Development Councils were temporary supervisory councils established in 1845 as part of the Tanzimat (1839-1876) reforms to examine administrative, economic, and public works issues in the provinces and report them to the central government. These councils were created as part of the Ottoman Empire’s effort to modernize provincial administration, overseeing infrastructure projects, reorganizing the tax system, and identifying deficiencies in education and trade. Each council consisted of four members selected from the military, ilmiye (religious scholars), and civil administration classes. The councils were divided into ten regions, each covering several provinces. By organizing meetings with local administrators and the public, they identified major problems in the provinces and prepared reports with solutions for the central government. However, after completing most of their work between 1846 and 1847, the İmar Councils were dissolved following the establishment of the Ministry of Public Works (Nafia Nezareti) in 1847, which took over their responsibilities.

Reasons for the Establishment of Development Councils

The Tanzimat Edict of 1839 initiated a period of legal and administrative reforms, but these reforms did not immediately produce the expected effects in the provinces. Problems such as tax injustices, infrastructure deficiencies, and economic underdevelopment persisted.

The Ottoman administration sought ways to implement central decisions effectively in the provinces. As a result, in February 1845, Development Councils were established to assess the implementation of Tanzimat reforms and determine necessary improvements. The main reason behind the formation of these councils was to accelerate the practical application of reforms and to identify and resolve local problems that the central administration could not directly address.

Additionally, during the same period, two representatives from each province were invited to Istanbul to submit regional reports. This initiative aimed to establish commissions that would directly inform the central government about the provinces’ difficulties. The identification of public needs on-site and in collaboration with local communities was seen as a step toward facilitating the acceptance of new regulations. Thus, the Development Councils were conceived as temporary "reform and development" commissions designed to ensure the improvement and modernization of the empire’s provinces. Through these councils, state officials sought to substantiate the necessity of provincial administrative reforms and implement Tanzimat policies "for the people, with the people."

Structure and Functions of Development Councils

The Development Councils, unprecedented in Ottoman administrative history, were temporary inspection bodies established in 1845 to implement reforms across different regions of the empire. These councils were composed of experts from various fields: a military officer, a member of the ilmiye class (ulema), a member of the civil administration, and a clerk. This structure ensured balanced representation.

The councils were divided into ten regions, covering large territories across Anatolia and Rumelia, with each council assigned to multiple provinces. For instance, some councils operated in the Edirne and Silistra regions, while others worked in Konya and its surroundings. These councils were not stationary; they traveled across districts and sub-districts, conducting on-site inspections. Their mission was planned to last approximately one year, during which they were expected to identify deficiencies in their respective regions.

The directives given to the councils outlined the primary areas of reform focus, including:

• Reorganization of the tax system
• Land use and increasing agricultural production
• Construction of roads, bridges, and public buildings
• Security and administrative regulations
• Evaluation of the education system and teacher shortages

Although education was given less emphasis, the sixth article of the directives specifically addressed the assessment of the education system. Accordingly, council members included information on the number of schools, the status of teachers, and challenges in education in their reports.

A collaborative and consultative approach was adopted as the councils conducted meetings with local administrators and community leaders in each region to identify needs and expectations. The goal was to shape Tanzimat reforms not as a rigid imposition of central authority but as policies influenced by local perspectives. Reports were then prepared and submitted to the Supreme Council of Judicial Ordinances (Meclis-i Vâlâ-yı Ahkâm-ı Adliye) for review. This council evaluated the feasibility of the proposals and issued directives for implementation by provincial and district administrations. Consequently, the Development Councils served as a bridge between the provinces and the central administration.

By providing the Ottoman government with a deeper understanding of provincial conditions and facilitating direct communication with the people, the Development Councils played a crucial role. However, various challenges hindered their sustainability, leading to the need for centralized institutions to oversee reform implementation.

Dissolution of Development Councils and Their Impact

Throughout 1845, the Development Councils actively worked across the Ottoman provinces, identifying deficiencies in regional administration, finance, and infrastructure and submitting their findings to the central government. By 1846, most councils had completed their missions. Initially designed as temporary inspection bodies with a one-year mandate, the councils submitted extensive reports, maps, and inventories to Istanbul for evaluation. Although the councils were never meant to be permanent, several developments accelerated their dissolution and prevented their transformation into long-term institutions.

One major factor was the shift in priorities within the Ottoman central administration. One of the strongest supporters of the Development Councils, Süleyman Pasha, the President of Meclis-i Vâlâ, was removed from office in August 1845 and reassigned as Serasker (Minister of War). His successors did not provide the same level of support for the councils, and no decisive efforts were made to continue their work. As a result, many of the reports, maps, and findings collected by the councils were archived rather than implemented. By late 1846, the councils had effectively ceased operations.

In early 1847, official evaluations acknowledged that while the Development Councils had gathered extensive information on provincial conditions, many of their proposed reforms remained unimplemented due to financial constraints and bureaucratic obstacles. Despite initiating a broad reform movement in the provinces, the councils' findings underscored the need for a more permanent administrative structure to sustain reforms.

In response, the Tanzimat administration established permanent advisory councils in the provinces under the name "Administrative Councils (Meclis-i İdare)" in 1849. In the 1850s, these councils were expanded to include non-Muslim members, aligning provincial administration with Tanzimat reforms. Finally, with the Provincial Regulation of 1864 (Vilayet Nizamnamesi), administrative councils at the provincial and district levels were legally institutionalized. These developments demonstrate that while the Development Councils were temporary initiatives, they laid the groundwork for a more structured and lasting provincial reform process in the Ottoman Empire.