Introduction
Bisher Al‑Khasawneh, a Jordanian economist and former governor of the Central Bank of Jordan, served as the head of the Cabinet of Jordan following his appointment as Prime Minister by King Abdullah II on 12 October 2021. His cabinet was tasked with steering the country through a period marked by economic uncertainty, demographic pressures, and regional instability. The government pursued a series of reforms aimed at fiscal consolidation, economic liberalization, and social protection, while maintaining Jordan's long‑standing commitments to regional peace and cooperation.
Background
Political Context
Jordan’s political system is a constitutional monarchy with a parliamentary democracy. The King retains significant executive powers, including the appointment of the Prime Minister and the dissolution of parliament. In the years leading up to 2021, Jordan had experienced a series of caretaker governments and frequent cabinet reshuffles, largely in response to public discontent over economic conditions and concerns about corruption. The parliamentary elections of 2016 resulted in a fragmented political landscape, with no single party able to secure a decisive majority.
Economic and Social Pressures
Prior to Al‑Khasawneh’s appointment, Jordan faced a mounting fiscal deficit, a high debt‑to‑GDP ratio, and a persistent balance‑of‑payments deficit. The country’s population growth, coupled with a large influx of refugees from Syria and Iraq, exerted additional pressure on public services and employment. The global COVID‑19 pandemic further strained the economy, reducing tourism revenue, disrupting supply chains, and limiting the country’s ability to attract foreign investment.
Formation of the Cabinet
Appointment and Mandate
On 12 October 2021, King Abdullah II appointed Bisher Al‑Khasawneh as Prime Minister. The new government was formed with a mandate to implement structural reforms, enhance fiscal discipline, and improve the business environment. The cabinet was sworn in on 21 October 2021, following the submission of the Prime Minister’s resignation letter and the appointment of the new cabinet members by the King.
Selection Criteria
The cabinet appointments were guided by several principles: a mix of technocrats and political figures, gender balance, representation of different regions, and alignment with the King’s vision for economic and social stability. Emphasis was placed on individuals with experience in public administration, finance, and the private sector, reflecting the cabinet’s reformist agenda.
Composition
Cabinet Structure
The cabinet consisted of 31 members, including ministers of 20 ministries and additional state ministers. The ministers were selected from a pool of candidates vetted by the Prime Minister’s office, with input from parliamentary committees and the King. Each minister was responsible for a specific portfolio, with the Prime Minister overseeing overall policy coordination.
Key Personnel
- Prime Minister: Bisher Al‑Khasawneh
- Minister of Finance: Yasser Badran (appointed 1 February 2023)
- Minister of Economy and Planning: Hanan Al‑Ghashe (appointed 1 March 2022)
- Minister of Health: Dr. Mahmoud Abdel‑Moneim (appointed 1 December 2021)
- Minister of Education: Dr. Randa Al‑Jabbour (appointed 1 March 2022)
- Minister of Industry and Trade: Dr. Fawzi Al‑Shara (appointed 1 December 2021)
- Minister of Environment: Dr. Rania Al‑Ghamdi (appointed 1 January 2023)
- Minister of Energy and Mineral Resources: Dr. Ahmad Al‑Zahran (appointed 1 February 2022)
- Minister of Public Works and Housing: Dr. Omar Al‑Khatib (appointed 1 March 2022)
- Minister of Human Rights: Dr. Lina Al‑Fahad (appointed 1 February 2022)
Additional state ministers were appointed to oversee specific initiatives such as digital transformation, investment promotion, and youth employment.
Policy Priorities
Economic Reform
The cabinet prioritized fiscal consolidation through expenditure rationalization and revenue enhancement. Key measures included tax reforms, reduction of subsidies, and the implementation of a value‑added tax (VAT) framework. Efforts were also directed toward improving the investment climate by simplifying licensing procedures and enhancing transparency.
Social Protection
Recognizing the vulnerabilities within Jordan’s population, the government introduced a series of social safety net programs. These included direct cash transfers, subsidized food vouchers, and housing assistance for low‑income families. The cabinet also sought to strengthen public health services, especially in rural areas, by expanding primary care facilities and improving supply chains for essential medicines.
Governance and Anti‑Corruption
Reforms aimed at improving public sector governance included the establishment of an independent anti‑corruption commission, the revision of procurement regulations, and the adoption of performance‑based management systems in ministries. The cabinet also promoted digitalization of public services to reduce bureaucratic inefficiencies.
Key Ministries and Leaders
Ministry of Finance
Under Minister Yasser Badran, the Ministry of Finance oversaw the implementation of a balanced budget amendment and the initiation of debt restructuring negotiations with international creditors. Badran also introduced a new revenue‑generation strategy that focused on expanding the tax base and enhancing tax collection efficiency.
Ministry of Economy and Planning
Minister Hanan Al‑Ghashe led the development of the National Economic Development Plan, which emphasized diversification away from the energy sector toward services, manufacturing, and technology. The plan also highlighted the importance of nurturing small and medium enterprises (SMEs) through improved access to finance.
Ministry of Health
In the wake of the COVID‑19 pandemic, Minister Dr. Mahmoud Abdel‑Moneim prioritized strengthening health infrastructure. Key initiatives included the expansion of hospital capacity, the rollout of a national health insurance scheme, and the procurement of vaccines for future pandemic preparedness.
Ministry of Education
Minister Dr. Randa Al‑Jabbour introduced reforms aimed at aligning curriculum standards with international benchmarks, increasing investment in teacher training, and expanding digital education platforms to reach remote students.
Ministry of Industry and Trade
Minister Dr. Fawzi Al‑Shara focused on boosting industrial competitiveness by promoting public‑private partnerships, enhancing export incentives, and improving logistics infrastructure through the development of industrial parks.
Economic Agenda
Fiscal Policy
Fiscal policy under the cabinet sought to reduce the public debt-to-GDP ratio from over 90% to below 70% over a ten‑year horizon. Strategies included rationalization of subsidies, strengthening the tax administration, and implementing a comprehensive VAT system. The budgetary process was redesigned to incorporate scenario analysis and contingency planning.
Monetary Policy
The Central Bank of Jordan, still headed by former governor Bisher Al‑Khasawneh, pursued a policy of maintaining price stability while ensuring adequate liquidity for the banking sector. Monetary policy tools included adjustments to the policy rate and the implementation of open‑market operations targeting the short‑term money market.
Trade Policy
The cabinet negotiated several trade agreements aimed at reducing non‑tariff barriers and enhancing export competitiveness. These included a free‑trade agreement with the European Union and a strategic partnership with the Gulf Cooperation Council (GCC) to streamline customs procedures.
Investment Promotion
To attract foreign direct investment, the government established the Jordan Investment Promotion Authority (JIPA). The authority offered tax incentives, streamlined approval processes, and a one‑stop service center for investors. The cabinet also prioritized infrastructure development projects that improved logistics, such as road upgrades and port expansions.
Social and Humanitarian Initiatives
Refugee Integration
Jordan hosts one of the largest refugee populations in the world, primarily from Syria, Iraq, and Palestine. The cabinet implemented policies aimed at integrating refugees into the labor market, providing access to education, and ensuring equitable access to public services. A key initiative was the establishment of a joint task force to coordinate aid distribution and monitor refugee welfare.
Gender Equality
Recognizing the importance of women's participation in the economy, the cabinet introduced policies to increase female labor force participation. Measures included targeted vocational training, support for women entrepreneurs through micro‑financing, and the enforcement of anti‑discrimination laws in hiring practices.
Youth Employment
With a significant youth population, the cabinet prioritized job creation through skill development programs, entrepreneurship training, and the promotion of the gig economy. A notable program was the Youth Employment Initiative, which partnered with private companies to provide internships and apprenticeship opportunities.
Health and Well‑Being
Beyond the COVID‑19 response, the cabinet emphasized long‑term health outcomes by expanding preventive care services, launching public health campaigns on non‑communicable diseases, and investing in mental health infrastructure. The Ministry of Health’s strategic plan also included the development of a national health information system to improve data collection and policy analysis.
Foreign Policy
Regional Cooperation
Jordan’s foreign policy under Al‑Khasawneh continued to emphasize peace and stability in the Middle East. The cabinet maintained active engagement with neighboring countries and supported multilateral initiatives such as the Arab Peace Initiative and the United Nations’ Sustainable Development Goals.
International Relations
The cabinet deepened ties with Western allies, particularly the United States and European Union, through cooperation on security, counter‑terrorism, and humanitarian aid. Bilateral visits and joint statements were used to reinforce commitments to regional security frameworks and to secure aid for development projects.
Diaspora Engagement
Recognizing the economic potential of the Jordanian diaspora, the cabinet introduced measures to facilitate remittance flows, promote investment by expatriates, and create cultural exchange programs. The Ministry of Foreign Affairs established a dedicated unit to coordinate diaspora outreach efforts.
Response to Regional Challenges
Water Scarcity
Water scarcity remains a pressing issue for Jordan, with limited natural freshwater resources. The cabinet launched the National Water Strategy, which included investments in desalination plants, wastewater recycling projects, and the promotion of water‑saving technologies across agriculture and industry.
Energy Security
To reduce dependence on imported oil and gas, the cabinet invested in renewable energy projects such as solar and wind farms. The Ministry of Energy and Mineral Resources issued a new Renewable Energy Initiative aimed at achieving 20% of national energy consumption from renewable sources by 2030.
Cybersecurity
Recognizing the growing threat of cyber attacks, the cabinet established the National Cybersecurity Authority. This body was tasked with developing a comprehensive cyber‑defense strategy, enhancing critical infrastructure protection, and promoting digital literacy among citizens.
Challenges and Criticisms
Economic Constraints
Despite reform efforts, critics argued that fiscal consolidation measures had not been fully implemented, leading to continued budget deficits. The high debt burden limited the government’s flexibility to respond to economic shocks.
Public Perception
Public dissatisfaction with the pace of reforms and concerns about transparency led to protests in several cities. Civil society groups called for greater accountability and participation in policy-making processes.
Governance Issues
Instances of bureaucratic inefficiency and allegations of nepotism within the cabinet sparked debates over the effectiveness of the governance reforms. The anti‑corruption commission faced accusations of being politically influenced.
Social Inequality
While social protection programs expanded, disparities persisted between urban and rural areas, and between Jordanian citizens and refugees. Critics highlighted the need for targeted interventions to address these inequities.
Reshuffles and Reforms
Cabinet Reshuffle (April 2022)
In April 2022, the cabinet underwent a minor reshuffle that replaced the Minister of Education and the Minister of Health due to performance concerns. The new appointments brought fresh perspectives on education reform and public health management.
Major Reform Initiatives (2023)
In 2023, the cabinet launched a comprehensive digital transformation plan for public services, aiming to reduce the average waiting time for bureaucratic procedures by 30%. The plan also introduced a new e‑government portal to streamline citizen interactions with state agencies.
Policy Adjustments (2024)
Facing a resurgence of COVID‑19 variants, the cabinet re‑implemented enhanced public health measures, including mandatory mask mandates in public transport and the acceleration of vaccine roll‑outs in underserved communities.
Comparative Analysis with Previous Cabinets
Economic Policy
Unlike preceding cabinets, which focused largely on short‑term stimulus measures, Al‑Khasawneh’s cabinet emphasized long‑term fiscal sustainability. The introduction of VAT and subsidy reforms marked a departure from the previous reliance on extensive social spending.
Governance Approach
While earlier governments promoted limited transparency initiatives, the current cabinet established an independent anti‑corruption commission and introduced performance‑based management across ministries, reflecting a more systematic approach to governance.
Social Programs
Compared to earlier cabinets, which prioritized large‑scale infrastructure projects, Al‑Khasawneh’s administration placed a stronger emphasis on social protection and human capital development, with an increased budget allocation for education and health services.
International Engagement
Previous cabinets maintained cordial relations with Western allies, but the current cabinet expanded engagement through multilateral forums and bilateral agreements aimed at securing aid and investment. The focus on digital diplomacy and diaspora engagement represented a novel strategic direction.
Legacy and Impact
Fiscal Discipline
The cabinet’s fiscal policies contributed to a measurable reduction in the public debt‑to‑GDP ratio, although the pace remained gradual. The successful implementation of VAT and tax reforms broadened the revenue base, providing a foundation for future economic stability.
Governance Reforms
The anti‑corruption commission’s investigations led to the prosecution of several high‑profile officials, reinforcing the perception of a more accountable public sector. The digitization of public services increased transparency and efficiency, though challenges remained in fully realizing these gains.
Social Outcomes
Expanded social protection programs improved access to essential services for vulnerable populations, particularly refugees and low‑income families. However, persistent disparities indicate the need for ongoing targeted interventions.
Regional Influence
Jordan’s active role in regional peace initiatives and security cooperation reinforced its status as a stabilizing force in the Middle East. The cabinet’s diplomatic engagements fostered stronger bilateral ties with key international partners.
Economic Diversification
Efforts to diversify the economy yielded incremental gains in the technology and manufacturing sectors, but the country’s economic structure remained heavily reliant on public sector employment and external aid. The cabinet’s policies laid groundwork for continued diversification.
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