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HARİCİYE NEZÂRETİ Skip to content Osmanlı Devleti’nde 1836’da kurulan ve Cumhuriyet döneminde Dışişleri Bakanlığı adını alan teşkilât.
Hariciye Nezâreti’nin tarihî kökleri, XVII. yüzyılda Dîvân-ı Hümâyun’un önemini kaybedip devlet idaresinin Bâbıâli’ye intikaline kadar uzanır. Reîsülküttâb ve sorumluluğundaki Dîvân-ı Hümâyun kâtipleri bu taşınma ile birlikte saraydan Bâbıâli’ye geçtiler. Bâbıâli, sadrazamın başkanlığında ikindi divanının toplandığı ve devlet meselelerinin tartışıldığı idarî merkez haline geldi. Reîsülküttâb, artan bürokratik ihtiyaçlar sonucunda Dîvân-ı Hümâyun kalemlerinde açılan yeni bölümlerin sorumluluğunu alarak sadrazamın ve ikindi divanının kâtiplik görevlerini üstlendi. Ayrıca bu dönemde gittikçe önem kazanan devletin dış ilişkilerinde daha fazla rol oynamaya başladı. Eskiden beri yabancı devletlerle haberleşme ve anlaşmaların kayıt işlerinden sorumlu olan reîsülküttâb, o sıralarda Fenerli Rumlar’dan tayin edilen Dîvân-ı Hümâyun tercümanlarının sorumluluğunu da aldı. Dış işlerindeki görevlerinin artmasıyla yüksek kademeli kalemiye memuriyetlerinden sayılmaya başlandı.
Avrupa devletlerinin XVIII. yüzyılda ve özellikle 1774 Küçük Kaynarca Antlaşması’ndan sonra beliren askerî ve iktisadî üstünlüğü, Osmanlı Devleti’nde Avrupa modellerine uygun bazı düzenlemelerin yapılmasının zorunlu olduğunu gösterdi. III. Selim’in 1793 yılından başlayarak Londra, Paris, Viyana ve Berlin’de büyükelçilik ve konsolosluk açma girişimleri ve Osmanlılar’ın Avrupa ölçülerinde kalıcı ve karşılıklı temsile dayanan diplomasi usulünü kabul etmeleri bu mecburiyetten dolayıdır. Ancak dış işleri için yeterli bir sistem kurulamadığı gibi Bâbıâli’de dış işlerinde uzmanlaşmış bir kadro ve tutarlı dış politikalar üretebilecek bir karar alma mekanizması da oluşturulamadı. Bu dönemde reîsülküttâb, bir hariciye nâzırının yüklenmesi gereken bazı sorumlulukları üzerinde toplamaya başlamakla birlikte kalıcı bir dış politika yürütebilecek alt yapı hazırlanamadı. Ayrıca elçiliklerin işleyiş tarzı, temsil sistemi anlayışının henüz yerleşmemiş olduğunu göstermektedir. Elçilerin bu dönemdeki görevleri, Osmanlı Devleti’ni Avrupa ülkelerinde temsil etmekten çok yapılacak reformlar için fikir toplamak ve Avrupa devletlerini tanıtmaktı. Nitekim Prusya’ya gönderilen Azmî Efendi ile Viyana’ya tayin edilen Ebûbekir Râtib Efendi’nin sefâretnâmeleri bunun açık delilleridir.
III. Selim’in başlattığı yenilikleri devam ettiren II. Mahmud dış işleri sisteminin örgütlenmesinde önemli adımlar attı. İlk olarak Mora isyanı sırasında isyancılarla iş birliği yaptıkları tesbit edilen Rum asıllı Dîvân-ı Hümâyun tercümanlarının görevlerine son verip müslüman tercüman yetiştirmek üzere Bâbıâli Tercüme Odası’nı kurdu (1821). Gerçek gelişmesi ancak 1830’larda başlayan bu kurum, Osmanlı ordularının Mısır valisi Kavalalı Mehmed Ali Paşa tarafından Konya’da bozguna uğratıldığı (1832) ve Ruslar’la Hünkâr İskelesi Antlaşması’nın yapıldığı (1833) dönemde yeniden gözden geçirildi. Tanzimat devrinde Hariciye nâzırlığına, hatta sadrazamlığa yükselecekler için bir atlama taşı sayılacak olan Tercüme Odası 1833’ten itibaren önem kazanmaya başladı. Ayrıca Mısır meselesi yüzünden sıklaşan dış ilişkiler karşısında II. Mahmud, III. Selim’den sonra gerileyen elçilik ve konsolosluk teşkilâtını yeniden ihya etmeye karar verdi. Mustafa Reşid Bey’i (Paşa) 1834’te Paris’e tayin ederek Avrupa başşehirlerinde dâimî elçiliklerin yeniden kurulmasına girişti. Böylece Osmanlı Devleti ve ondan sonra kurulan Türkiye Cumhuriyeti Devleti’nin diplomatik temsili 1830’lardan günümüze kadar aralıksız sürdürüldü. II. Mahmud saltanatının son yıllarında daha önemli yenilikler yaptı. Reîsülküttâba “Hariciye nâzırı” unvanı verip bazı teşkilât değişikliklerini de yaparak Hariciye Nezâreti’ni kurdu (1836). Aynı tarihte Sadâret Kethüdâlığı Dahiliye Nezâreti’ne dönüştürüldü. Ardından Maliye Nezâreti’ni kuran padişah 1838’de sadrazamlığı başvekilliğe dönüştürdü. Amacı, hem merkezi güçlendirmek hem de iktidarı kendi eline almaktı. Fakat böyle bir politik amacı bulunmayan Abdülmecid, 1839’da tahta çıkınca başvekillik tekrar sadrazamlığa çevrilirken nezâretlere dokunulmadı. Reîsülküttaplıktan Hariciye nâzırı unvanını alan ilk devlet adamı Mehmed Âkif Paşa’dır.
Yeni nezârete çalışma yeri olarak Viyana sefiri Rıfat Bey’in konağı tahsis edilmişti. Nâzıra yardımcı olmak üzere bir de müsteşar tayin edildi. 1838’e kadar merkez bürolarda aynı görevliler hem iç hem dış işlerini yürütmekteydiler. Halbuki bu görevlerin her biri artık uzmanlık derecesinde bilgiyi gerektiriyordu. Bundan dolayı Dahiliye ve Hariciye nezâretlerinin kadrolarının da uzmanlaştırılması amacıyla Dahiliye ve Hariciye memurları ilk defa olmak üzere birbirinden ayrıldı.
1846’da diğer ülkelerden gelen elçi ve devlet adamlarıyla ilgilenmek ve gerekli merasimleri uygulamak üzere Hariciye Teşrifatçılığı, 1851’de ülke içindeki azınlıklar ve konsoloslarla alâkalı yazışmaları yürütmekle görevli Hariciye Mektupçuluğu ve 1856’da artan dış yazışmalarla ilgilenmek amacıyla Tahrîrât-ı Ecnebiyye Odası kuruldu. Nezâretin merkez teşkilâtı ihtiyaçlar oranında gittikçe gelişmişti. Daha sonra oluşturulan birimlerden Mezâhip Odası, önceleri beylikçinin görevleri arasında yer alan devletin gayri müslim unsurlarıyla ilgili kayıtlara, Hariciye kitâbeti de Osmanlı tebaası ile gayri müslimler arasında meydana gelen hukukî davalara bakmaktaydı (daha sonra Deâvî-i Hâriciyye Kitâbeti adını almıştır). 1868 Devlet Salnâmesi’nde görülen Hariciye Evrak Müdürlüğü nezâretin evrak akışı ile, bir yıl sonraki salnâmede yer alan Hariciye Matbuat Kalemi de yerli ve yabancı gazete ve matbuatı takip etmek ve işlemlerini yürütmekle görevliydi.
Tuğrakeş Odası ile Âmedî, Divan, Mühimme, Ruûs ve Tahvil gibi eski Dîvân-ı Hümâyun kalemleri reîsülküttaplıktan kalma bir miras olarak nezâret bünyesinde bırakıldı. Bunlardan Ruûs ve Tahvil kalemlerinin dışında kalanlar önem ve fonksiyonlarını nezâretin kurulmasından sonra da devam ettirdiler. Nitekim çıkan bütün kanun ve nizamnâmelerle Osmanlı Devleti’nin diğer devletlerle imzaladığı anlaşma ve muâhedelerin kayıtlarının muhafaza edildiği bir yer olan Divan Kalemi çalışmalarını 1880’lere kadar nezâret bünyesinde sürdürmüş ve daha sonra sadârete bağlanmıştır. Ruûs ve Tahvil kalemlerinin varlıkları ise fonksiyonel olmaktan çok sembolikti. Bu dairelerin memurları, Tanzimat döneminde gerçekleştirilen maaş tahsisi ve yeni personel düzenlemeleri uygulamalarından faydalandırılmayarak eski hallerinde bırakıldılar. Görevleri yeni müesseseler tarafından üstlenildiğinden etkinliklerini ve eski itibarlarını kaybettiler.
Kuruluşundan ve özellikle Tanzimat’tan itibaren Meclis-i Vâlâ ile birlikte reformların tesbit ve takipçisi olan nezâret, aynı zamanda bazı reform kurumlarının sorumlusu ve denetleyicisiydi. Nitekim 1838’de ülkede tarım, ticaret ve sanayinin geliştirilmesi amacıyla kurulan Meclis-i Zirâat ve Sanâyi, yine aynı yıl bulaşıcı hastalıkların yayılmasını engellemek ve bu konuda çalışmalar yapmak için kurulan Karantina Meclisi ile, yapılan reformları uygulayacak insanları yetiştirmek ve ülkede eğitimi yaygınlaştırmak üzere 1846’da ihdas edilen Meclis-i Maârif-i Umûmiyye Hariciye Nezâreti’nin gözetimi ve denetimi altındaydı.
II. Mahmud’un en önemli reformu, eski kalem efendilerini mülkiye memurlarına dönüştürmesidir. Merkeziyetçi padişah, çalışmaları belge oluşturmak gibi rutin işlerle sınırlı kalan kâtipler yerine ihtiyaç duyduğu idarî işlerden anlayan memurları yetiştirmek için birçok reform yaptı. Eski serpuşların yerine 1829’da fesin giydirilmesi kâtipler için kıyafet değişikliğinin başlangıcı oldu. Yeni bir sivil rütbe hiyerarşisi oluşturuldu. Ayrıca mülkiye, ilmiye ve askeriye rütbelerinin eşitlik cetvelleri yayımlandı. Yüksek dereceli memurların şevval ayında birer yıllığına tayin edilmelerinden vazgeçildi. Tayinler 1838’den başlayarak gerektiği zamanlarda yapılacaktı. Memurlara 1838’den itibaren maaş bağlanıp eski gelir türlerine son verildi. Yine aynı yıl çıkarılan Memuriyet Ceza Kanunu ile memurların yasal statülerinde önemli değişiklikler yapıldı. En önemlisi, müsâdere ve padişah cezalandırması demek olan “siyâset-i örfiyye” kaldırıldı. Memur yetiştirmek için okullar açıldı. Bu değişikliklerle, bütün hariciye ve mülkiye memurları eski hizmet şartlarının olumsuzluklarından kurtarılarak daha güvenli ve daha profesyonelleşmiş bir yapıya kavuşturuldu. Fakat 1839-1876 yılları arasında tahta çıkan padişahlar II. Mahmud kadar dirayetli olamadıkları için mülkiye memurları denetimden uzak kaldılar ve devlet teşkilâtının en kuvvetli unsurları haline geldiler. Mısır meselesinin 1839’daki kriz döneminde Avrupa devletlerine aracılık yapabilen diplomatlar söz sahibi oldular.
Bu şekilde başlayan Tanzimat döneminin önemli şahsiyetlerinden Mustafa Reşid, Fuad ve Âlî paşalar istedikleri politikaları uygulayarak reform ve Batılılaşma’yı hızlandırdılar. Hariciye Nezâreti’nin en parlak devri bu dönem oldu. Âlî, Fuad ve Ahmed Vefik paşaların yetiştiği Tercüme Odası, seçkin zümreyi yetiştiren başlıca kurum olarak ön plana çıktı. Hariciye nâzırlığından sadrazamlığa yükselmek normal bir olay haline geldi. Hariciye Nezâreti’nin merkez ve dış temsilciliklerdeki teşkilâtı geliştirildi. Telgraf ağının gelişmesiyle birlikte merkezle dış temsilcilikler arasındaki işlere süratle müdahale etme imkânı sağlandı. Yabancı dil öğrenimine önem veren Hariciye Nezâreti, Tanzimat’ın resmî eşitlik politikasının en fazla uygulandığı bir yer oldu. Fakat Fransızca bilen müslüman memurlarla bilmeyenler ayrı bürolara yerleştirildiler. Hepsi yabancı dil bilen gayri müslim memurlar da mezheplerine göre ayrıldılar. Bu dönemde göze çarpan bürokratik gelişmelerden biri de memur sayısındaki artıştır. Nitekim 1777-1797 döneminde 2000 civarında olan kalem efendilerinin yerini alan mülkiye memurlarının sayısı özellikle XIX. yüzyılın ikinci yarısından itibaren öncesiyle kıyas kabul etmez derecede artmıştı. Bunların sadece birkaç yüzü Hariciye Nezâreti memuru idi. Dahiliye gibi her vilâyette teşkilât kurması gereken nâzırlıklardan kaynaklanan bu artış daha çok Tanzimat döneminde meydana geldi. Mülkiye memurlarının sayıca artması ve nüfuz kazanmasına bir tepki olarak Yeni Osmanlılar muhalefeti oluştu. Genellikle yüksek seviyedeki ailelerden gelen ve çoğu Tercüme Odası’nda çalışmış olan Yeni Osmanlılar, Tanzimatçılar’ı devletin karar alma gücünü hesapsızca istismar etmekle suçluyorlardı. Mülkiye memurlarının gerçekten denetimden çıkmış oldukları, Tanzimat boyunca mülkiye personel sistemi için yeni kanun ve düzenlemelerin yapılmamış olmasından da anlaşılmaktadır. 1839-1871 yılları arasında padişaha ait olan iktidarı ele geçiren Tanzimatçılar’dan kendi iktidarlarını sınırlayan düzenlemeler elbette beklenemezdi. Bunu ancak II. Abdülhamid değiştirebildi. Saray ile Bâbıâli arasındaki dengeyi saray lehine çevirerek Yıldız’da merkeziyetçi bir idare kuran II. Abdülhamid, mülkiye memurları için modern bir personel sistemi kurdu. “Sicill-i ahvâl” denilen özlük kayıt sistemi oluşturuldu. Tayin, terfi ve emekliliği kanunî bir şekle sokmak için 1881-1884 yıllarında “Me’mûrîn-i Mülkiyye Terakkî ve Tekāüd Kararnâmesi” yayımlandı. Padişahın eğitime verdiği değer göz önünde bulundurulduğunda kamu hizmetlerinin rasyonelleştirilmesi için yapılan bu reformların önemi daha iyi anlaşılır. Fakat aşırı merkeziyetçi bir rejim altında bu modern personel sistemi fiilen keyfîliğin bir aracı haline geldi.
1294 (1877) tarihli salnâmeye göre Hariciye Dairesi bir müsteşarla Beylikçi-i Dîvân-ı Hümâyun, Mektûbî-i Hâriciyye, Matbuat, Tercüme Odası, Deâvî-i Hâriciyye Kitâbeti, Evrak ve Tahrîrât-ı Hâriciyye bürolarına ayrılmaktaydı.
Bu dönemde Hariciye Nezâreti önceki şöhretini koruduysa da gücünü koruyamadı. Fakat bazı olumlu gelişmeler de oldu. Nâzırlığın teşkilât açısından gelişiminde, geleneksel belge oluşturma uygulamalarına göre değil idarî işlevlerin maksatlarına göre yeni tarz müdürlükler kurma eğilimi kuvvet buldu. Eski reîsülküttâb teşkilâtından kalan, fakat dış işleriyle ilgisi az olan Dîvân-ı Hümâyun Kalemi’nin sadrazamın sekreterliğine geçmesi bu yönde bir adımdı. Fakat padişahın, hafiyeleri ve kendisine borçlu kılmak istediği adamları resmî kadrolara doldurmasıyla memurların sayısı ve maaşların intizamsızlığı da arttı. II. Abdülhamid’in Alman elçisine söylediği gibi yabancı elçilerle görüşerek dış politikayı yürüten kendisiydi. Hariciye Nezâreti’ne öyle bir durgunluk geldi ki 1885’ten 1909’a kadar yalnız iki nâzır tayin edildi. Bunlar da Kürd Said Paşa ile (1885-1895) Ahmed Tevfik Paşa idi (1895-1909). Elçilik ve konsoloslukların sayısı arttıysa da padişahın dış işleri hakkındaki görüşlerinin onların işlevlerini ne kadar etkilediği, Osmanlı elçilerinin sadece nezâretle değil doğrudan doğruya Mâbeyin ile yaptıkları sürekli mektuplaşmalardan anlaşılmaktadır.
II. Abdülhamid’in memurlar için çok baskılı rejiminden sonra 1908 inkılâbı yeni, fakat sonuç vermeyecek bir reform dönemi açtı. “Tensîkat” adı altında iki anlamlı bir reform çabası başlatıldı. Tensîkatın ilk anlamı, kadrolardan hafiyeleri ve yararsız kişileri ayıklamak olup on binlerce kişi bu şekilde görevinden uzaklaştırıldı. İkinci anlamı ise hükümet teşkilâtına yeni bir düzen vermekti. II. Meşrutiyet’in ilânından hemen sonra 1908’in Ağustos ayında çıkarılan bir hatt-ı hümâyunda geçen reformlardan biri idare hakkındaki bütün nizam ve kanunların düzeltilmesiydi. Reform, artık sıfırdan başlamak ya da eskimiş bir yapıya bambaşka biçim vermek değil, önceki yüzyılın reformlarını yeniden düzenlemek anlamına gelmekteydi. Bunun için nâzırlıklarda özel komisyonlar kuruldu. Hariciye’nin büroları hakkında ayrıntılı raporlar yazıldı. Şubat 1914’te Hariciye Nezâreti’nin ilk genel nizamnâmesi yayımlandı. Nizamnâme ile nezâretin büroları müdürlük ve umum müdürlük olarak sıralandı; birbirlerine olan işlevsel bağlantıları belirlendi ve ayrıca elçiliklerle konsolosluklar da sınıflandırıldı. Jön Türk döneminin sürekli krizleri bu dinamizmi kısıtladığı halde, Osmanlı reform döneminin sonuçları göz önüne alınırsa hem Hariciye’nin hem genel kamu idare sisteminin imparatorluktan Cumhuriyet’e geçişi devrimci değil evrimci bir süreç olarak nitelendirilebilir.
BİBLİYOGRAFYA
C. V. Findley, “From Reis Efendi to Foreign Minister: Ottoman Bureaucratic Reform and the Creation of the Foreign Ministry”, Ph. D. Dissertation , Harvard 1969.
a.mlf., Bureaucratic Reform in the Ottoman Empire , Princeton 1980; a.e. (trc. L. Boyacı – İ. Akyol), İstanbul 1994.
a.mlf., Ottoman Civil Officialdom , Princeton 1989; a.e.: Kalemiyeden Mülkiyeye: Osmanlı Memurlarının Toplumsal Tarihi (trc. Gül Çağalı Güven), İstanbul 1996.
a.mlf., “The Legacy of Tradition to Reform: Origins of the Ottoman Foreign Ministry”, IJMES , I (1970), s. 334-357.
a.mlf., “The Foundation of the Ottoman Foreign Ministry: The Beginnings of Bureaucratic Reform under Selim III and Mahmud II.”, a.e. , III (1972), s. 388-416.
İsmail Soysal, “Umûr-ı Hariciye Nezareti’nin Kurulması (1886)”, Sultan II. Mahmud ve Reformları Semineri: Bildiriler , İstanbul 1990, s. 71-80.
Ali Akyıldız, Tanzimat Dönemi Osmanlı Merkez Teşkilâtında Reform: 1836-1856 , İstanbul 1993, s. 70-91.
Cahit Bilim, “Tercüme Odası”, AÜ Osmanlı Tarihi Araştırma ve Uygulama Merkezi Dergisi: OTAM , I, Ankara 1990, s. 29-43.
Halil İnalcık, “Reisül-Küttâb”, İA , IX, 682-683.
İlber Ortaylı, “Osmanlı Diplomasisi ve Dışişleri Örgütü”, TCTA , I, 278-281.
Bu madde TDV İslâm Ansiklopedisi’nin 1997 yılında İstanbul’da basılan 16. cildinde, 178-180 numaralı sayfalarda yer almıştır.