AMMAN — When Iraqi militias threatened Ghasswan Al Taee, 36, in 2006, he fled to Jordan. Five years later and with three children born here, his state of limbo has become a constant.

Since 2003 an estimated four million Iraqis have fled their homes, the largest exodus since Israel’s creation in 1948. Deepening violence and sectarian strife have led to the internal displacement of many Iraqis and have driven others out of the country, largely to Syria and Jordan, but also to Lebanon, Egypt, Turkey and the Gulf.

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AMMAN — Ahmad Sami, 28, watched as cars passed by his makeshift tent, which he set up to sell watermelons. Mr. Sami’s business opens early and closes late and so, he said, he did not hear about the recommendations announced Saturday on reforming politics in Jordan, including laws on elections and parties.

The recommendations, produced by a National Dialogue Committee and submitted to Prime Minister Marouf Al Bakhit, propose an increase in the number of seats in Parliament from 120 to 130. They also call for an independent panel of retired judges appointed by royal decree to oversee elections, instead of the Interior Ministry.

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