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2. VOL. 3
3. TOPKAPI PALACE AS THE ADMINISTRATIVE CENTRE OF THE OTTOMAN EMPIRE
Zeynep Tarım

TOPKAPI PALACE AS THE ADMINISTRATIVE

CENTRE OF THE OTTOMAN EMPIRE
After the conquest of Istanbul by the Ottomans, the construction of the first
palace in Istanbul was completed in 1458 and began to be used as a palace.
In these years, due to the successive campaigns in the Balkans and Anatolia,
Mehmed II known as Fatih (Conqueror), used Edirne Palace, and
administration was carried out from there. It is difficult to predict the level of
use of this first palace in Istanbul as the center of administration.
Nevertheless, a Divanhane (Council Hall) was built in it for the gatherings of
the divan, which demonstrates the intent to use it as a center of
administration. After a short while, a new palace was built on the side of the
city, viewing Marmara and Galata, as this palace was considered to be more
appropriately used as an administration center. The existence of the first
palace, and the idea that private life could continue there, constituted the
core factor in encouraging the construction of the new palace as an
administrative center.

Topkapı Palace, defined as New Palace or Saray-ı Cedid, consisted of three

main gates and courtyards on a horizontal designation, and was designed as
units of structures, which made it suitable for an administrative center. It
had been used for this purpose since 1478, the supposed year of its first use,
until the end of the eighteenth century. There were two indicators of this
situation. First, the original Divan-i Hümayûn (Imperial Council) was in this
palace where meetings took place. Thus, it consisted of a crucial place of
state administration. Second, the Sultan conducted all his official relations
and correspondences in this palace that has a special area,
called “Arzodası” (Chamber of Petitions), for meetings with the Sultan.

Ottoman palaces had been the sole center of administration of the empire
from its foundation until the seventeenth century particularly. From the
second half of the seventeenth century, some of the divan meetings began
to be carried out in the palace of the grand vizier called “pasha gate” or bab-
ı asafi; therefore, a second place of administration emerged. However, it
was not as efficient as the palace of the Sultan. Despite the fact that this
situation did not change the central administration, it was an indicator of the
emergence of new boards and places due to the shift in the administrative
units from the palace to other locations. Nevertheless, official meetings took
place in the Divanhane. The Arzodası was used for meetings with the Sultan,
and Bâbüssaâde (Gate of Felicity) was used for important ceremonies such
as cülus (enthronement), festivals and departures for military campaigns.
This shows that Topkapı Palace preserved its position as the center of the
state until the beginning of the nineteenth century.

It is possible to analyze the palace in four parts as both the center of the
administration and the residence of the Sultan. The first courtyard open to
the public was Alay Meydanı (Square of Ceremonies), where all the
regiments leaving the palace, lined up. The Divan-ı Hümayûn (Imperial
Council), situated in the second courtyard, constituted the main structure of
the Divan Meydanı (Square of the Council). The third part, where holy relics
and Enderun (Inner Palace) existed, was defined as Enderun
Meydanı (Square of Palace Inner Palace). The fourth part was the Imperial
Harem. It consisted of units, leaning on the structures in the squares of
the Divan and Enderun, expanded towards the yards. The pavilions built in
the yards created the fifth part. They were used for special meetings on the
administration, while the Yalı Köşkü (Shore Pavilion) was a part of the sailing
ceremonies of the navy. 1

There were two main architectural and functional factors enabling the use of
Topkapı Palace as the center of administration, Divanhane and Arzodası,
which were among the first buildings of the palace. In addition, the
aforementioned three main gates and courtyards were used as
administrative units. In Topkapı Palace, the units of the administration
expanded to almost all areas of the palace, excluding some parts of the
imperial harem.

The first, Divanhane, was rebuilt by Grand Vizier İbrahim Paşa during the
period of Suleyman I, known as Kanuni (Lawgiver). At this time, the building
was constructed closer to the middle gate. In the divan, people gathered
daily in the fifteenth century and began to gather four days a week in the
late sixteenth century; petitions were received two days a week. After
the divan gatherings held on Saturday, Sunday, Monday and Tuesday, a
number of decisions would be presented for the approval of the Sultan,
called “arza çıkmak” (appearing before the Sultan) . The Divan-
2

ı Hümayûn (Imperial Council) used to hold gatherings in Topkapı Palace two

times a month on average after the second half of the XVIII century.
However, later it began to hold gatherings once a month and then less than
once a month, leading to none for some time. 3

Since the foundation of the Ottoman state till the fifteenth century, the
sultans presided over the divan. After the conquest of Istanbul, the
institution of the divan began to play an efficient role in this new palace. As
stated in the code of law decreed by Mehmed II, a tower was built behind
the Arzodası and Divanhane in Topkapı Palace, which demonstrated that the
Sultan separated himself from the divan around these times. The Sultan,
who could easily and unnoticeably follow the divan gathering from the
netted window of the Adalet Kulesi (Tower of Justice)
viewing Divanhane, also indicates to the hierarchically structured protocol of
the state administration, such as the existence of Arzodası. 4

The founding members of the divan, residing all in Istanbul, were the grand
vizier, viziers, kazasker (judge of the army) of Rumeli and
Anatolia, defterdar (treasurer) of Rumeli and Anatolia, and nişancı (chief
chancellor). In the Teşkilat Kanunnâmesi (Institutional Law), where the seat
orders of the members in the divan were stated, the founding members of
the divan were also defined as such. The agha of the janissaries, agha of
5

the mir-alem (state-owned land), and beylerbeyi (governors) would not

participate in the Divan-ı Hümayûn on common occasions; they would only
attend the divan when it be necessary and when more comprehensive
gatherings were conducted. The beylerbeyi of Rumeli and Anatolia, and
the kaptanıderya (Grand Admiral) could attend the divan when they were in
Istanbul. Being a founding member of the divan meant the right to express
ones ideas on the issues discussed in the divan. The grand vizier was
accepted as the chief executive official of all administrative issues. This was
expressed in the same code of law with the following statements: “The
grand vizier is the chief of all. He is the absolute representative of all the
matters.” The agenda, including discussions of primarily international issues
and matters of provincial administration, would be read before the presence
of the grand vizier by the reisülküttab (chief clerk). Among the multiple
issues, the ones related to education and jurisdiction would be endued to
the kazasker, the matters on economy would be given to the defterdar.
The nişancı would put the Sultan’s signature (tugra) on the edicts, but his
main responsibility was to keep records on land distribution and regulations,
a part of the customary law. Thus, the regulations
of tımar (fief), zeamet (feoff), fief-granting and their records, were under the
responsibility of the nişancı. The nişancı, who was the head of the
bureaucracy, was expected to know the laws very well. Actually, well-known
codes of law were written by the nişancı. In short, the divan gathered in the
palace from the XV century till the end of the XVI century meant that
Topkapı Palace would host a crowded body of administrative officials at least
four days a week. Each statesman would come with his attendants, and
6

while some of them would wait in Alay Square, a few of them would wait in
Divan Square. Furthermore, numerous officials would be in the palace on
these meeting days despite not attending the divan in person.

Despite the fact that the Arzodası, built during the period of Mehmed II, was
renovated several times during the reign of Suleyman I and in the following
years, the building came to present-day appearance on the same grounds
without much change. This building, in the form of a pavilion surrounded
partially with a portico, had a door viewing the Bâbüssaâde, a door
for pişkeş (gifts, presents) just next to it, and another door viewing Enderun
Square. The door viewing Bâbüssaâde was the one used for the entrance
and exit of the statesmen and ambassadors. In the inner part, there was
broad area for the throne where the Sultan would sit. When
7

the divan meetings were concluded, the statesmen would get out of
the Divanhane after lunch and go to the Bâbüssaâde to get into
the Arzodası. There, they would wait in the doorway. First, the agha of the
janissaries, representing the military and security, would get into
the Arzodası, where the Sultan would be present, and explain the current
condition of the military and security. Then, they would exit without waiting
in the Bâbüssaâde, but would wait outside the Bâbüssaâde. Secondly, the
chief representatives of education and jurisdiction, the kazaskers, would
present the matters under their responsibility and leave the chamber. The
grand vizier would enter with a number of viziers, nişancı and defterdar.
The defterdar would leave after presenting financial issues. During the
meeting, the grand vizier and the viziers would wait standing on the right
side of the Sultan. The viziers would leave the chamber after the completion
of the meetings with the beylerbeyi (governors) on the agenda relevant to
the high state officials, granted with a vizier position, if there were any. In
the end, the Sultan and the grand vizier would discuss the general situation
separately.

The Enderun Mektebi (Palace School), one of the resources of the ruling
class, was also in the third courtyard located in the inner part of the palace.
The agha, who graduated from the Enderun, were not unfamiliar to the state
issues as people who worked as direct assistants of the Sultan, who was the
chief official of the state administration. Hence, that silahtar (armorer)
and rikâbdar agha would be present in all the gatherings outside the palace
even if they did not state their opinions. The agha of the hasoda, chief room
of the pages in the Enderun, always had the chance to appear before the
Sultan. The agha of the Bâbüssaâde was an informant in the process of the
meetings between the Divanhane and Arzodası and partially regulated them.
The relation of the agha of the Dârüssaâde (Imperial Harem) with the
foundations was that both of these agha’s would wait in front of
the Bâbüssaâde during the divan meetings, which reveals that these people
were not just officials for private services in the palace.

The use of Divanhane and Arzodası demonstrates the role of the palace as a
center of administration. Regarding the placement and the organization of
the palace with a more comprehensive point of view would show that this
place was built with the aim to be used for administration from the very
beginning. Within this context, the following could be regarded as the
8

evidence of the intention to preliminarily use this palace as the place of

administration: the existence of doorway chambers appropriate for the
residence of the guards, the structuring of the monumental doors suitable
for the ceremonial activities during the entrance and exit of international
visitors and ambassadors. Also, the planning of buildings with a function and
decoration to host the ceremonies during the entrance and the exit of the
Sultan with his attendants on occasions of setting sails, migrations and the
inner city visits, as well as the construction of Divanhane in the second
courtyard and the organization of the structures in this courtyard
accordingly. Furthermore, the planning of Bâbüssaâde as a suitable
background and usage for the ceremonies, which were not related to the
members of the dynasty, the existence of chambers in both sides
of Bâbüssaâde, and the function of the place between these doors also
indicates its intended use. Additionally, the door as a reception room for
state officials and the ambassadors, and the construction of Arzodası as the
most beautiful pavilion of the Enderun courtyard just to the opposite of the
entrance of Bâbüssaâde, all indicate the original use of Topkapi Palace as an
important structure.

The fact that the palace was the center of administration also presents a
hierarchical order in the structure of the building in the Ottoman state
organization. Considering the Bab-ı Hümayûn with the pavilion on its top,
demonstrates the palace as a state building with a monumental reception
and preliminary entrance. The existence of external treasury on the top of
the pavilion door and the rooms where the troops of guardsmen were
assigned for state ceremonies, as well as sergeants responsible for order and
security of the administrative meetings in palaces resided, also refers to the
same fact.

The palace was the administrative center means that people from all
sections of the society, especially people residing in Istanbul, could visit it for
several reasons. On the divan days, the number of the janissaries would
increase, and this number would increase more especially on occasions
of divan of the ulufe (service pay), and reception of ambassadors. A number
of janissaries would wait in the second courtyard, whereas a higher number
of janissaries would wait in the first courtyard in a position internally and
externally surrounding the courtyard until the end of the meeting. If the
ambassador reception and the ulufe distribution were on the same day, the
soldiers would take their service payments, put in the pouches after being
counted and scaled, and drink their soups produced by the Matbah-ı
Amire (Imperial Kitchen). Then, they would get to their due places and wait
until the ambassadors left the palace. The people gathering on the days
of divan would wait in the first courtyard: the ones with court cases would
be taken to the central courtyard and would enter with their witnesses. It is
known that all the people, including women, men, Muslim and non-Muslim,
would get into the palace due to such reasons. If the court case discussed in
the divan resulted with a beating sentence rather than a heavy punishment,
such as exile, the punishment would be executed immediately by the çavuş
(guardian) in the central courtyard. This indicates that the palace was not
only the place of jurisdiction; it could also be the place where the
punishments would be recompensed. It is also known that the capital
punishments given to the state officials were executed in the doorway
chambers from time to time. On the days when the administrative officials
other than the Sultan were in the palace, everyone including the people
waiting in the first and the second courtyards and the soldiers, would be
provided with a meal. Apart from this population coming to the palace
9

transitorily from other places, a great part of the present population of the
palace consisted of people with administrative positions.
Considering all these statements, it would be possible to express that almost
all the units of this Ottoman Palace, located in Istanbul, were administrative
buildings. Regarding the parts where the şehzade (princes) were raised, the
chambers of valide Sultan (queen mother) and kahyakadın (chief of the
women servants) as a kind of administrative units, would also enlarge our
view on the field of Topkapı Palace as a body of an administration center.

FOOTNOTES
1 For architecture and parts of the Topkapı Palace see: Metin
Sözen, Devletin Evi Saray, Istanbul: Sandoz Yayınları, 1990; Gülru
Necipoğlu, Architecture, Ceremonial and Power: The Topkapı Palace in the
Fifteenth and Sixteenth Centuries, New York : The Architectural History
Foundation, 1991; Gülru Necipoğlu, 15. ve 16. Yüzyılda Topkapı Sarayı
Mimari, Tören ve İktidar, tr. Ruşen Sezer, Istanbul: Yapı Kredi Kültür Sanat
Yayıncılık, 2007; Nadide Seçkin, Topkapı Sarayı’nın Biçimlenmesine Egemen
Olan Tasarım Gelenekleri Üzerine Bir Araştırma (1453-1755), Ankara :
Atatürk Kültür, Dil ve Tarih Yüksek Kurumu Atatürk Kültür Merkezi
Yayınları, 1998; Zeynep Tarım Ertuğ, “Topkapı Sarayı”, DİA, XLI, 256-261.

2 Mübahat Kütükoğlu, “Arz”, DİA, III, 438-440.

3 Fikret Sarıcaoğlu, “Dîvân-ı Hümâyûn’un Kronolojik Toplanma ve Merasim

Günleri (1153-1210/1740-1795),” Osm.Ar., 2007, vol. 30, p. 100.

4 For a study on the administrative units of the architecture of Topkapı

Palace see: Gül Akdeniz, “Topkapı Sarayı Resmi Toplantı Birimlerinin (Divan
Yapıları ve Arz Odasının) Geçirdikleri Değişimin Araştırılması” (Ph.D.
Thesis), İstanbul Teknik University, 1995.

5 Fatih Sultan Mehmed, Kānûnnâme-I Âl-i Osman, prepared by Abdülkadir

Özcan, Istanbul: Kitabevi, 2007, p. 6.

6 Zeynep Ertuğ, “Osmanlı Devletinde Resmi Törenler ve Birkaç

Örnek,” Osmanlı, Ankara : Yeni Türkiye Yayınları, 1999, vol. 9, pp. 133-137.

7 Semavi Eyice, “Arz Odası”, DİA, III, 445-446.

8 Gülru Necpipoğlu wrote on the harmony between the architectural
structuring and state organizations in several parts of her work. For detail,
see: Architecture, Ceremonial and Power: The Topkapı.

9 For more information on the imperial kitchen providing meals for crowds,
including not only state officials but also to the soldiers and people coming
to the palace for court cases, see: Zeynep Tarım Ertuğ, “The Ottoman
Imperial Kitchens as Imarets”, Feeding People, Feeding Power: Imarets in
the Ottoman Empire, edited by Nina Ergin, Christoph Neumann and Amy
Singer, Istanbul: Eren, 2007, pp. 251-259.

This article was translated from Turkish version of History of Istanbul with some editions to be published in
a digitalized form in 2019.

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ADMINISTRATION OF THE OTTOMAN CAPITAL

Mehmet İpşirli
1- The first gate of Topkapı Palace: Bab-ı Hümayun. The inscription over the gate reads as “This sacred
castle was built by Sultan Mehmed Han, the son of Sultan Murad Han, the sultan of the lands and seas,
the shadow of Allah, and the conqueror of Istanbul in November 1478.” The verse meaning “help from
Allah and a victory soon to come” (al-Saff, 61: 13) is written right above the gate and the proclamation of
faith on both sides of it.
2- The Sultan’s audience hall in the palace (Arz Odası)
3- Topkapı Palace

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