The Institutions of State in the Khilafah by Hizb ut-Tahrir

This is a Council formed by individuals representing the opinion of the Muslims at large, to which the Khalifah can refer to in regards to consulting 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) consultation with some men from the Ansar and the Muhajireen who represent their people. It is also derived from the Messenger's (PBUH) assigning some of his Sahabah for shura, he used to refer to them more than to others for seeking an opinion, such as Abu Bakr, ‘Umar, Hamza, Ali, Salman Al-Farsi, Hudhayfah, .

It is also deduced from the fact that Abu Bakr (ra) 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 (ra) were the Ulama and the people of Fatwa. Ibn Saad 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 b. Awf, Muadh b. Jabal, Ubai bin Kaab and Zayd b. Thabit. They all used to give their opinion during the Khilafah of Abu Bakr. People would also take their Fatwa. When ‘Umar became Khalifah he would also call these people. There are also evidences that call upon the Muslims to account the rulers. Muslims exercised such accounting as happened at the time of Khulafaa' Rashidun. As the Ummah is allowed to be represented in shura she is allowed to be represented in accounting. All of this indicates that it is allowed to have a special council that represents the Ummah in accounting and in the shura which is established by the text of the Quran and Sunnah. It is called the ‘Council of the Ummah’ because it represents the Ummah in shura and accounting. .

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 or the lack of services to them or the like.