Very much late to the party. The Jordan volume/measure/content is defined on the Jordan measurable sets (subsets of $\mathbb{R}^{n}$ whose indicator functions are Riemann integrable). These sets do not form a $\sigma$-algebra because they're not closed under countable unions, as we can see for the classical example $\mathbb{Q}\cap[0,1]$. So, as for reason 1, Jordan volume is not a measure because the indicator function of sets which are countable unions of disjoint Jordan measurable sets may not be Riemann integrable, which means (a) the volume of such unions wouldn't even be defined and (b) Jordan volume is not $\sigma$-additive on Jordan sets. More simply put, is as @Mittens said: not a measure because its domain isn't a $\sigma$-algebra.
As for reason 2, this tells us that the $\sigma$-algebra $\sigma(J)$ $\textit{generated by}$ the collection $J$ of Jordan sets in $\mathbb{R}^{n}$ is formed by the sets which can be written as the union of a borel set and a closed set. So, is Jordan volume a measure in this $\sigma$-algebra? If you keep Jordan volume as the Riemann integral of the indicator function $\chi_{E}$ of a set $E\in\sigma(J),$ you'll still fail because $\chi_{\mathbb{Q}\cap[0,1]}$ is still not Riemann integrable, even though $\mathbb{Q}\cap[0,1]\in\sigma(J).$
Swapping the Riemann integral for the Lebesgue integral and redefining the Jordan volume as $\lambda:\sigma(J)\rightarrow[0,+\infty]$ such that $$\lambda(E)=\int\chi_{E}\ d\mu$$
where $\mu$ is the Lebesgue measure gives you a measure on $(\mathbb{R}^{n},\sigma(J)).$ You can verify this in Bartle's Elements of Integration and Lebesgue Measure, page 31, corollary 4.9. So since without "adapting" the definition of Jordan volume we couldn't make it into a measure, I believe the answer for your question is "both".