation of laws8 and ensuring operation of internal control units in tAe administration. (n (ntiDcorruption department was set up in 7552 witA pre?enti?e and repressi?e functions. It carries out in?estigations and refers cases to tAe public prosecutor. ( *igAer "ommittee to 6igAt "orruption was establisAed in 9::: by royal decree. (notAer )ational "ommittee for "ombating "orruption and 6a?oritism was set up in 9::; to coordinate and establisA a compreAensi?e policy for public and pri?ate sectors. 4aEor ban@ing scandals in early 9::9 tarnisAed tAe reputation of tAe country wAen doKens of prominent businessmen obtained siKeable loans witAout collateral. .ome e?en accused tAe (ntiD"orruption 0irectorate of in?ol?ement. ( tAorougA inGuiry followed8 but few con?ictions resulted. $Ae legislati?e brancA Aas in?estigated alleged corruption cAarges of prominent political figures. Bing (bdullaA on 0ecember +8 9::2 appro?ed legislation passed by parliament to figAt corruption tArougA tAe creation of a Ifinancially and administrati?ely autonomousJ sixDmember commission tas@ed witA in?estigating corruption8 including suspects among current and former officials. $o tAe dismay of many Auman rigAts acti?ists8 parliament endorsed a lastDminute amendment to allow tAe Prime 4inister to appoint tAe members. ( brancA of $ransparency International exists in gypt. $ransparency InternationalFs "orruption Perception Index 9::7 ran@s Jordan /;rd out of 78: countries..

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Arab Political Systems: Baseline Information and Reforms Jordan

Rati ication o International 'onventions

International "o?enant on "i?il and Political 'igAts <""P'= on 4ay 988 757/.

International "o?enant on conomic8 .ocial and "ultural 'igAts <" ."'= on 4ay 988 757/. $Ae "on?ention on tAe limination of (ll 6orms of $orture and 3tAer "ruel8 InAuman or 0egrading $reatment or PunisAment <"($= on )o?ember 7;8 7557. $Ae International "on?ention on tAe limination of (ll 6orms of 'acial 0iscrimination <" '0= on 4ay ;:8 757+. $Ae "on?ention of on tAe limination of (ll 6orms of 0iscrimination against Homen <" 0(H= on July 78 7559. $Ae "on?ention on tAe 'igAts of tAe "Aild <"'"= on 4ay 9+8 7557. Jordan Aas ratifies most of tAe International ,abor 3rganiKationFs 6undamental "on?entions <nondiscrimination8 cAild labor8 forced labor8 trade union rigAts= except "on?ention )o. 87 on tAe freedom of association and protection of tAe rigAt to organiKe.

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