This is a Council formed of individuals representing the opinion of the Muslims at large, to whom the Khaleefah can refer to consult them on various issues. They in turn are the representatives of the Ummah in holding the rulers accountable. This is deduced from the Messenger of Allah’s (pbuh) nomination of fourteen chiefs (Nuqaba’) from the Ansar and the Muhajireen in order to consult with them about matters. It is also deduced from the fact that Abu Bakr (rta) designated some men from the Muhajireen and the Ansar to refer to them seeking their opinion when something happened. The people of the Shura at the time of Abu Bakr (rta) were the Ulama and the people of Fatwa. Ibnu Sa’d reported from Al-Qasim that when something happened and Abu Bakr wanted to consult the people of opinion and the people of Fiqh, He called from the Muhajireen and the Ansar; ‘Umar, ‘Uthman, Ali, Abdur Rahman bin Awf, Mu’az bin Jabal, Ubai bin Ka’ab and Zaid bin Thabit. They all used to give their opinion during the Khilafah of Abu Bakr. People would also take their Fatwa. When ‘Umar became Khaleefah He would also call these people, while the Fatwa in his time was to ‘Uthman, ‘Ubai and Zaid. This indicates that it is permitted to set up a special Council that represents the Ummah in holding the rulers accountable, and to participate in the Shura. This is confirmed by texts from the Qur’an and the Sunnah. It is called the Council of the Ummah because it represents the Ummah in accounting and consultation.

It is permitted for non-Muslim citizens to be members of the Council, in order to file complaints against any injustice perpetrated against them by the rulers or against any mis-implementation of Islam upon them.