The Sate and its Servants Administration in Egypt from Ottoman Times to the Present

part of its grip on central administration. This paved the way for a de facto 
1
The Siyasatname was published by a lawyer, Ahmad Fathi Zaghloul, in his book al-Muhamah, 
Cairo, 1900, pp. 4-26.

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2 
www.RaoufAbbas.org 
decentralization of the administration, represented in the growing power of the 
Mamluk beys and amirs in the eighteenth century.
2
By the time that Muhammad 'Ali had become ruler of Egypt in 1805, the state 
of disorder within the traditional Ottoman central administration was 
widespread. The central bureaucracy had become inefficient and was unable to 
perform adequately. Aiming at making Egypt a strong and prosperous base for 
himself and his family, Muhammad 'Ali took great care to tighten his grip on 
the administrative apparatus. He made sure that the agents entrusted with the 
collection of taxes could be relied upon to deliver what they owed, especially 
after the abolition of the tax farming (iltizam) system and the elimination of the 
Mamluks. Significantly enough, it was upon the traditional elements of the 
Egyptian administration, the Coptic clerks and the village shaykhs, that he 
relied on to run his new system, a factor which affected the way the new 
administration was run.
3
In other words, he was instituting important changes to 
the existing system, but the implementation of his new ideas was expected to be 
carried out by the people who had been trained to run the administration under 
his predecessors. 
Although the plan to establish a new administration was the result of a decision 
that the ruler made, it emerged because of the situation he was facing at the time 
and because of a real need for new ways to approach his problems. That need 
had been created by Muhammad 'Ali' s plans to have a modern army and navy, 
and the monopoly that he had instituted over the country's productive resources. 
Agriculture, industry, and commerce were placed under his control and 
direction.
4
With these new functions that the government now had to fulfill, the 
traditional Ottoman administration was not capable of meeting the growing 
demands. The Ottoman government, as it had been set up in Egypt ever since 
the early sixteenth century, had not had such functions to deal with prior to the 
nineteenth century, and it was not equipped for an administration of such a 
scope. What in fact Muhammad 'Ali had been doing was to bring about a steady 
and gradual change, founding departments for the administration of particular 
activities (diwans), and creating consultative bodies such as majlis al-mashura 
and the majlis al-'ali. These were created to confront a particular situation. They 
do not seem to have been structurally related to each other except insofar as 
they all answered to him, nor to have been organized along similar lines. The 
administration of Muhammad 'Ali, therefore, before he introduced the 
Siyasatname, was neither uniform nor coordinated. 
2
Shaw, The Financial and Administrative Organization and Development of Ottoman Egypt, 
Princeton, 1962; Laila 'Abdul Latif Ahmad, al-idara fi Misr fi-l-'asr al-‘uthmani, Cairo, 1978; Ahmad 
Fu'ad Mitwalli, ed. and trans., Qanunname Misr, Cairo, 1986. 
3
H. Rivlin, Agricultural Policy of Muhammad Ali in Egypt, Cambridge, 1961, p. 77; P. Hamont, 
L'Egypte sous Mehmet Ali, Paris, 1843, p. 26. 
4
Charles Issawi, An Economic History of the Middle East and North Africa, New York, 1982, p. 4.

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3 
www.RaoufAbbas.org 
In other words, one can discern a pragmatic approach on the part of Muhammad 
'Ali. He was feeling his way as he went. When he was confronted with a 
problem that needed to be solved, he was ready to create a body of some sort. 
As a result of this approach, a number of new departments were created as the 
need arose. Among these, the department of the navy and naval schools (diwan