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MUTASARRIF Skip to content Osmanlı taşra teşkilâtında sancak veya livânın mülkî âmiri için kullanılan unvan.
Osmanlı idarî teşkilâtında “herhangi bir makam, görev veya memuriyeti elinde bulunduran, tasarruf eden” kişi anlamına gelir. Bu tabir ayrıca vekille unvan sahibini birbirinden ayırmak, mâlikâne, has ve timara sahip olmak mânasında sıkça kullanılmıştır. İlmiye teşkilâtında kadılığa bilfiil getirilenler de mutasarrıf şeklinde anılmıştır. Kelimenin “sancağa veya livâya gönderilen idareci” anlamını kazanması XVII. yüzyıl başlarından itibaren meydana gelen gelişmelerle ilgilidir. Sosyoekonomik değişimler taşra idarî yapısının büyük ölçüde farklılaşmasına, yönetimde beylerbeyi/vali ve sancak beyi / mirlivâlardan ayrı olarak mutasarrıf, mütesellim, muhassıl, voyvoda ve âyan gibi yönetim silsilesinin doğmasına zemin hazırlamıştır.
XVII. yüzyılda hem merkezî idare hem eyalet ve sancak yönetimi klasik şeklinden tamamen farklılaşmaya başladı. Timar sistemi önemini yitirip merkezdeki vezir sayısı artınca sancakların arpalık yöntemiyle vezirlerin tasarrufuna verilmesi uygulaması ortaya çıktı. Buna paralel olarak beylerbeyilik ve sancak beyliğine enderun halkından tayin yapılması usulü gevşedi. Böylece taşra idaresinde yerli âyan ve mütegallibenin etkisi daha da arttı. İdarecilerin emrinde bulunan kapı halkı sayısındaki sınırlamanın kaldırılması güçlü mahallî idarecilerin ortaya çıkmasına yol açtı. Aynı süreçte merkezdeki vezirler, tasarruf ettikleri sancaklara bizzat gitmek yerine vekil olarak mütesellim/kaymakam göndermeye başladılar. XVIII. yüzyılda bu sistem iyice yaygınlaştı. Yüzyılın başlarından itibaren eyalet ve sancaklar ya mîrî mukātaa haline getirilerek iltizam yoluyla veya arpalık ve mâlikâne uygulamalarıyla verildi. Ortaya çıkan yeni şartlardan dolayı mutasarrıf tabiri sadece sancağı değil aynı zamanda eyaletleri tasarruf eden paşalar için de kullanıldı. Nitekim XVII. yüzyılın sonları ile XVIII. yüzyılda eyalet tevcîhatında mutasarrıf kelimesine sıkça rastlanır (Başar, s. 34-305). Bilhassa Nizâm-ı Cedîd sürecinde yapılan düzenlemelerle mutasarrıf tabiri taşra idaresinde yerleşti.
Mutasarrıf tayinine dair ilk ciddi düzenleme III. Selim döneminde (1789-1807) gerçekleşti. Eyalet sistemindeki aksamaları yakından takip eden padişah öncelikle idarecilerin bizzat görev yerlerine gitmeleri hususu üzerinde durdu ve vezir sayısıyla eyalet sayısı arasındaki orantısızlığın giderilmesi için uğraştı; vali ve mutasarrıf tayinlerindeki iltimas ve rüşvetle mücadele ederek tayinlerde câize uygulamasını sınırlamaya çalıştı. Sık sık görev yeri değiştirme usulünü terkedip en az üç, en fazla beş yıl görevde kalma esasını koydu (Karal, s. 109-121). II. Mahmud çoğunluğu önce mukātaat, ardından mansûre hazinesine bağlı olan sancakların yönetimine mutasarrıf veya onun yerine mütesellim, bazı sancaklara da muhassıllar gönderdi. Doğuda meselâ Muş gibi sancaklarda klasik dönemden itibaren süregelen yurtluk-ocaklık sistemi muhafaza edilerek mutasarrıflığa ekber evlât tayini âdeti sürdürüldü (BA, Cevdet-Dahiliye, nr. 3392, 6681; BA, HH, nr. 23039).
Padişahın onayıyla tayin edilen mutasarrıflar için her yıl tevcîhat defterleri hazırlanır, ibkā, azil ve yeni tayin muameleleri gerçekleştirilirdi. Birden çok sancağı tasarruf eden mutasarrıflar yerlerine merkezî hükümetin tasdikiyle mütesellim gönderebilirdi (BA, MD, nr. 214, s. 8, 23, 55). Tayinler yapılırken bölgenin özel şartları, sancağın güvenliği, mutasarrıfın önceki görevinde gösterdiği başarılar ve halka karşı tavırları dikkate alınırdı. Islahat dönemlerinde mutasarrıf tayinlerinde yeni kriterler ortaya çıktı. Meselâ Asâkir-i Mansûre-i Muhammediyye’nin kurulacağı sancak mutasarrıfının, yeni ordu ve Kaptanpaşa eyaleti sancaklarından birine tayin edilecek mutasarrıfın donanma konusunda bilgili olması gerekiyordu (BA, MD, nr. 234, s. 50; nr. 240, s. 306, 365-366).
Mutasarrıfın veya mütesellimin tayin emri yörenin önde gelenlerine okunur ve mahkeme siciline kaydedilirdi. Mutasarrıflar maaş ve personel giderlerini sancak ahalisinden imdâd-ı hazariyye, imdâd-ı seferiyye ve âidât-ı muayyene isimleri altında tahsil ettikleri vergiden karşılar, ancak bazan belirlenenden fazlasını toplayıp halka zulmetmeleri şikâyetlere sebep olurdu. Tayin edilen mutasarrıfın hemen görev yerine gitmesi istenir ve ihmali görülenler hakkında soruşturma açılırdı. Mutasarrıflar görevlerini “saray” denilen konaklarında görürlerdi. Sancak divanı toplantılarının yapıldığı bu sarayların inşası, tamiri ve bazı giderleri için gerekli para ahaliden toplanırdı. Mutasarrıfların devlet merkezindeki işleri kapı kethüdâları tarafından görülürdü. Yaş haddinden veya başka sebeplerle emekli olan mutasarrıflara aylık tahsisi yapılırdı. Mutasarrıfların öncelikli görevi asayişi temin etmek ve vergileri toplamaktı. Ayrıca emlâk-i hümâyunu idare etmek, sancağı şenlendirmek, halka iyi muamele etmek, bölgesini düşmandan korumak ve sefer durumunda maiyetiyle birlikte savaşa katılmak diğer önemli vazifelerindendi. Sancaklardaki inşaat ve bayındırlık işleri, bazı dinî ve içtimaî yapıların ve su yollarının tamiri de görevleri arasındaydı.
Tanzimat’tan sonra mutasarrıflardan Tanzimat usulünün eksiksiz tatbiki ve her sınıf ahaliye eşit muamele etmeleri istendi. 28 Kasım 1852 tarihli bir fermanla düzenlenen vali ve mutasarrıfların yetkileri 22 Eylül 1858 tarihli tâlimatla genişletildi (BA, Cevdet-Dahiliye, nr. 2299). Tanzimat’la beraber müstakil mutasarrıflık sistemi yaygınlık kazandı. Bir eyalete bağlı bulunmayan ve mutasarrıf tarafından yönetilen sancaklar doğrudan merkeze bağlıydı. 1864’te vilâyet düzenlemesine kadar muhtelif tarihlerde Sivas, Amasya-Çorum, Rumeli, İşkodra, Üsküp, İzvornik, Hersek, Tuzla, Niş, İskenderiye, Tırhala, Ankara, Biga, Karesi, Canik, Bozok, Kudüs, Basra, Lazistan, Musul, Bağdat, Kars, Kıbrıs, Maraş, Yemen, Filibe, Sofya, Kocaeli, Rakka, Edirne, Cezâyir-i Bahr-i Sefîd, Adana, Kastamonu, Harput, Şehrizor, Tulçı, Van, Vidin, Yenipazar, Erzincan, Bingazi, Prizren ve Hudâvendigâr müstakil mutasarrıflık olarak yönetildi. Müstakil mutasarrıflar valilerin yetkilerini haizdi (Onar, II, 697-715). 1861’de teşkil edilen ve hıristiyan bir mutasarrıfça yönetilen Cebelilübnan mutasarrıflığıyla 1878’de oluşturulan Şarkî Rumeli vilâyeti bünyesindeki sancak mutasarrıflıkları farklı statüdeydi. Bu tür mutasarrıflıklar eyâlât-ı mümtâze sistemi içerisinde ele alınmalıdır (Ortaylı, s. 51-53).
Sancak idarecisi olarak mutasarrıflığın kesin biçimde kurumsallaşması 1864 Vilâyet Nizamnâmesi ile oldu ve eyalet yerine vilâyet sistemine geçildi (Düstur, Birinci tertip, I, 608-624). Sancağın idaresi mutasarrıfa verildi (BA, A.MKT.MHM, 386/57; BA, İ.MVL, 25823). 1867’de yapılan düzenlemeden sonra yeni mutasarrıflıklar oluşturuldu (BA, A.MKT.MHM, 387-A/35). Bu dönemde mutasarrıfların merkezdeki işlerini gören kapı kethüdâları dâimî memur statüsüne geçirildi (Lutfî, XI, 100-101). 1871’de neşredilen nizamnâmeyle 1864 nizamnâmesi geliştirildi ve bilhassa maaş ve harcırah konusu yeniden düzenlendi. İstanbul’a bağlı olmak üzere özel idareye sahip Beyoğlu, Üsküdar, Çatalca ve İzmit mutasarrıflıkları kuruldu (Devlet-i Aliyye-i Osmâniyye Salnâmesi [1290], s. 133; [1297], s. 179-180). Kānûn-ı Esâsî’nin ilânının ardından 1877’de yeni bir yönetim yapılanması öngörüldüyse de uygulanamadı. Ancak toprak kayıpları sebebiyle mülkî taksimat yeniden düzenlenip bütün sancaklar Dâhiliye Nezâreti’ne bağlandı. 1908’de vilâyetlerde tensîkata gidilerek bazı mutasarrıflıklar lağvedildi (BA, DH.MUİ, 13/2/25, 15/1/34). Sancaklar nüfuslarına göre sınıflandırıldı ve mutasarrıf maaşları buna göre belirlendi (BA, DH.EUM.MH, 81/78, 82/17; BA, DH.MUİ, 10/1/12).
1913’te yayımlanan vilâyetlere dair geçici bir kanuna göre (Düstur, İkinci tertip, V, 186-216) müstakil mutasarrıflıklar Urfa, İzmit, İçel, Eskişehir, Bolu, Teke (Antalya), Canik, Çatalca, Cebelilübnan, Zor, Asîr, Kudüs, Karesi, Kal‘a-i Sultâniyye, Kayseri, Karahisarısâhib, Kütahya, Menteşe (Muğla), Maraş, Niğde ve Medîne-i Münevvere idi (Devlet-i Aliyye-i Osmâniyye Salnâmesi, [1333-1334], s. 724-814). 1914’te Cebelilübnan’ın imtiyazları kaldırıldı.
Tanzimat’tan sonra livâda valinin temsilcisi ve umumi idare ve asayişten birinci derecede sorumlu olan mutasarrıflar yemin ederek göreve başlardı. Vali Dahiliye Nezâreti’nden mutasarrıfın azlini isteyebilirdi. Nezâret azil gerekçesini yeterli görmezse konuyu bir ay içerisinde Şûrâ-yı Devlet’e havale ederdi. Burada dosyanın iki ay zarfında sonuçlandırılması zorunluydu. Vali azil talebine bir ay içerisinde cevap alamazsa mutasarrıfı azledebilirdi (BA, DH.MUİ, 104/1/24). Görevinden ayrılan mutasarrıf yaptığı icraatlar ve yapılması gerekenler hakkında nezârete bir rapor sunardı (BA, DH.İD, 32/1/10).
Mutasarrıflar çok zaruri durumlar hariç doğrudan merkezle yazışamaz, ancak vali aracılığıyla haberleşebilirdi. Validen aldığı emir ve tâlimatı livâda uygular ve yeni kanun ve nizamları ilân ederdi. İhtiyaç duyduğu bazı memurları tayin edebilir, maiyetindeki memurları cezalandırabilir veya azledebilirdi. Her yıl livâyı teftiş eder ve sancağın meselelerinin tesbit edildiği ve masrafların devletçe karşılandığı bu teftişin zamanını valiyle birlikte belirlerdi (BA, DH.EUM.LVZ, 51/52). Sancak dahilindeki belediyelerin teftişi de mutasarrıfın göreviydi. Mutasarrıf sancağın bütçesini hazırlar, vilâyet vasıtasıyla merkeze yollar ve onaylanıncaya kadar eğitim ve sağlık gibi âcil ihtiyaçlar dışında harcama yapmazdı. Sancakta tahsisatı gerçekleşen her türlü inşaat ve tamirata nezaret eder, ayrıca sancakta meydana gelen vukuatın istatistiğini düzenli biçimde Dahiliye Nezâreti’ne yollardı.
Mutasarrıfın başkanlığında toplanan ve istişârî niteliği bulunan livâ idare meclisi mutasarrıfın havale ettiği evrak hakkında mütalaa beyan ederdi. Meclisin tabii üyeleri mutasarrıf, nâib, muhasebeci, tahrirat müdürü, nâfia mühendisi, ziraat memuru, müftü ve gayri müslim cemaatlerin ruhanî liderleriydi. Ayrıca dört yıl müddetle görev yapmak üzere seçilen dört üyesi daha vardı. Livâda güvenliği jandarma ve polis sağlardı. Mutasarrıf, bunların yeterli olmaması durumunda valiye bilgi vermek şartıyla askerî kuvvete başvurabilirdi (Muslihuddin Âdil, s. 411-417; Mustafa Şeref, s. 108-120).
1921 Teşkîlât-ı Esâsiyye Kanunu ile kazada kaymakam idaresi benimsendi (Düstur, Üçüncü tertip, I, 139). Bununla birlikte müstakil mutasarrıflıklar bir süre daha varlığını sürdürdü (BA, DH.EUM.VRK, 24/54). Cumhuriyet’in ilânından sonra vilâyet teşkilâtına dair yapılan düzenlemelerle mutasarrıf tabirinin idarî mânada kullanımına son verilmiş oldu.
BİBLİYOGRAFYA BA, MD, nr. 214, s. 8, 23, 27, 44, 55; nr. 234, s. 50; nr. 238, s. 67; nr. 240, s. 306, 365-366; nr. 253, s. 4, 5, 19, 21, 22, 31, 35-36, 78, 113; nr. 254, s. 37, 38; nr. 256, s. 16-17, 53, 136-137; nr. 257, s. 20, 23, 37, 77, 164; nr. 260, s. 42, 242, 243; nr. 262, s. 21-22, 23, 28, 57; nr. 263, s. 25, 32; BA, Cevdet-Dahiliye, nr. 866, 895, 906, 949, 990, 1135, 1154, 1200, 1201, 1221, 1253, 1271, 1296, 1306, 1377, 1408, 1420, 1750, 2299, 2315, 2529, 2651, 2707, 2823, 3323, 3392, 3543, 3609, 3699, 3820, 4932, 4934, 5363, 5527, 5602, 6681, 8144, 13120, 15665, 17203; BA, Cevdet-Maliye, nr. 7977, 7839; BA, HH, nr. 16849, 21821, 23039, 23342, 23561, 23635, 23656, 25147, 26708/A, 29195; BA, İrade-Dahiliye, nr. 44126; BA, A.MKT.MHM, 386/57, 387-A/35; BA, DH.EUM, 156/6; BA, DH.EUM. 7. Şb., 2/56; BA, DH.EUM.AYŞ, 11/132, 60/15; BA, DH.EUM.LVZ, 39/106, 47/103/C, 51/52; BA, DH.EUM.MEM, 43/47; BA, DH.EUM.MH, 81/78, 82/17, 207/21, 225/15, 233/2; BA, DH.EUM.VRK, 24/54; BA, DH.İD, 32/1/10, 185/1/158; BA, DH.KMS, 44/1/2, 59/1/49, 60/1/3; BA, DH.MB.HPS, 10/18, 31/64; BA, DH.MUİ, 10/1/12, 13/2/25, 15/1/34, 104/1/24; BA, DH.UMVM, 26/26, 61/75, 77/32, 86/16, 93/41, 93/49, 93/53, 159/71,159/73; BA, İ.MVL, 25823; BA, MV, 213/66; Devlet-i Aliyye-i Osmâniyye Salnâmesi (1290), s. 133; (1297), s. 179-180; (1333-1334), s. 724-814; Düstur, Birinci tertip, İstanbul 1289, I, 608-624, 625-651; Düstur, İkinci tertip, İstanbul 1332, V, 186-216; Düstur, Üçüncü tertip, Ankara 1953, I, 139; Cuinet, I-IV, tür.yer.; Lutfî, Târih, IX, tür.yer.; X, 100-101; XI, 100-101; a.e. (haz. Yücel Demirel), İstanbul 1999, VI-VIII, 1059-1204; Muslihuddin Âdil, Mukayeseli Hukūk-ı İdâre Dersleri, Selânik 1327, s. 411-417; Mustafa Şeref, Hukūk-ı İdâre-i Vilâyet, İstanbul 1329, s. 108-120; Sıddık Sami Onar, İdare Hukukunun Umumî Esasları, İstanbul 1966, II, 697-715; A. Birken, Die Provinzen des Osmanischen Reiches, Wiesbaden 1976, s. 25-274; İ. Metin Kunt, Sancaktan Eyâlete: 1550-1650 , İstanbul 1978, s. 29-124; Musa Çadırcı, “Osmanlı İmparatorluğunda Eyalet ve Sancaklarda Meclislerin Oluşturulması (1840-1864)”, Ord. Prof. Yusuf Hikmet Bayur’a Armağan, Ankara 1985, s. 257-277; a.mlf., Tanzimat Döneminde Anadolu Kentleri’nin Sosyal ve Ekonomik Yapıları, Ankara 1991, s. 10-27, 34-72, 190-197, 203-272; a.mlf., “II. Mahmut Döneminde Mütesellimlik Kurumu”, DTCFD, XXVIII/3-4 (1970), s. 287-296; a.mlf., “Tanzimat’ın İlânı Sıralarında Türkiye’de Yönetim (1826-1839)”, TTK Belleten, LI/201 (1988), s. 1215-1240; Enver Ziya Karal, Selim III’ün Hatt-ı Hümayunları, Ankara 1988, s. 109-121; Tuncer Baykara, Anadolu’nun Tarihî Coğrafyasına Giriş I: Anadolu’nun İdarî Taksimatı, Ankara 1988, s. 81-143; Fahameddin Başar, Osmanlı Eyalet Tevcihâtı, Ankara 1997, s. 34-305; Orhan Kılıç, 18. Yüzyılın İlk Yarısında Osmanlı Devletinin İdari Taksimatı-Eyalet ve Sancak Tevcihatı , Elazığ 1997, s. 23-41; Ahmet Şerif, Anadoluda Tanin (haz. M. Çetin Börekçi), Ankara 1999, I, tür.yer.; İlber Ortaylı, Tanzimat Devrinde Osmanlı Mahallî İdareleri (1840-1880), Ankara 2000, s. 51-53, 63-64, 80-84; C. E. Farah, “Necip Paşa and the British in Syria 1841-1842”, Ar.Ott., II (1970), s. 15-153; Yücel Özkaya, “XVIII. Yüzyılda Mütesellimlik Müessesesi”, DTCFD, XXVIII/3-4 (1970), s. 369-385; a.mlf., “Kaymakam”, DİA, XXV, 84; R. B. Satloff, “Prelude to Conflict: Communal Interdependence in the Sanjak of Alexandretta 1920-1936”, MES, XXII/2 (1986), s. 150-151; Halil Sahillioğlu, “Osmanlı Döneminde Irak’ın İdarî Taksimatı” (trc. Mustafa Öztürk), TTK Belleten, LIV/211 (1991), s. 1233-1257; C. K. Neumann, “Selânik’te Onsekizinci Yüzyılın Sonunda Masarif-i Vilâyet Defterleri: Merkezî Hükûmet, Taşra İdaresi ve Şehir Yönetimi Üçgeninde Malî İşlemler”, TED, sy. 16 (1998), s. 69-97; Sabahattin Özel, “Milli Mücadele’de İzmit Mutasarrıflarının Faaliyetleri”, a.e., sy. 16 (1998), s. 121-158; Gülden Sarıyıldız, “Tanzimat ve Osmanlı Bürokrasisinde Yemin Müessesesi”, Yakın Dönem Türkiye Araştırmaları, I/1, İstanbul 2002, s. 251-265; J. Deny, “Sancak”, İA, X, 186-189; C. V. Findley, “Muṭasarrif”, EI2 (İng.), VII, 774-775; Özcan Mert, “Âyan”, DİA, IV, 195-196; Halil İnalcık, “Eyalet”, a.e., XI, 549-550.
Bu madde TDV İslâm Ansiklopedisi’nin 2006 yılında İstanbul’da basılan 31. cildinde, 377-379 numaralı sayfalarda yer almıştır.