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KAYMAKAM Skip to content Osmanlı idarî ve askerî teşkilâtında bazı görevliler için kullanılan bir unvan ve terim.
Sözlükte “birinin yerine geçen, yerini tutan, vekil, nâib” anlamındaki kāim-makām dan gelen kelimeye Osmanlı merkez ve taşra teşkilâtında hem unvan hem terim olarak rastlanır. İlmiye teşkilâtındaki vekâletler ve ikinci derecedeki memuriyetler için daha ziyade “nâib” kelimesi kullanılmıştır. Bu unvan veya terim kaynaklarda XVI. yüzyıldan itibaren görülür. Bunların en önemlisi sadâret kaymakamıdır. Sadrazamın sefer dolayısıyla veya bir başka sebeple başşehirde bulunmadığı zamanlarda İstanbul’daki işlerini görmek üzere bıraktığı vekile sadâret kaymakamı denirdi. Eğer padişah da İstanbul’da değilse bu görevli İstanbul veya Âsitâne kaymakamı, İstanbul’da ise rikâb-ı hümâyun kaymakamı, rikâb kaymakamı veya sadece kaymakam paşa unvanıyla, sadrazamı ordu nezdinde temsil eden görevli de ordu kaymakamı şeklinde anılırdı.
Kaptanpaşaya vekâlet eden kimseye kaptanpaşa kaymakamı, bunun yönetimi altındaki Cezâyir-i Bahr-i Sefîd eyaletine kısaca Cezayir kaymakamlığı denirdi. Merkez bürokraside ise sefere katılan herhangi bir büronun âmirinin yerine bıraktığı vekili de kaymakam tabiriyle adlandırıldı. Meselâ asıl reîsülküttâb sefere giderse İstanbul’da onun yerine bakacak zat reîsülküttâb kaymakamıydı. Öte yandan Tanzimat Fermanı’nın ilânından önce vali veya mutasarrıfların yerlerine bıraktıkları vekillere yine bu unvan verilirdi.
Kaymakam unvanının Mısır eyalet teşkilâtında Kavalalı Mehmed Ali Paşa’dan önce ve onun zamanında olmak üzere yaygın bir kullanımı vardır. Görevinden alınan beylerbeyinin yenisi gelinceye kadar yerine vekâlet eden kimseye beylerbeyi veya vali kaymakamı denirdi. Bu görev, XVI. yüzyılda genellikle kadı ve defterdar tarafından birlikte deruhte edilirken XVII. yüzyıl başlarından itibaren beylerbeyi kaymakamlığına Memlük asıllı bir bey tayin edilmiştir. Mısır eyalet kaymakamı, beylerbeyinin tayin ve görevden alma dışındaki bütün yetkilerine sahip olup eyaletin asayiş ve huzuru için gerekli tedbirleri alırdı. Eğer yeni beylerbeyi gelinceye kadar kaymakam ölürse muhafaza beyleri yeni birini seçip merkeze arzederlerdi. Mısır valisinin yerine kaymakam tayini usulüne XVIII. yüzyıldan itibaren daha çok başvurulmuş, bu göreve umumiyetle yerli Memlük beylerinden biri getirilmiştir.
Mısır eyaletinde kaymakam teriminin kullanıldığı bir başka alan maliye idi. Vergi tahsiliyle yükümlü mültezimlerin vekillerine de kaymakam denir ve bunlar genellikle yine Memlükler’den seçilirdi. Mısır eyaletinde kaymakam unvanı kaptanın malî konulardaki yardımcısı ve vekili için de kullanılmıştır. Mehmed Ali Paşa zamanında ise kaymakam tabirinin kullanımı askerî alana da kaymıştır. Batı usulü teşkil edilen orduda miralayın altındaki rütbe sahibi ile nâhiye âmirine kaymakam denilmiştir. Bu sonuncusu bölgesinin en yetkili yöneticisiydi ve sulama işlerinden sorumluydu. Böylece bir bakıma kaymakam kelimesi önce vekâleti belirten bir terim iken zamanla doğrudan bir unvan haline gelmiş oluyordu. Nitekim XIX. yüzyılda Osmanlılar’da bu kelime yerleşmiş bir unvan olarak oldukça sık kullanılmaya başlandı. Asâkir-i Mansûre-i Muhammediyye teşkilâtında binbaşı ile miralay arasındaki rütbeye kaymakam denildi ve bunun adı 1935’ten sonra yarbaya çevrildi. Tanzimat döneminin ilk yıllarında faaliyet gösteren muhassıl-ı emvâllik sisteminin yerini 1842 yılı başlarından itibaren kaymakamlık aldı. Kaymakamlar Dahiliye Nezâreti’ne bağlıydı ve tayinleri bu nezâretçe yapılmaktaydı. Kendi idarî biriminde önemli kararlar alabilen kaymakamın ilk sorumlu olduğu merci bağlı bulunduğu valilikti. Taşra teşkilâtının vazgeçilmez görevlisi olan kaymakam önceleri sancak beyinin yerini alarak sancak mülkî âmiri olmuş ve bu sıfatla küçük meclis denilen, 1849’dan itibaren ise sancak meclisi adıyla anılan bir kurula başkanlık etmiştir. Eyalet meclisi tarzında teşkilâtlanmış olan sancak meclisi mal müdürü, hâkim, tahrirat ve mal başkâtipleriyle müslüman ve gayri müslim toplulukların seçtiği kişilerden oluşurdu. Haftanın belli günlerinde toplanan meclisin başlıca görevleri sancağın maliye, belediye ve eğitim öğretim işleriyle ilgili kararlar almaktı. Güvenliğin sağlanması konusu da meclisin ve kaymakamın sorumluluğundaydı. Sancak meclisi sancağa bağlı kaza müdürlerinin ve halkın başvurularını da görüşüp karara bağlar, ancak büyük ve önemli meseleler kaymakam tarafından vali ve eyalet meclisine bildirilirdi. Valilikçe malî, idarî ve bayındırlıkla ilgili olarak hazırlanıp gönderilen tüzük ve yönetmelikler aynen uygulanır, vali ve eyalet meclisinin aldığı kararlara da uyulurdu.
Tanzimat döneminde zaman zaman görevlerini kötüye kullanan kaymakamlar istenilenden fazla vergi toplamamaları vb. yolsuzluklar hususunda uyarılmışlardır. Meselâ 5 Haziran 1850 tarihinde Kastamonu valisine, Bolu sancağı kaymakamına ve Bolu meclis üyelerine yazılan fermanda Tanzimat Fermanı’nın hükümlerine riayet edilmesi istenmiştir. Gerçekten Tanzimat’ın ilk yirmi yılında bazı vali ve kaymakamlar eski alışkanlıklarını sürdürmüşler, vergi yolsuzluklarının yanı sıra hediye alma usulünden de vazgeçmemişlerdir. Ancak Tanzimat döneminde bu tür hareketlere başvuran kaymakamlar halk tarafından şikâyet edilmiş, suçlu görülenler görevinden alınmış ve yerlerine yeni kaymakamlar gönderilmiştir.
Tanzimat’ın prensiplerini taşrada tam anlamıyla uygulayabilecek kişilerin yetiştirilmesi için 18 Ocak 1859 tarihinde Mekteb-i Mülkiyye açıldı. Buraya önceleri kaymakamlık ve müdürlük gibi mülkî idarede istihdam edilecek kimseleri yetiştirmek için devlet dairelerinde çalışan kâtiplerin ehliyetlileri ve ilim tahsil etmiş kabiliyetli öğrenciler kabul edildi. Mekteb-i Mülkiyye’de tarih, coğrafya, hesap, ekonomi politik, yeni düzenler ve Osmanlı antlaşmaları derslerini okuyup mezun olanlar taşraya müdür veya kaymakam olarak tayin edildi. Mektepten ilk olarak 1861 yılında otuz üç kişi mezun oldu; bunlar önce değişik küçük görevlere verilmiş, ardından müdürlük ve kaymakamlığa tayin edilmişlerdi. Meselâ bu okulun ilk mezunlarından Sırrı Efendi 1861’de Preveze kazası müdürlüğüne gönderilmiş, ardından kaymakamlık yapmıştır. Ahmed Hamdi Paşa 1861’de Vize-Saray, ardından Çorlu, 1867’de Ahyolu-Burgaz, 1871’de Samakov, 1873’te Köstendil, 1879’da ise Mersin merkez kazalarında kaymakamlık yapmış, 1880’de Ergani, 1888’de de Siirt mutasarrıflıklarında bulunmuştu.
Tuna vilâyeti nizamnâmesine göre 1864’ten itibaren sancağın yönetimi kaymakamdan alınıp mutasarrıfa bırakılmış, kaymakam da kazanın mülkî âmiri olmuş ve genellikle Mekteb-i Mülkiyye mezunları arasından seçilmiştir. Aynı nizamnâmede birkaç köyün birleşmesinden nahiyeler teşkil edilmiş, buraların idaresi nahiye müdürlerine verilmiştir. Nahiye müdürünün başkanlığında oluşturulan mecliste alınan kararların kaza kaymakamının onayından sonra yürürlüğe girmesi esası getirilmiştir. 1921’e kadar Osmanlı mülkî idaresi birimleri yukarıdan aşağıya doğru vilâyet, sancak, kaza ve nahiye şeklinde devam etmiş, bu yıl içinde sancak birimi kalkmıştır. Cumhuriyet döneminde kaza adı ilçeye çevrilmiş olmakla birlikte mülkî âmirinin unvanı kaymakam olarak varlığını sürdürmektedir.
BİBLİYOGRAFYA
D’Ohsson, Tableau général , VII, 157-158.
Enver Ziya Karal, Selim III’ün Hatt-ı Hümayunları: Nizam-ı Cedit 1789-1807 , Ankara 1946, s. 95-121.
S. J. Shaw, The Financial and Administrative Organization and Development of Ottoman Egypt: 1517-1595 , Princeton-New Jersey 1968, tür.yer.
İlber Ortaylı, Tanzimattan Sonra Mahallî İdareler (1840-1878) , Ankara 1974, s. 42 vd., 65 vd., 89.
a.mlf., “Midhat Paşa’nın Vilâyet Yönetimindeki Kadroları ve Politikası”, Uluslararası Midhat Paşa Semineri , Ankara 1986, s. 227-236.
Seyyid Muhammed es-Seyyid Mahmud, XVI. Asırda Mısır Eyâleti , İstanbul 1990, s. 105-106, 127-129, 239.
Musa Çadırcı, Tanzimat Döneminde Anadolu Kentleri’nin Sosyal ve Ekonomik Yapıları , Ankara 1991, s. 236 vd., 259 vd.
Yücel Özkaya, “III. Selim’in İmparatorluk Hakkındaki Bazı Hatt-ı Hümâyunları”, AÜ Osmanlı Tarihi Araştırma ve Uygulama Merkezi Dergisi: OTAM , sy. 1, Ankara 1990, s. 333-354.
Takvîm-i Vekāyi‘ , sy. 567, İstanbul 18 Cemâziyelâhir 1275.
J. H. Mordtmann, “Kaymakam”, İA , VI, 464.
P. M. Holt – E. Kuran, “Ḳāʾim-maḳām”, EI2 (Fr.) , IV, 482.
Bu madde TDV İslâm Ansiklopedisi’nin 2002 yılında Ankara’da basılan 25. cildinde, 84-85 numaralı sayfalarda yer almıştır.