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Mughal Administration: Mansabdari, Jagir and Revenue

Exam notes on Mughal administration: the central and provincial officers, the mansabdari and jagir systems, Todar Mal and the dahsala settlement, and land classes.

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Mughal Administration: Mansabdari, Jagir and Revenue — GK24 title card
Mughal Administration: Mansabdari, Jagir and Revenue — GK24 title card

The Mughal empire was held together by two devices: a graded service in which every officer held a numbered rank from the emperor, and a revenue settlement that turned the produce of a village into a sum of money payable in cash. The first is the mansabdari system, the second the dahsala or zabti settlement, and questions from this chapter are almost always about one of them, about the officer in charge of a department, or about the classes into which land was divided. This note takes them in that order.

The central officers

The emperor was the head of the state, the army and the judiciary, and the ministers were his secretaries rather than a cabinet. Four offices carry nearly every question.

OfficerDepartment
Wazir or Diwan-i-AlaRevenue and finance; all income and expenditure of the empire
Mir BakhshiThe military department: muster rolls of the mansabdars, recruitment, pay and the intelligence reports of the news writers
Mir Saman or Khan-i-SamanThe imperial household and the royal workshops, the karkhanas
Sadr-us-SudurReligious endowments, grants and charity; the chief qazi headed the judiciary
MuhtasibCensor of public morals and of weights and measures in the markets

Note the trap here. The Mir Bakhshi was not the paymaster of the treasury but the head of the military department, and the finance minister was the Diwan. The two are deliberately interchanged in exam options.

Provincial and local administration

Akbar divided the empire into twelve subas in 1580; by the end of his reign there were fifteen. Below the suba came the sarkar, below it the pargana, and at the bottom the mauza or village. The governor of a suba was the subedar or sipahsalar, assisted by a provincial diwan for revenue, a bakhshi, a sadr and a qazi. In a sarkar the faujdar kept law and order with troops while the amalguzar or amil assessed and collected the revenue. A pargana had a shiqdar, an amil, a treasurer and the qanungo, who kept the records of land and of custom. In the village the muqaddam was the headman and the patwari kept the accounts. In every town of importance the kotwal was the chief police and magisterial officer, who also kept the register of houses and controlled prices in the market.

The mansabdari system

Akbar organised the nobility and the army into a single graded service. A mansab was a numbered rank fixed by the emperor, and it carried two numbers. The zat fixed the holder's personal pay and his place in the official order of precedence; the sawar fixed the number of horsemen he had to maintain. A mansabdar whose sawar rank equalled his zat was of the first class, one whose sawar was half or more of his zat of the second, and one with less than half of the third. Ranks below five hundred were called mansabdars, those from five hundred to two thousand five hundred amirs, and the highest amir-i-umda, while ranks above five thousand were normally reserved for princes of the blood.

To stop the common fraud of hiring horses for the inspection, Akbar enforced the dagh, the branding of horses with the imperial mark, and the chehra, a descriptive roll of every soldier. Jahangir added the du-aspa sih-aspa device, by which a trusted noble could be asked to maintain double or triple the troopers of his sawar rank and was paid for them without any change in his zat. A mansab was neither hereditary nor permanent: it was raised, lowered or resumed at the will of the emperor, and on the holder's death his assignment reverted to the state.

Jagir, khalisa and the salary of the nobility

A mansabdar was paid either in cash from the treasury, when he was called naqdi, or by the assignment of the revenue of a piece of land, when he was a jagirdar. The jagir was an assignment of revenue and not of the land itself; the jagirdar had no ownership and no judicial authority, and he was transferred from one jagir to another every few years, so that he could not strike root. Land whose revenue was reserved for the imperial treasury was khalisa. Among the kinds of jagir, the jagir tankha was given in lieu of pay, the mashrut was conditional, the in'am carried no obligation of service, and the watan jagir was the hereditary homeland of a zamindar or raja who had entered Mughal service, which is why the Rajput chiefs kept their ancestral lands. The slow exhaustion of land available for assignment, the paibaqi, produced the jagirdari crisis of the later empire.

The revenue system

Akbar inherited the measurement system of Sher Shah and improved it through the karori experiment of 1573, which put officers called karoris in charge of collecting a crore of dams each. The settlement that came out of these trials is the dahsala, also called zabti or bandobast-i-dahsala, completed under Raja Todar Mal in 1580. The average produce and the average price of the previous ten years were worked out for each crop in each locality, the state took about one-third of the average produce, and the demand was stated in cash per bigha per crop. Land was measured with the jarib, a bamboo rod joined by iron rings in place of the stretchable hemp rope, and in the ilahi gaz fixed by Akbar.

Three other methods remained in use where measurement was impractical: batai or ghalla-bakhshi, an actual division of the harvest; kankut, an estimate of the standing crop by appraisal; and nasaq, a rough demand based on past collections. Land was classified for assessment as polaj, cultivated every year, parauti, left fallow for a season or two, chachar, fallow for three or four years, and banjar, uncultivated for five years or more, with concessional rates on the poorer classes to bring them back under the plough. The state advanced taqavi loans for seed and cattle, and remitted the demand in a season of drought or flood. The assessed demand was the jama and the amount actually realised the hasil. All of this detail survives because Abul Fazl set it down in the Ain-i-Akbari, the third volume of the Akbarnama, which remains the single most important source for the subject.

Exam Point of View

The commonest question asks which officer held which department, and the answer is nearly always Mir Bakhshi for the army or Diwan for revenue; the two are swapped in the options to catch a hurried reader. The second commonest asks for the two elements of a mansab, where zat and sawar must be given in the right sense. Then come the terms: dagh and chehra with Akbar, du-aspa sih-aspa with Jahangir, dahsala and zabti with Todar Mal and the year 1580, and the four land classes in order from polaj to banjar. Watch for questions that ask what a jagir was, since the expected answer is an assignment of revenue and not a grant of land. The administrative hierarchy of suba, sarkar, pargana and mauza is asked as a sequence, and the Ain-i-Akbari is asked as the source of all revenue statistics, with Abul Fazl as its author.

Important Facts

Mir BakhshiHead of the military department; muster rolls, recruitment and intelligence reports
Diwan-i-Ala or WazirMinister for revenue and finance of the empire
Mir SamanIn charge of the imperial household and the karkhanas or royal workshops
Mansab, two elementsZat for personal pay and status; sawar for the number of horsemen
Dagh and chehraBranding of horses and the descriptive roll of soldiers, enforced by Akbar
Du-aspa sih-aspaDevice introduced by Jahangir for extra troopers without raising the zat rank
Administrative unitsSuba, then sarkar, then pargana, then mauza or village
Subas under AkbarTwelve in 1580, rising to fifteen by the end of his reign
Dahsala settlementCompleted under Raja Todar Mal in 1580; about one-third of the ten-year average produce, in cash
Other methods of assessmentBatai or ghalla-bakhshi, kankut and nasaq
Land classesPolaj, parauti, chachar and banjar
Ain-i-AkbariWritten by Abul Fazl as the third volume of the Akbarnama; the main source for revenue figures

Practice MCQs on this topic

Q1.Indian HistoryAsked in: Delhi · 8 April 2022, Shift 2Easy

In the Mughal administration, which of the following departments was known as Mir Bakhshi?

  1. A.Factory department
  2. B.Revenue department
  3. C.Justice department
  4. D.Army department
Show answer
Correct answer: D. Army department

Explanation

The correct answer is D, the army department. The Mir Bakhshi was the head of the military establishment: he kept the muster rolls of the mansabdars, verified the horses and men at inspection, recommended candidates for rank and countersigned their pay orders, and the news writers and intelligence reporters of the provinces also sent their reports through his office. A, the karkhanas or royal workshops, came under the Mir Saman, who looked after the imperial household. B, revenue and finance, was the charge of the Wazir or Diwan-i-Ala, and that is the option most often chosen by mistake. C was headed by the chief qazi, while religious grants and charity were with the Sadr-us-Sudur. Hold the pair in memory as bakhshi for the sword and diwan for the purse, and the option can never confuse you.

Q2.Indian HistoryAsked in: CTET · 24th Dec 2021Medium

Consider the following statements about the Ain-i-Akbari and choose the correct option. (A) It was written by Abul Fazl. (B) It has rich statistical details about crops, prices, revenues and wages. (C) It deals with the details of the ancestors of Akbar.

  1. A.(A) and (B) are true
  2. B.(B) and (C) are true
  3. C.(A) and (C) are true
  4. D.(A), (B) and (C) are true
Show answer
Correct answer: A. (A) and (B) are true

Explanation

The correct answer is A, statements (A) and (B) are true. The Ain-i-Akbari was written by Abul Fazl, the courtier and friend of Akbar, and it forms the third volume of the Akbarnama; it is an administrative gazetteer, listing departments and officers, the subas with their sarkars and parganas, measured areas, revenue rates, prices and wages, which is why historians use it for economic history. Statement (C) is false for this volume: the ancestry and early life of Akbar are dealt with in the first volume of the Akbarnama, not in the Ain. Hence B, C and D, each of which treats statement (C) as true, are wrong. The Akbarnama in three volumes, with the Ain as the third, is itself a fact worth carrying into the exam hall.

Q3.Indian HistoryMedium

In the mansabdari system, the two numbers attached to a mansab, zat and sawar, stood respectively for

  1. A.personal pay and rank, and the number of horsemen to be maintained
  2. B.the area of the jagir, and the revenue assessed on it
  3. C.the years of service, and the number of elephants kept
  4. D.the amount of cash salary, and the rate of land revenue
Show answer
Correct answer: A. personal pay and rank, and the number of horsemen to be maintained

Explanation

The correct answer is A, personal pay and rank, and the number of horsemen to be maintained. The zat number fixed the salary of the holder and his place in the order of precedence at court, while the sawar number fixed the contingent of cavalry he had to keep ready for the emperor. If the sawar rank equalled the zat the holder was of the first class, if it was half or more of the zat he was of the second, and below that of the third. B describes the jagir records kept by the revenue department, not the mansab. C invents a measure that never existed in the system. D confuses the mansab with the revenue schedule of the dahsala settlement. The mansab was also neither hereditary nor permanent, and it lapsed to the state on the death of the holder.

Q4.Indian HistoryEasy

The dahsala or zabti system of revenue settlement, completed in 1580, is associated with

  1. A.Raja Todar Mal
  2. B.Raja Man Singh
  3. C.Abul Fazl
  4. D.Shah Mansur
Show answer
Correct answer: A. Raja Todar Mal

Explanation

The correct answer is A, Raja Todar Mal, who had learnt revenue work under Sher Shah and rose to be the revenue minister of Akbar. Under his settlement the average produce and the average price of the previous ten years were calculated for every crop in every locality, the demand was fixed at about one-third of that average produce and stated in cash per bigha, and land was measured with the bamboo jarib and the ilahi gaz. B was a leading Rajput noble and commander of Akbar, not a revenue officer. C wrote the Ain-i-Akbari in which the settlement is described, which makes him a plausible but wrong choice. D was an earlier finance officer of the reign who held office before the dahsala was framed.

Q5.Indian HistoryMedium

What were dagh and chehra in the Mughal military system?

  1. A.Two kinds of jagir assigned to nobles
  2. B.The branding of horses and the descriptive roll of soldiers
  3. C.Two ranks in the provincial revenue service
  4. D.Two forms of land measurement
Show answer
Correct answer: B. The branding of horses and the descriptive roll of soldiers

Explanation

The correct answer is B, the branding of horses and the descriptive roll of soldiers. Mansabdars were paid for the troopers they maintained, and the standing temptation was to hire horses and men for the day of inspection and send them away afterwards. Akbar therefore ordered that every horse accepted at muster be branded with the imperial mark, the dagh, and that a written description of each soldier, the chehra, be kept in the office of the Mir Bakhshi, so that the same animals and men could not be shown twice. A is wrong because jagirs were tankha, mashrut, in-am and watan. C and D name no such terms in the records of the period. The two measures together made the Mughal muster the most closely checked military roll of its age in India.

Q6.Indian HistoryHard

The du-aspa sih-aspa system, under which a noble maintained extra troopers without a change in his zat rank, was introduced by

  1. A.Akbar
  2. B.Jahangir
  3. C.Shah Jahan
  4. D.Aurangzeb
Show answer
Correct answer: B. Jahangir

Explanation

The correct answer is B, Jahangir. Raising the sawar rank of a favoured noble meant raising his zat as well, which disturbed the order of precedence and cost the treasury more in personal pay. Jahangir therefore allowed a noble to be asked to maintain double or triple the troopers of his sawar rank, paid for the additional men but left at the same zat, and the arrangement was called du-aspa sih-aspa, meaning of two horses and three horses. A created the mansab system itself with its zat and sawar ranks. C is remembered in this chapter for the month ratio by which the pay of a mansabdar was scaled down. D expanded the empire into the Deccan and faced the resulting shortage of land for assignment.

Q7.Indian HistoryMedium

In the classification of land under Akbar, which class was cultivated every year and never allowed to lie fallow?

  1. A.Polaj
  2. B.Parauti
  3. C.Chachar
  4. D.Banjar
Show answer
Correct answer: A. Polaj

Explanation

The correct answer is A, polaj, the best land, under the plough every season and assessed at the full rate of about one-third of the average produce. B, parauti, was land left fallow for a season or two to recover its strength, and it paid the full rate once it was cultivated again. C, chachar, had lain fallow for three or four years, and D, banjar, for five years or more, and both were assessed at concessional and rising rates over a few years so that a cultivator had a reason to break them up again. Learning the four in order, polaj, parauti, chachar and banjar, from the most to the least cultivated, answers every form of this question. The classification is described in the Ain-i-Akbari, which also gives the rates charged on each class of land.

Q8.Indian HistoryEasy

Arrange the Mughal administrative units from the largest to the smallest.

  1. A.Sarkar, suba, pargana, mauza
  2. B.Suba, sarkar, pargana, mauza
  3. C.Pargana, suba, mauza, sarkar
  4. D.Suba, pargana, sarkar, mauza
Show answer
Correct answer: B. Suba, sarkar, pargana, mauza

Explanation

The correct answer is B, suba, sarkar, pargana, mauza. The suba was the province, headed by a subedar with his own diwan, bakhshi, sadr and qazi; the sarkar was the district, where the faujdar held charge of law and order and the amalguzar of revenue; the pargana was a group of villages with its shiqdar, amil and qanungo; and the mauza was the village itself, with the muqaddam as headman and the patwari keeping the accounts. Akbar fixed twelve subas in 1580, and they rose to fifteen by the end of his reign. A, C and D disturb that order, and such sequence questions are set precisely because the middle two units are easily interchanged. Remember that the faujdar and the amalguzar both worked at the level of the sarkar, one with troops and one with the revenue papers.

Q9.Indian HistoryHard

In the Mughal land system, khalisa referred to

  1. A.land whose revenue was reserved for the imperial treasury
  2. B.land granted to religious institutions free of revenue
  3. C.the hereditary homeland of a zamindar in Mughal service
  4. D.land on which no revenue could be assessed because it was barren
Show answer
Correct answer: A. land whose revenue was reserved for the imperial treasury

Explanation

The correct answer is A, land whose revenue was reserved for the imperial treasury. The territory of the empire was divided between khalisa and jagir: the revenue of khalisa land was collected by imperial officers and credited to the central treasury, while the revenue of jagir land was assigned to mansabdars in place of a cash salary. The proportion of khalisa was watched carefully, since too little of it left the treasury short. B describes grants called madad-i-maash given to scholars and religious men. C describes a watan jagir, held hereditarily by chiefs such as the Rajput rulers. D describes banjar land, which was assessed at concessional rates rather than exempted. The share of khalisa in the empire rose and fell with each reign, and its shrinking is one measure of the later crisis.

Q10.Indian HistoryMedium

Which method of revenue assessment involved an actual division of the harvest between the state and the cultivator?

  1. A.Zabti
  2. B.Batai or ghalla-bakhshi
  3. C.Kankut
  4. D.Nasaq
Show answer
Correct answer: B. Batai or ghalla-bakhshi

Explanation

The correct answer is B, batai or ghalla-bakhshi, in which the harvested crop itself was divided in an agreed proportion between the state and the cultivator, either on the threshing floor or in the standing field. It suited areas where measurement was costly and prices unsteady, and the peasant could sometimes choose it. A, zabti, is the dahsala method in which a cash rate per bigha was fixed from ten-year averages. C, kankut, was an estimate of the yield of a standing crop made by appraisal, with kan meaning grain and kut an estimate. D, nasaq, was a rough demand based on previous collections for the whole village, without either measurement or division of the crop. Of the four methods, zabti covered the greatest area under Akbar, and the other three survived at the edges of the empire.

Frequently Asked Questions

What were zat and sawar in the mansabdari system?

Every mansabdar held two numbers. The zat rank fixed his personal pay and his position in the official order of precedence, and the sawar rank fixed the number of cavalrymen he had to keep ready for service. A holder whose sawar equalled his zat belonged to the first class, one whose sawar was half or more of the zat to the second, and one with less than half to the third. The two numbers together decided both status and military obligation.

What was the difference between a jagir and khalisa land?

Khalisa was land whose revenue went directly to the imperial treasury and was administered by the emperor's own officials. A jagir was an assignment of the revenue of a tract to a mansabdar in place of a cash salary. The jagirdar collected the assessed revenue, kept his sanctioned pay and the cost of his troopers, and had no ownership of the soil and no judicial power there. He was also transferred every few years so that he could not build a local base.

What was the dahsala system?

It was the revenue settlement completed under Raja Todar Mal in 1580, also called zabti or bandobast-i-dahsala. The average yield and the average price of the ten preceding years were calculated for each crop in each locality, the state demand was fixed at about one-third of that average produce, and the amount was stated in cash for every bigha of each crop. Because the rate was known in advance, both the peasant and the treasury could plan, which is why the system lasted.

Why is the Ain-i-Akbari important for this topic?

The Ain-i-Akbari is the third volume of the Akbarnama, written by Abul Fazl, and it is the administrative handbook of the empire. It records the departments and their officers, the mansabdars and their ranks, the subas with their sarkars and parganas, the measured area of land, the schedule of revenue rates and the prices of commodities and wages. Almost every figure quoted for Mughal administration goes back to it.

Sources

  • Themes in Indian History Part II, Chapter on Peasants, Zamindars and the State — NCERT
  • Our Pasts II, Chapter on the Mughal Empire — NCERT
  • Ain-i-Akbari of Abul Fazl, English translation by H. Blochmann — Asiatic Society of Bengal
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