Sher Shah Suri initiated a new chapter in the history of administrative evolution in India by creating peace, order, justice, and a good administrative structure in the empire. The Afghan empire established by Sher Shah did not last long, but his achievements and fame as a ruler were undisputed and unblemished. Besides, Sher Shah Suri administration system was so well organized that it lasted till the Mughal period.
Sher Shah was a “brilliant administrator system’s architect,” as Kalikankar Datta defined it. In actuality, the effective art of the medieval Indian administrative system was a result of his political shrewdness and administrative skill.
Administrative Changes in Sher Shah Suri Administration
If we analyze Sher Shah Suri’s administrative system, we will see that he emulated the administrative rules and land revenue system of Sultan-era rulers Alauddin Khilji and Muhammad bin Tughluq. The administrative changes made under his rule were:
Road Development
- Sher Shah took strict measures against thieves and dacoits and emphasized on safe development of roads.
- He decided to take decisive action against Fath Khan Jat, who by his violent conduct had created disturbances from Lahore to Delhi and destroyed entire tracts of the Lakhi jungle.
- The Shah emphasized on improving road and communication infrastructure for many conveniences for the general and expansion of trade.
- He built a road called Grand Trunk Road from Kabul in Afghanistan to Teknaf, Bangladesh. It was known as Sarak-i-Azam. Currently, it is known as the Grand Trunk Road.
- He built a total of four roads for ease of communication. First G.T. Road from the Indus basin to Bengal (Sonargaon). Second Agra to Jodhpur and Chittor, Third Lahore to Multan, Fourth Agra to Burhanpur.
Sarai Development
- One of the administrative reforms of Sher Shah Suri Administration was the construction of Sarai. For ensuring safety on the roads and for extending comforts to the travelers, he built sarais on the highway at a distance of two karohs (4 miles).
- In each Sarai, there were separate dining arrangements for Hindus and Muslims. For Hindus, cooking was done separately by Brahmins. Even a Hindu could take uncooked food if desired.
- According to Abbas Khan Sarwani (writer to Tarikh-i-Sher Shahi), Sher Shah made a rule to the effect that “whoever came to the sarai was to be served with food out of government money according to one’s rank, and his pony was given grain and drink.”
- He built 1700 sarais. He appointed a custodian (shahna) in each sarai. Their job was to ensure that merchants’ goods, farmers’ crops, and ordinary people could travel safely. He built a market in the middle of each sarai. Many of the sarais became mandis where farmers could sell their produce, and the town (kasbas) was the center of growth where trade flourished. Again, Islam Shah Suri built a sarai between the two sarai.
Trade and Commerce
- Sher Shah Suri introduced new pure metal coins that made with copper and silver to replace the earlier mixed metal coins. He introduced the “system of tri-metalism.” The silver coin was called “Rupiya,” which weighed 178 grains, or 11.60 grams. The gold coin was called “Mohur,” which weighed 169 grains, or 10.95 grams. And, the copper coin was called “Dam.”
- He also made some efforts to standardize the weights and measures. In Sher Shah’s empire, goods paid customs duty only two times: at the place of entry and at the time of sale.
- It was the responsibility of the village chief and zamindar to ensure that the products of the common people or farmers were not stolen during the journey. If anything was stolen, they would be blamed. He had bound everything in a disciplined system. Even if a merchant or traveler met with an accident on the road, there was a rule that no one could touch their property.
For example, Abbas Khan Sarwani stated that: “In the days of the rule of Sher Khan, if an old white-haired woman proceeded on the road with a basket full of goods and ornaments on her head, none of the thieves and night patrols, out of dread of Sher Khan, could even go near her.”
Revenue System
- Sher Shah followed Alauddin in terms of land revenue. However, during his time, instead of estimating crop yield based on sample cuttings in the sown area, he divided the land into three categories based on productivity: good, bad, and average. Accordingly, he collected 1/3 of the produce as revenue.
- Farmers could pay revenue either in cash or in kind. However, he preferred payment in cash. Although the same amount of revenue was collected throughout the kingdom, in the case of Multan, 1/4 of the produce was taken as revenue.
- For the convenience of land surveying, he introduced a uniform land measurement system throughout. This measurement was known as “Gaz-i-Sikandari.”
- Todarmal, his revenue minister, introduced the Zabti System. This system had been prevalent in India for a long time. He made many modifications to it. This system mainly included the cultivated yields and pricing of the individual crops.
- Sher Shah introduced the Ray system (crops rate). According to this system, a single price crop list was prevalent throughout the kingdom.
- He introduced the Patta and Kabuliyat systems. During famines, revenue was reduced.
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System of Government
- Sher Shah divided his entire empire into 47 sarkars. According to RP Tripathi, he divided his empire into “66 sarkars”. Each government was again divided into several parganas. Each pargana was again divided into several grams (villages).
- The head of Sarkar was called Shiqdar or ‘Shiqdar-i-Shiqdaran’ (in charge of police administration or law and order). Also, there used to be ‘Munsif or Munsif-i-Munsifan’ (in charge of revenue administration), ‘Poddar’ (treasurer).
- There was one Amin (responsible for land surveying and revenue determination) and two Kurkuns (who did clerical work).
- In the case of Parganas, several Shiq or Sarkar together formed a ‘Khitta or Vilayat’. The head of a Gram (village) was called ‘Muquaddam or Khut’.
- Four ministers assisted in his administration system. ‘Diwan-i-arz’ represents Military Minister; ‘Diwan-i-Wizarat’ represents Revenue and Finance Minister; ‘Diwan-i-Risalat’ also known as Foreign Minister; ‘Diwan-i-Insha’ defines in charge of correspondence. Additionally, there were two more ministers: ‘Diwan-i-Qaza’ represents ensuring justice throughout the country, and ‘Diwan-i-Barid’ represents the head of the intelligence department.
Army
He introduced the Dag (branding system of the horse) and Chehra (descriptive rolls) systems in the army. There were even Dak Chawkis (postal system) in the empire. Through this, he could keep track of the subjects in every corner of his territory.
Before appointing each soldier in the army, he personally interviewed each soldier and fixed the salary. Branded horses were employed in the army by Sher Shah himself during his presence. He kept 25,000 bowmen and infantry men, including matchlock troops and bowmen, 5,000 war elephants, a park of artillery, and 150,000 cavalries in his personal army.
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Justice
Sher Shah did not make any racial discrimination in the field of justice; he believed in the principle that everyone is equal in the eyes of the law. In the interest of justice, he said, “Justice is the most excellent of religious rites, and is approved alike by the king of infidels and of the faithful”. He appointed Qazis throughout his empire for the administration of justice. For Hindus, there were panchayats to oversee civil laws, while zamindars and shiqdars were responsible for overseeing criminal laws.
Conclusion
The above discussion clearly shows that Sher Shah’s administrative structure was built on a combination of existing Sultanate rules and Persian administrative systems. According to famous historians, “Sher Shah’s administrative and economic reforms and religious tolerance laid the foundation for Akbar’s state policy.” Therefore, as a ruler, Sher Shah Suri was a precursor to the future Mughal administrative system.
