* Category includes ratification, accession, or succession to the treaty

The Constitution of the Hashemite Kingdom of Jordan was adopted in 8 January 1952.

Relevant constitutional provisions include:

• Article 15: (1) The State guarantees freedom of opinion, and every Jordanian shall be free to express his opinion by speech, in writing, or by means of photographic representation and other forms of expression, provided that such does not violate the law. (2) Freedom of the press and publications shall be ensured within the limits of the law. (3) Newspapers shall not be suspended from publication nor shall their permits be revoked except in accordance with the provisions of the law.
• Article 16: (1) Jordanians shall have the right to hold meetings within the limits of the law. (2) Jordanians are entitled to establish societies and political parties provided that the objects of such societies and parties are lawful, their methods peaceful, and their by-laws not contrary to the provisions of the Constitution. (3) The establishment of societies and political parties and the control of their resources shall be regulated by law.

Jordan’s Constitution was amended in 2011. Articles 15 and 16 were amended as follows:

• Article 15: (1) The State guarantees freedom of opinion, and every Jordanian shall be free to express his opinion by speech, in writing, or by means of photographic representation and other forms of expression, provided that such does not violate the law. (2) Freedom of scientific research and literary, artistic, cultural, and athletic creativity shall be ensured provided that it does not contradict with the law or the public order or moral. (3) Freedom of the press, printing, publications and media shall be ensured within the limits of the law. (4) Newspapers shall not be suspended from publication nor shall their permits be revoked except by a judicial order and in accordance with the provisions of the law. (5) In case of declaration of martial law or state of emergency, it is permissible that the law imposes limited censorship on newspapers and publications, books, media and communication in matters related to public safety and national defense purposes. (6) The law shall specify means of censorship on the resources of newspapers.
• Article 16: (1) Jordanians shall have the right to hold meetings within the limits of the law. (2) Jordanians are entitled to establish societies, syndicates and political parties provided that the objects of such societies and parties are lawful, their methods peaceful, and their by-laws not contrary to the provisions of the Constitution. (3) The establishment of societies, syndicates and political parties and the control of their resources shall be regulated by law.

• The Law on Societies (Law 51 of 2008); and the Law Amending the Law on Societies (Law 22 of 2009)
• Instructions to Adjust the Positions of Societies (Ministry of Social Development Instruction 148 of 2010)
• Regulation on Private Societies (Ministry of Social Development Regulation 32 of 2010)
• Non-Profit Companies Regulation (Ministry of Industry and Trade Regulation 60 of 2007)
• Regulation to Identify the Relevant Ministry of Societies (Ministry of Social Development Regulation 13 of 2009)
• Regulation for the Collection of Charitable Donations (Ministry of Social Development Regulation 1 of 1957)
• Penal Code (Law 16 of 1960, as amended)
• Regulation on Private Societies (Ministry of Social Development Regulation 32 of 2010)
• Non-Profit Companies Regulation (Ministry of Industry and Trade Regulation 60 of 2007)
• Regulation 67 of 2010 on Unions.
• Regulation on the Provisions of the Association’s Bylaws 57 of 2010.
• Regulation on the Charity Lottery and its amendments.
• Instructions to Adjust the Legal Status of Societies (Ministry of Social Development Instruction 148 of 2010)
• Instructions on Categorizing Societies.
• Instructions on Competent Ministries.
• Instructions on Using the Societies Support Fund to Fund and Support Societies.
• Articles of Association for the General Union of Voluntary Societies (as amended in 1996)
• Order of Licensing and Registering Youth Clubs and Organizations (2005)
• Income Tax Law (Law 57 of 1985)
• Penal Code (Law 16 of 1960)
• Anti-Money Laundering Law and Counter–Terrorism Financing Law (2007)

Although the 2009 amendments streamlined and liberalized the 2008 Law on Societies, they have nevertheless been criticized by domestic and international CSOs for not going far enough. Among other changes, procedures allowing for the registration and continued operation of foundations (referred to as “closed societies”) and not-for-profit companies (“private societies”) were added; and the registration process was simplified with the creation of a one-stop location for registration. (Previously registration applications were to be passed between multiple ministries in a lengthy process that allowed for independent approval or rejection of applications by different authorities). Significantly, the 2009 amendments did not liberalize the foreign funding provisions of the 2008 law that require Jordanian societies to notify and receive approval from the full Council of Ministers (cabinet) before accepting funding from abroad.

Cybercrimes Law

In August 2023, the King endorsed the controversial “Cybercrimes Law.” After having received approval from both houses of the parliament, the King’s royal decree represents the final phase in the constitutional process of enacting the Law. The Law will only need to be published in the official newspapers to become legally binding.

We are unaware of other pending legislative/regulatory initiatives affecting civil society organizations at this time. Please help keep us informed; if you are aware of pending legal or regulatory initiatives, write to ICNL at ngomonitor@icnl.org.

According to Law 51 of 2008, as amended by Law 22 of 2009, several legal forms are available for civil society organizations (CSOs) in Jordan:

• Societies: A society is a group of at least seven individuals that provides services or conducts activities on a voluntary basis. Societies register with the Societies Registry and are supervised by the ministry relevant to their objectives. Membership is open to all individuals who meet the criteria set in the society’s articles of incorporation. Societies may benefit from income tax exemptions and can obtain charitable status.
• Closed Societies: A closed society consists of one or more member(s) and operates solely with the funds contributed by its founding members. Closed societies register with the Societies Registry, upon the approval of the Council of Ministers, and are supervised by the relevant ministry.
• Private Societies: A private society is a membership-restricted organization with no fewer than 3 and no more than 20 members. Private societies register with the Societies Registry and are supervised by the relevant ministry. If a private society’s membership is limited to one legal person, registration requires approval by the Council of Ministers. Private societies do not have open membership. Many former not-for-profit companies with objectives other than training, microfinance, health, or education have transformed into private societies.
• Foreign Societies: Branches of foreign CSOs may also register and operate in Jordan under Law 51. Registration is handled by the Societies Registry. Foreign societies may not seek local funding without prior approval from the Council of Ministers.

Funding Regulations

Societies and private societies are permitted to receive local funding, foreign funding (after notifying the Council of Ministers), and support from the public Fund for the Support of Societies. In contrast, closed societies may only use member-contributed funds. Foreign societies may not seek local funding without the prior approval of the Council of Ministers.

Under Article 29 of Law 51 of 2008, as amended by Law 22 of 2009, Christian religious entities and religious orders operating in Jordan are permitted to carry out charitable activities aimed at the public benefit. These include, but are not limited to:

• Establishing shelters, educational institutes for the needy, or community centers for the poor;
• Distributing financial or in-kind assistance;
• Providing medical treatment or care; and
• Offering other similar social services that support the public good.

All such activities require prior approval from the Board of the Registry.

According to the Regulations for the Collection of Charitable Donations, as amended, both registered and unregistered groups or individuals are prohibited from collecting donations for purposes not specified in their by-laws, unless the fundraising is specifically intended for public benefit purposes.

The Income Tax Law (Law 75 of 1985) provides for income tax exemptions for societies and other social entities with public benefit purposes. This includes religious, charitable, cultural, educational, sports, and health organizations. Societies must apply to the Income Tax Department for recognition of tax-exempt status. The Department verifies their compliance with Article 7 of thelaw and issues a decision accordingly. In addition, theIncome Tax Law allows certain societies to apply for charitable status, which provides additional tax benefits. Organizations with religious, charitable, humanitarian, scientific, cultural, sports, or professional purposes are eligible. Donations made to societies with charitable status are exempt from income tax, up to a maximum of one-quarter of the donor’s taxable income. To receive charitable status, societies must submit a request to the Council of Ministers, which verifies their eligibility and issues a decree if approved.

The right to public participation in Jordan is protected by the Constitution, several national laws, and international agreements to which Jordan is a party. While some of these frameworks are readily available online, many mechanisms and procedures—particularly ministerial regulations and policies—remain unclear to the public, as each ministry has the authority to establish its own rules. Nonetheless, there are some positive examples; for instance, the Legislation and Opinion Bureau has a public platform that allows people to comment on draft legal texts.

Under Law 51 of 2008, as amended, registration of societies is mandatory. While the law does not specify penalties for unregistered groups, it allows for the application of penalties under other laws. The Penal Code (Law 16 of 1960 and its amendments) considers unregistered societies illegal and imposes penalties of up to two years’ imprisonment on individuals who conduct activities for such groups.

Founding members of a society must be Jordanian citizens, fully competent, at least 18 years old, and free of criminal convictions involving moral offenses. Approval from the Council of Ministers is required if any founder is a non-Jordanian or a corporate entity. Council approval is also needed for the registration of closed societies and private societies with only one member.

The law provides the Council of the Societies Registry with 60 days to review a registration application, and an additional 15 days to complete the registration process upon approval. If the application is submitted through a field office of the Ministry of Social Development outside the capital, the department must forward it to the Registry within 7 days. If the application is incomplete, the Registry must notify the applicant within 15 days. In practice, therefore, applicants may wait up to 90-97 days from the submission to receive official proof of registration. The Council of the Registry may reject applications without providing a justification.

The law prohibits the registration of societies whose objectives are illegal or contrary to public order. Societies may not pursue political goals or engage in the activities of political parties. The registration and activities of masonic societies are also prohibited.

Foreign societies may register a branch in Jordan, provided their objectives are neither political nor religious.

Societies in Jordan are prohibited from pursuing political goals that are governed by the Law on Political Parties. However, neither the Law on Societies nor the Law on Political Parties defines what constitutes a “political” activity, leaving the term open to interpretation.

Societies must notify the Registry and the relevant minister of the date of their general assembly meetings at least two weeks in advance; otherwise, the meeting will be deemed illegal. Both the Minister and the Registry Officer may appoint representatives to attend these meetings. Any amendments to a society’s bylaws require the approval of the Council of the Societies Registrar.

Under Law 51 of 2008, societies are required to submit the following:

1. A copy of all general assembly resolutions within 15 days of the meeting;
2. An annual plan; and
3. An annual report detailing the organization’s activities, achievements, and any donations or funding received.

Societies with budgets of more than JOD 2,000 (USD 2,800 as of September 2025) must also submit an audited annual balance sheet. For societies with smaller budgets, financial accounts are reviewed by the relevant ministry.

Board members of societies must be Jordanian citizens who are fully competent, at least 18 years old, and have no convictions for crimes involving morals. Article 27(a) bars individuals convicted under Article 26 of the Law—such as those accepting undeclared or unreported donations—from serving on a board. In cases where a society receives undisclosed funding, the relevant minister may appoint an interim board of directors.

The Board of the Registry, on the recommendation of the relevant minister, may also merge two or more registered societies with similar objectives.

According to Article 20(b), the Board may dissolve a society if it receives foreign funding without notifying the Council of Ministers or against the decision of the Council of Ministers. Dissolution must be justified and based on the recommendation of the relevant minister. According to Article 20(a), a society is also considered dissolved if it is inactive for a year or fails to comply with legal requirements.

Anti-Money Laundering and Counter–Terrorism Financing

On April 6, 2017, the Council of Ministers issued a resolution subjecting societies and CSOs to the Anti-Money Laundering and Counter-Terrorism Financing Law 46 of 2007. This decision requires CSOs to comply with the following obligations:

1. Conduct due diligence to identify their “customers” (though the term is undefined and its meaning in relation to CSOs is unclear), including legal status, activity, nature, purpose of the business relationship (with the CSO), and the beneficiary (the person with real interest in the business relationship on whose behalf the relationship is being conducted). CSOs are also required to verify such information and monitor and record the customer’s transactions.
2. Refrain from dealing with anonymous persons (natural or legal) or persons with fictitious or anonymous names.
3. Immediately report any suspicious transactions—whether conducted or attempted—to the Anti-money Laundering Unit and maintain copies of any documents related to such transactions.
4. Comply with all regulations, instructions, and/or decision issued by the Unit.
5. Identify and manage high-risk customers, relationships, and transactions by: (a) developing and reviewing risk management systems that categorize customers according to the degree of the risk they pose and identify measures to deal with such risks; and (b) developing policies and measures to prevent misuse of technology for money laundering or terrorism financing.
6. Maintain comprehensive records of local and international transactions.

These obligations extend to all CSO branches.

Penalties for non-compliance include:

• Imprisonment for up to one year or a fine between JOD 1,000 and 100,000 (USD 1,400-141,000), or both, for failure to notify the unit of any suspicious transactions.
• A fine of JOD 5,000 to 20,000 (USD 7,050-28,200) for failing to provide the Unit with required information or obstructing the Unit’s activities.
• In cases of repeated violations, the penalties may be doubled.
• Courts may suspend a CSO’s activities for one month to one year, or order dissolution upon recurrence.

Barriers to International Contact

There are no legal restrictions on international contact.

Foreign Funding

Under Law 51 of 2008, foreign funding—including gifts, grants, or donations to a society—is subject to prior notification and approval by the Council of Ministers. In accordance with an administrative requirement issued in October 2015, societies must complete a detailed application form disclosing the source of the funds and the project to be funded. The application must include, among other things, a full project budget,  monitoring and evaluation indicators, and an explanation of how the project is linked to Jordan’s “national and development goals.” Numerous supporting documents must also be submitted.

The Council of Ministers is required to issue a decision within 30 days. If it does not explicitly reject the application within that period, the funding is considered approved by default.

If a society receives foreign funding without notifying the Council, or in violation of a rejection by the Council, the Council of Ministers will transfer the funds to the Support Fund—unless the donor objects. A society may also be subject to sanctions under this and other applicable laws, as described in previous sections.

Domestic Funding

Societies are permitted to seek domestic funding and conduct income-generating or economic activities, provided that any income is used to advance the society’s objectives and is not distributed to its founders or members.

Public fundraising is regulated under the Regulation for the Collection of Charitable Donations (Regulation 1 of 1957) and requires prior approval from the Ministry of Social Development. Registered societies wishing to collect donations for charity must submit an application to the Ministry at least one month in advance. The Ministry is required to respond within three weeks, following consultation with relevant entities and ministries and a review of the society’s activities and financial condition. According to Article 9(c) of the Law, a branch of a foreign society must obtain the prior consent of the Council of Ministers before collecting donations or receiving funding within Jordan.

If charitable donations are to be spent outside the country, they must be collected through a temporary committee authorized by the Ministry. The society must provide evidence that the donations are for charitable purposes and must obtain authorization from the Ministry of Finance to spend the donations—whether cash or in-kind—abroad.

Collection committees are not permitted to collect donations more than twice per year, unless the society’s governing documents include multiple activities. Once donations are collected, they must be deposited into the society’s bank account, and the Ministry must be informed of the amount and date of deposit.

Societies’ accounts are not protected by banking secrecy and must be disclosed upon request by the relevant minister or the Societies Registry.

There are a few notable legal restrictions on free speech:

Criminal Defamation: Any expression that constitutes defamation or libel of government officials is subject to sanction under the Penal Code. The Code defines defamation and libel to include false accusations or disrespect conveyed through speech, writing, drawings, or other means. When directed at public officials, these offenses carry more severe penalties—ranging from two weeks to three years of imprisonment. Under the Cybercrimes Law (Law No. 17 of 2023) , these offenses, along with “hate speech” conveyed online, are subject to even harsher penalties than under the Penal Code.

Political Expression: Societies are prohibited by law from conducting political activities or having political objectives. However, neither the Societies Law or the Political Parties Law defines what constitutes “political” activity. The vague terminology grants wide discretion to authorities and may deter societies from engaging in legitimate advocacy or expression.

Restrictions on Online Speech: The 2023 Cybercrimes Law imposes severe penalties for online speech deemed harmful to national unity. It establishes prison terms ranging from one week to three years and fines ranging from JOD 300 to 75,000 (USD 423-105,000 as of September 2025), depending on the offense. The law criminalizes a wide range of broadly defined acts, such as “promoting, instigating, aiding or inciting immorality,” “character assassination,” “inciting sedition or undermining national unity,” and “contempt for religions.” These vague formulations target the content of online expression, are open to broad interpretation, and fall short of international standards requiring that restrictions be lawful, pursue a legitimate aim, and be necessary and proportionate.

Lack of Legal Protections. The 1952 Constitution protects freedom of assembly, but only for Jordanian citizens. Article 16 states that “Jordanians have the right to assembly within the limits of the law.” Similarly, Article 3(a) in the Public Assemblies Law stipulates that, “Jordanians are entitled to hold public assemblies and organize demonstrations.” As a result, non-citizens are excluded from the legal protections afforded to citizens.

Article 2(e) of the 2011 Instructions Regulating Public Assemblies and Demonstrations requires participants in assemblies to cooperate with security forces to prevent individuals with prior convictions from participating in assemblies. This measure is inconsistent with the international legal principle that the right to peaceful assembly should apply to everyone.

Advance Notification. Article 4 of the Assembly Law requires organizers to notify the administrative governor (defined in Article 2 as “the governor, the district chief, or the provincial chief”) at least 48 hours before holding a public assembly or demonstration. Assemblies held without this advance notice are deemed unlawful under Article 5. This requirement effectively prohibits spontaneous demonstrations and opens the door to penalties.

Vague Provisions. The Assembly Law includes vague terms that grant authorities wide latitude to disperse public gatherings and penalize assembly participants. Article 7 permits the administrative governor to “order the dismissal of an assembly or scattering of a demonstration the way he deems fit if the assembly’s or demonstration’s objectives change.” Article 8 further states that anyone who disturbs “public security and order” or causes damage may face civil and criminal penalties. This provision duplicates existing Penal Code offenses and enables arbitrary enforcement, threatening the right to peaceful assembly.

Time, Place, and Manner Restrictions. Article 2(c) of the 2011 Instructions prohibits “slogans, cheers, cartoons, pictures, or symbols that compromise state sovereignty, national unity or law and order.” Accordingly, assemblies and demonstrations that include such elements are also prohibited under the law.

Article 2(f) forbids assemblies from disrupting vehicular or pedestrian traffic. This may not be feasible in many instances, thereby unjustifiably infringing individuals’ right to assemble peacefully in public spaces.

Penalties and Sanctions.Under Article 10 of the Assembly Law, violations may result in imprisonment for one to three months, fines ranging from JOD 200 to 1,000 (USD 282-1,410 as of September 2025), or both. These penalties are disproportionate and risk deterring individuals from exercising their right to assemble due to fear of legal consequences, even for minor infractions.

Stop cracking down on pro-Gaza protests (April 2024)
The Jordanian authorities must immediately cease their crackdown on pro-Gaza protests and immediately release dozens of activists who have been illegally detained solely because of their peaceful criticism of the government’s policies towards Israel, Amnesty International said. Since October 7, 2023, the Jordanian authorities have arrested at least 1,500 people, including about 500 detained since March following huge protests outside the Israeli Embassy in Amman in March.

Civil society organizations discuss human rights situation in Jordan (July 2023)
The Prime Ministry’s Human Rights Unit hosted a consultation meeting with civil society organizations on the fourth cycle of the Universal Periodic Review of Human Rights on Monday in order to enhance Jordan’s human rights condition. Director of the unit, Khalil Abdallat, said that the government has been committed to harmonizing its practices and legislation in accordance with international obligations by notifying the secretary-general of the UN about the steps that the Jordanian government will take to address the coronavirus pandemic in line with human rights standards.

Civil society organizations fear restrictions on work, funding (April 2023)
The Jordanian National Coalition for Non-Governmental Organizations (JONAF), along with other civil society organizations, has expressed concerns over the recent developments in legislation that they believe would restrict their work in Jordan and affect their funding approval mechanisms. As a result, JONAF has issued a position paper to make their views heard. The proposed amendments to the current Associations Law and the introduction of new funding mechanisms by the government have raised concerns amongst civil society organizations. They fear that these changes would restrict their operations, which have been ongoing in the public sphere for many decades, guaranteed by national legislation led by the Jordan Constitution of 1952, and subsequent laws and regulations.

Report: Civil society organizations’ efforts to develop and promote human rights (April 2021) (Arabic)

CSOs share civic initiatives’ success stories, launch networking platform (July 2018)

Support for writer’s assassin triggers alarm in Jordan (December 2016)

Media experts call for raising ceiling of press freedom (December 2014)

Jordan drops seven places on Press Freedom Index (February 2014)

Jordan as candidate for the UNHRC should be pressured for legal reform (November 2013)

45 Societies are registered monthly mostly for charitable purposes (November 2013)

End protester trials in state security courts (November 2012)

UN food relief agency chief stresses need to strengthen aid to Syrian refugees (November 2012)

Protesters call for king’s ‘downfall’ as demonstrations escalate (November 2012)

Jordanian website owners reject attempts to gag them (September 2012)

Jordanians protest Internet censorship law with SOPA-style blackout (August 2012)

Jordanians Debate Role of Press (September 2011)