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MECLİS-i VÂLÂ-yı AHKÂM-ı ADLİYYE Skip to content II. Mahmud’un kurduğu, reformları planlayıp icrasını denetleyen yüksek yasama ve yargı organı.
24 Mart 1838’de kuruldu. Başkanlığına eski seraskerlerden Koca Hüsrev Paşa’nın getirildiği meclis beş üyeden oluşmaktaydı. Padişah ve şeyhülislâmın huzurunda yapılan törenden sonra 31 Mart 1838’de faaliyete geçti. Çalışma yeri Gülhane Kasrı’ydı. Özellikle ilk dönemlerde belgelerde geçen “meclis-i âlî” tabiri de Meclis-i Vâlâ’yı nitelemek için kullanılırdı. Meclisin görevi yapılması düşünülen ve “tanzîmât-ı hayriyye, tanzîmât-ı mülkiyye” olarak adlandırılan reformların gerçekleştirilmesi amacıyla kanun ve nizamları hazırlamak ve Dâr-ı Şûrâ-yı Bâbıâlî, Dâr-ı Şûrâ-yı Askerî’nin tanzim ettiği mazbatalara son şeklini vermekti. Ayrıca çıkardığı kanun ve nizamnâmelerin uygulanıp uygulanmadığını denetleme hakkına sahipti. Meclisin toplanma şeklini, kurallarını ve işleyiş tarzını belirleyen iç tüzüğü, üyelerin düşüncelerini serbestçe açıklamalarını ve kararların oy çokluğuyla alınmasını öngörüyordu.
Meşveret Meclisi dışında kurumsallaşmış meclis uygulaması yaygın olmadığından ilk zamanlarda ortaya çıkan yapı ve zihniyete dair bazı sorunlar meclis çalışmalarını aksattı. Bunların ilki, üyelerin başlangıçta üyelikle birlikte daha önce bulundukları memuriyetleri de sürdürmeleriydi. Bunun meclis çalışmalarını aksattığı ortaya çıkınca ikinci memuriyetler üyelerin üzerinden alındı. Diğer bir husus da üyeler arasındaki rütbe ve statü farklarının görüşmeleri ve oylamayı olumsuz etkilemesiydi. Çünkü düşük rütbeli üyeler üstlerinin yanında fikirlerini açıkça söyleyemedikleri için görüşmeler yüksek rütbeli üyelerin eğilimlerine göre şekilleniyordu. Bu olumsuzluğu gidermek amacıyla üyelerin rütbeleri eşitlendi. Ayrıca kendilerine diğer devlet memurlarından farklı nişanlar verilerek teşrifattaki yerleri tesbit edildi. Meclis-i Vâlâ, bu sorunlardan dolayı kuruluşundan Gülhane Hatt-ı Hümâyunu’nun ilânına kadar fazla bir varlık gösteremedi. Öte yandan Dâr-ı Şûrâ-yı Bâbıâlî de iki meclis arasındaki yetki kargaşası yüzünden lağvedildi ve üyelerinin bir kısmı Meclis-i Vâlâ’ya, bir bölümü de Meclis-i Nâfia’ya aktarıldı (12 Ağustos 1839). Yapılacak reformları belirleme ve görüşme vazifesi Gülhane Hatt-ı Hümâyunu ile Meclis-ı Vâlâ’ya verildi ve üye sayısı arttırıldı. Ayrıca belirlenecek bazı günlerde devlet ileri gelenleri, vükelâ ve bazı Bâbıâli ricâlinin de meclis toplantılarına katılması kararlaştırıldı (25 Kasım 1839). Meclis iç tüzüğü bu duruma uygun olarak yeniden düzenlendi.
Meclis kurulduğunda çalışma günleri pazartesi, salı, çarşamba ve cumartesi olarak belirlenmişti. Ancak Tanzimat’la beraber işler çoğalınca sadece perşembe günleri tatil edildi. Mecliste pazartesi ve salı günleri görüşülen konuların çarşamba, cuma ve cumartesi görüşülen konuların ise pazar günleri meclis üyeleri, vükelâ ve devlet ricâlinin de katılımıyla meclis dairesinde Meclis-i Âlî-i Umûmî adıyla toplanıp yeniden görüşülmesi kararlaştırıldı (Şubat 1840). Meclis-i Vâlâ’nın işlerinin çoğaldığından aradan bir yıl geçmeden Meclis-i Âlî-i Umûmî toplantıları yeterli gelmemeye başladı. Bunun üzerine Meclis-i Âlî-i Umûmî’nin salı, çarşamba, cumartesi ve pazar olmak üzere haftada dört gece toplanması kararlaştırıldı.
Meclis-i Vâlâ, 8 Mart 1840’ta Sultan Abdülmecid’in katıldığı bir merasimle Bâbıâli’de inşa edilen yeni binasına taşındı. Yeni mekânda padişahın çalışmaları takip edebilmesi için özel bir yer yapılmıştı. Padişah, bundan sonra her sene hicrî yılbaşı olan muharrem ayında bir önceki yılın çalışmalarının muhasebesini yapmak ve yeni yılda ele alınacak işler hakkında tâlimat vermek üzere meclisi ziyareti gelenek haline getirdi.
Tanzimat’la beraber meclisin öneminin günden güne artması ve yetkilerinin genişlemesine paralel olarak yazı işlerini yürüten kâtiplerin sayısı da arttırıldı. Ayrıca gerek üye gerekse düzen yönünden istenilen seviyeyi tutturamaması üzerine 1841’de mecliste bir değişiklik yapılarak üye sayısı ona indirildi. Meclis kitâbeti düzenlenip bir evrak müdürlüğü kuruldu.
Meclis başkanı 17 Temmuz 1841’de meclis iç tüzüğünü yeniden düzenledi. Aralarındaki rütbe farkından dolayı birbirlerini kıskanmamaları için ilmiyenin dışındaki üyelerin rütbeleri ve maaşları eşitlendi. Ayrıca üyeliğin mansıp şeklinde verilmesi esası benimsendi. Meclis-i Âlî-i Umûmî’nin Meclis-i Vâlâ üyeleri, vükelâ, Harbiye, Dîvân-ı Deâvî, Darphâne-i Âmire, Ticaret ve Evkaf nâzırları, müsteşarlar, âmedî, sadâret mektupçusu, gümrük emini, Meclis-i Maliyye başkanı ve Darphâne-i Âmire ferikinin katılımıyla cumartesi günleri toplanması kararlaştırıldı. Gerektiğinde sadrazamın muvafakatiyle toplantı sayısı ikiye çıkarılabiliyordu. Bu ise Meclis-i Âlî-i Umûmî’nin haftada dört gün toplanmasını öngören iradenin uygulanamadığını göstermektedir. Meclisin haftada iki gün toplanması bile Bâbıâli’de işleri aksatıyordu. Çünkü hem Bâbıâli’de iş görecek memur kalmıyor hem de mecliste gereksiz bir kalabalık oluşuyordu.
1843’te Meclis-i Vâlâ’nın üye sayısı tekrar azaltılarak maaşlarına zam yapıldı. Ayrıca nezâretlerle ve diğer meclislerle olan ilişkileri yeniden düzenlendi. Bundan hedeflenen amaç meclisin sıradan işlerle boş yere meşgul edilmemesiydi. Kanunlara dair bütün konularla mülkî düzenlemeler mecliste görüşülecekti. Böylece faaliyet alanı daha ziyade düzenleme ve ıslahatlarla problemli ve çözümü güç meselelere hasredildi. Meclisin bir görevi de Tanzimat’a ve kanunlara aykırı davranan yüksek rütbeli devlet adamlarını yargılamaktı. Nitekim Hüsrev Paşa, eski Dahiliye nâzırı Âkif Paşa, Nâfiz Paşa, Tâhir Paşa ve Hasib Paşa Tanzimat’a aykırı hareketlerinden dolayı mecliste yargılanıp cezalandırıldı. Ayrıca vükelâ ve sadâret makamında bulunmuş kişiler arasındaki âdi davalar da mecliste görüşülüyordu. Meclis, nâzırlar dahil ilgili kişileri bilgilerine başvurulmak üzere meclise getirtebilme yetkisine sahipti.
11 Ağustos 1850’de iç tüzüğün ihtiyacı karşılayamaması üzerine ilâve bir nizamnâme hazırlandı. Buna göre oylamada karşıt görüşte olup azınlıkta kalanlar mazbatayı imzalamaya mecbur değildi. Meclis-i Âlî-i Umûmî veya Meclis-i Vükelâ, Meclis-i Vâlâ’nın aldığı kararları değiştirebilirdi. Muhakeme ve sorgu işleri pazartesi ve perşembe günleri, önemli hukukî konular ise diğer günlerde görüşülmekteydi.
Meclis-i Vâlâ, baktığı konuların çeşitliliği ve iş yoğunluğu dolayısıyla 1849’dan itibaren işlerin gerisinde kalmaya başladı. Bu durum yapılan düzenlemeleri aksattığı gibi bazı bürokratların halka eziyet etmesine sebep oldu. Aynı zamanda Tanzimat bürokratlarının kendi aralarındaki iktidar mücadeleleri yüzünden 26 Eylül 1854 tarihinde Meclis-i Âlî-i Tanzîmat kuruldu ve Meclis-i Vâlâ’nın iki temel faaliyet alanından biri olan yasama yetkisini devraldı. Meclis-i Vâlâ ise küçük devlet memurlarının azil ve nasbı, bina tamiri, veraset meseleleri, inzibatî davalar, mülkî taksimat, arazi anlaşmazlıkları gibi tâli konulara bakmaya başladı. Nâdir de olsa bazı yasama konularını ele aldı. Ayrıca iki meclis zaman zaman birleşerek veya komisyonlar oluşturarak ortak çalışmalar yaptı.
21 Nisan 1857’de yapılan bir düzenlemeyle Meclis-i Vâlâ, Mülkiye, Maliye ve Evkaf, Askeriye, Hâriciye ve Deâvî olmak üzere beş cemiyete ayrıldı. Bu birimlere meclis üyelerinden üçer kişi seçildi ve her birimin ayrı yazı işleri oluşturuldu. Mecliste ve cemiyetlerde bakılmaya değer görülmeyen davalar Deâvî Nezâreti’ne gönderilecek ve bunlara perşembe günleri bakılacaktı. Cemiyetlerin üç üyesinden biri o birimin başkanı sıfatıyla birimi yönetecekti. Görüşeceği konuların sadâret tarafından belirlenip havale edilmesi icra memurlarından şikâyeti olanların meclise ulaşmasını engellediği için yapılan bir düzenlemeyle meclisin her türlü arzuhali kabul etmesine izin verildi.
İltimas yoluyla meclise üye tayini neticesinde üye sayısı kırka yükseldi. Bu kalabalığın meydana getirdiği kargaşa mecliste işleri aksattığı gibi üyelerin keyfî davranışları yüzünden hazırlanan mazbatalar imzalanamıyordu. Sultan Abdülmecid, Şubat 1858’de Bâbıâli’ye gelip tasarrufa riayet etmeleri hususunda vükelâyı sert bir şekilde uyardı ve meclislerdeki fazla üyelerin azaltılmasını istedi. Gerekli düzenlemeleri yapmakla görevlendirilen Meclis-i Âlî-i Tanzîmat’ın çalışmaları sonucunda Meclis-i Vâlâ’nın üye sayısı on dörde indirildi ve meclis, daha önce kurulan beş cemiyet lağvedilerek İntihâb-ı Me’mûrîn ve Tatbîk-i Kavânîn Cemiyeti ile Muhâkeme Cemiyeti adlı iki yeni cemiyetten oluşturuldu (29 Eylül 1858).
Meclis-i Vâlâ ile Meclis-i Âlî-i Tanzîmat gibi iki reform meclisinin mevcudiyeti bazı sıkıntı ve kargaşalara sebep olduğu için 15 Temmuz 1861’de yapılan bir düzenlemeyle iki meclis Meclis-i Ahkâm-ı Adliyye adıyla birleştirildi. Mülkiye, Muhâkemât ve Kavânîn ile Nizâmât daireleri olmak üzere üç kısımdan oluşan yeni meclisin başkanlığına Keçecizâde Fuad Paşa getirildi. Yeni yapıya uygun olarak kitâbet de üçe ayrıldı. Ahmed Cevdet Paşa tarafından hazırlanan ve 16 Ağustos 1861 tarihli iradeyle onaylanan meclis iç tüzüğüne göre her daire görüştüğü konuların mazbatasını ayrı ayrı düzenleyecek ve önemli bir konu olduğunda birlikte çalışma yapabilecekti. Kavânîn ve Nizâmât Dairesi’nin görevi, yeni kanunları, eski kanunlarda yapılacak değişiklikleri ve nezâretlerin hazırladığı nizam lâyihalarını görüşmekti. Mülkî ve malî idare ile nizamların yürütülmesi hakkında kendisine havale edilen konuları görüşen Mülkiye Dairesi’nin bir görevi de kaymakamların azil ve tayin işlemlerini yürütmek, vali ve mutasarrıfların tayin ettiği müdürlerin asaletini onaylamaktı. Muhâkemât Dairesi, kurulması düşünülen cinâyet mahkemeleri için bir çeşit istînaf mahkemesi olarak tasarlanmıştı. Meclisin üye sayısı Mülkiye Dairesi’nde yedi, Kavânîn ve Nizâmât ile Muhâkemât dairelerinde beşer olmak üzere toplam on yedi olarak belirlendi. Bu düzenlemeyle önceleri Meclis-i Vâlâ’nın, daha sonra Meclis-i Âlî-i Tanzîmat’ın görevleri arasında yer alan, kanun ve nizamların uygulanmasına nezaret etme ve yolsuzlukları sadârete bildirme yetki ve sorumluluğu yeni meclisin elinden alındı.
1868 yılına kadar yoğun bir şekilde faaliyetlerini sürdüren Meclis-i Ahkâm-ı Adliyye, 6 Mart 1868’de çıkan bir iradeyle Şûrâ-yı Devlet ve Dîvân-ı Ahkâm-ı Adliyye olmak üzere ikiye ayrıldı. Kanun ve nizamnâmeler yapmakla görevli Şûrâ-yı Devlet’in başkanlığına Midhat Paşa, yüksek bir temyiz mahkemesi olarak görev yapacak olan Dîvân-ı Ahkâm-ı Adliyye’nin başkanlığına da Ahmed Cevdet Paşa getirildi. Bu düzenlemeyle yasama ve yargı birbirinden ayrıldığı gibi meclis de fiilî hayatını tamamlamış oldu. Osmanlı Devleti’nin sonuna kadar varlığını devam ettiren bu iki kurumdan Şûrâ-yı Devlet Danıştay’ın ve Dîvân-ı Ahkâm-ı Adliyye Yargıtay’ın temelini oluşturdu.
Meclis-i Vâlâ kanunlarla ilgili bütün hususların görüşüldüğü, üst düzey bürokratların yargılamasının yapıldığı, mülkî, malî ve askerî düzenlemelerin planlandığı bir merci olduğu için üye seçiminde titiz davranılırdı. Üyelerde Tanzimat’a inanmış, dürüst, dirayetli, ehliyetli, fikir üretebilecek bir kapasiteye sahip olma gibi bazı hususiyetler aranırdı. Ayrıca değişik konuların görüşüldüğü mecliste bilgili ve uzman kişilerin belli bir oranda bulundurulmasına özen gösterilirdi. Meselelerin şer‘î yönünü incelemek üzere ilmiye mensupları da meclise alınıyordu. Islahat Fermanı’nın ilânına doğru bütün tebaa ile ilgili konuları görüşmek üzere gayri müslimlerin temsilcileri de bir yıllığına meclis üyeliğine getirildi.
Kuruluşundan itibaren Meclis-i Vâlâ çalışmalarını tam bir reform meclisi olarak yürüttü. Faaliyet süresinde ortaya çıkan hemen bütün reformlar bu mecliste ele alındı. Meclis hem reformları tesbit hem de uygulanıp uygulanmadıklarını kontrol etti. Bu niteliği yanında, Tanzimat’a aykırı davranan üst düzey bürokratları yargılama işleminde olduğu gibi Tanzimat’ın koruyuculuğu görevini de yerine getirdi. Böylece “Tanzîmât-ı Hayriyye’ye mugayir davranma” ithamıyla muhalifler susturuldu. Meclis Tanzimatçılar’ın bir mahkemesi gibi çalıştı; Tanzimat’ın “hâmî-i hakîkî”si ve Hariciye Nezâreti’yle beraber reformların planlayıcısı ve denetleyicisi oldu.
BİBLİYOGRAFYA
Düstur , Birinci tertip, İstanbul 1289, I, 325-342, 703-718.
Cevdet, Ma ‘rûzât , s. 12-15, 34-35.
a.mlf., Tezâkir , II, 62, 153.
Lutfî, Târih , V, 107-108; VI, tür.yer.; VII, 16; VIII, 23; X, 15-16.
İbnülemin, Son Sadrıazamlar , I, 221, 319.
Recai Galip Okandan, Âmme Hukukumuzun Anahatları , İstanbul 1977, I, 70-72, 77-79.
Reşat Kaynar, Mustafa Reşid Paşa ve Tanzimat , Ankara 1985, s. 198, 200-205, 220-222.
Ali Akyıldız, Tanzimat Dönemi Osmanlı Merkez Teşkilâtında Reform: 1836-1856 , İstanbul 1993, s. 185-218.
Mehmet Seyitdanlıoğlu, Tanzimat Devrinde Meclis-i Vâlâ: 1838-1868 , Ankara 1994.
S. J. Shaw, “19. Yüzyıl Osmanlı Reform Hareketinde 1876 Öncesi Merkezî Yasama Meclisleri” (trc. Püren Özgören), TT , sy. 76 (1990), s. 11-16; sy. 77 (1990), s. 40-47.
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